Reflections on the implementation of the million houses programme

Abstract

This paper is an attempt at unravelling the vital inner experience of the Million Houses Programme (MHP). It does so through an examination of the implementation of its two main low-income sub-programmes, the Rural Housing Sub-Programme (RHSP) and the Urban Housing Sub-Programme (UHSP). Of the two implementation exercises, the RHSP represents the older and more mature experience covering a period of 2 years and 7 months (March 1983 to September 1985), while the UHSP is only 9 months old (January to September 1985). Therefore, there is a bias towards the RHSP experience. For the purpose of the paper, these two sub-programmes jointly make up the Million Houses Process. While the focus throughout is on implementation, implementation itself is seen as a process. This emphasis on process is deliberate, for not only has it been central to our perception of the MHP, but it is equally key to our drawing generalisable lessons and principles from it. The reflections are part narrative, part comment and part analysis. But comment and analysis predominate. The reflections are presented in five sections: (1) Process as performance; (2) Process tested; (3) Breakthroughs strengthen the process; (4) Challenges in the process; (5) Principles summarised. Process as performance presents the essentially quantitative outcomes of the MHP, which justify deeper investigation of its working. Process tested deals with the pilot actions which acted as a necessary transition, prior to national implementation. Breakthroughs strengthen the process is the longest section. It attempts to summarise and evaluate the core experiences of the Million Houses Process. Challenges in the process deals with persisting and unsolved problems. Principles summarised is an attempt at restating the principles of support-based housing as derived from the implementation process examined here.