MODIFICATIONS OF GOVERNMENTAL HOUSING PROJECTS IN KUWAIT التعديلات على المشاريع الاسكانية الحكومية

MODIFICATIONS OF GOVERNMENTAL HOUSING PROJECTS IN KUWAIT

MODIFICATIONS OF GOVERNMENTAL HOUSING PROJECTS IN KUWAIT Dr. Yasser Mahgoub ABSTRACT This paper investigates the phenomenon of applying changes and modifications on governmental housing units by the end users in Kuwait. This activity causes waste of time and resources which could be better utilized to produce more housing units for other applicants. It is also an evidence of a mismatch between housing units designs produced by the government and expectations and actual needs of end users. The study focuses on identifying the extent and causes of this phenomenon as well as possible solutions that could benefit both the end users and the government. The paper is based on field study conducted in five governmental housing projects in Kuwait where there have been activities of transformations and modifications of governmental housing units by end users. A survey of changes and modifications was conducted using standardized questionnaire, interviews, and photographing. It concluded that these modifications and changes were made to satisfy social and cultural needs not satisfied by the prototypes offered by the government. It also pointed out the ability and willingness of the people to participate in the housing process. It stresses the need to develop a new approach to include the people in the process of design and production of housing that would facilitate the production of a more satisfying environment and reduction in cost and time of governmental housing provision.

Keywords: Kuwait, Public, Housing, Policies, Modifications.

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INTRODUCTION The production of governmental housing for citizens is a common practice in Gulf countries as part of the welfare societies. In Kuwait, governmental housing is being produced by the government and distributed to the citizens since the middle of the 20th century following the discovery of oil and the wealth generated by its sales. Many governmental housing projects, containing thousands of units, were constructed and distributed to citizens. Modifications and changes are applied on these units immediately after their delivery by end users. They vary from minor to major, interior to exterior, immediate to gradual, and functional to aesthetical changes.

The phenomenon of altering and modifying governmental housing units by their end users is a common practice in all governmental housing neighborhoods in Kuwait.

They have resulted in changing the entire environment of governmental housing projects from planned neighborhoods composed of repeated typical units into typically planned neighborhoods composed of irregularly modified units. The new environments have gained some of the advantages of private housing developments composed of stylish villas, while benefiting from the advantages of governmental housing developments provided with free land and proper infrastructure and services.

The impact and consequences of these modifications and changes are numerous.

There is a concern over the quality of the resulting physical environment features and standards due to the lack of governing regulations for the application of these changes.

There is also a concern over the wasted time and cost of construction and modifications.

Lastly, the appropriateness of the governmental neighborhoods and units in meeting social and cultural needs of the occupants is in doubt.

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There are two opposing points of views regarding this phenomenon. The negative view proclaims that people are damaging the houses provided to them by the government with these changes and modifications, and that they should leave them unchanged. The positive view asserts that people have needs and desires that are not satisfied by the typical prototypes provided by the government and that they are willing to participate in the housing process by cost and effort.

This paper examines the modifications and alterations made by governmental housing dwellers in different governmental housing projects in Kuwait. It pauses the following questions: What are the modifications and changes made by the end users of governmental housing projects? Why are these changes being made? How can the government benefit from the people’s willingness to participate in the housing process? It attempts to identify some of the implicit factors that control change at both dwelling and community levels, in order to understand the reasons behind doing these modifications.

The goal is to know how to prevent this wasted effort and cost in future governmental housing projects in Kuwait and achieve user satisfaction and participation in the production of housing.

METHOD The data for this study was collected through several methods. Site visits to several government housing projects in Kuwait were conducted. A standardized questionnaire was distributed to a stratified sample of governmental housing units occupants in seven governmental housing projects. The sample size was thirty from seven different governmental housing neighborhoods, out of which twenty seven responded. All the selected informants reside in a four-hundred square meter typical governmental housing

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unit. In depth ethnographic interviews were conducted with five participants to evaluate governmental housing units from their point of view. Photographs of modifications and changes were collected illustrating their types and magnitude.

The hypothesis guiding this study is that modifications and changes applied to governmental housing projects should not be viewed as a waste of time and cost, they should be viewed as expressions of people’s need to control their built environment, willingness to participate in the production of their housing and determination to change unsatisfactory conditions.

MODIFICATIONS OF PUBLIC HOUSING IN DIFFERENT CONTEXTS According to Turner, “the willingness of people to invest their energy and initiative and their savings or other material resources depends on the satisfaction they experience or expect as a result.” (Turner, 1976, p 53) Modification of public housing units by end users is world wide phenomenon. As indicated by Salama, “for many years and through their own initiative, public housing dwellers have been engaged in alteration and extension activities aimed at adapting their dwellings to better suit their needs.” (Salama, 1998, p.32) He asserts that understanding this phenomenon is a prerequisite to any attempt to provide better quality housing environments and to improve living conditions in existing ones. It seems most important, he added, to try and comprehend these new environments and to understand the factors that control change and determine the outcome of transformations in different environments.

Studies of user modifications and transformations of public housing usually utilizes low and medium income housing in developing countries as case studies. (See Tipple

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(1996 and 2000), Shiferaw (1998), Murphy (1997) and Garrod (2000)). For example, Shiferaw observed that “transformations of human settlements are very dramatic in cities of the developing countries where, despite the rapid urbanization process and demographic change, housing provisions fall short of demand. This results in continuous transformation of shelters in order to meet basic needs and changing situations. Unlike in the industrialized countries, this is largely accomplished through spontaneous private initiative. Thus, construction of new dwellings and also modification and maintenance of government-owned ones are private concerns.” (Shiferaw, D. 1998 p. 437) Murphy conducted a survey of residents' modifications to publicly constructed dwellings in Oaxaca, Mexico to determine how the housing met residents' needs. He concluded that “by understanding public housing modifications to previous designs, designers can create housing that has adequate, usable space.” (Murphy, 1997, p. 1) Tipple asserts that. “there is considerable advantage arising from this activity for the sustainability of cities in developing countries and is congruent with many of the precepts of sustainable development.” (Tipple, 1996, p. 367) He recommends that they could be enabled through policy to provide housing goods more efficiently.

GOVERNMENTAL HOUSING PROVISION IN KUWAIT Before the discovery of oil during the 1940’s, the traditional house in Kuwait was made of several rooms surrounding a courtyard. Groups of houses along a narrow street called farij, were occupied by relatives and kin of the same family or tribe. The narrow, shaded farrij, used only by pedestrians- as no cars were available at that time- was appropriate for hot-arid weather of the summer and the cold-desert weather of the winter.

The house was built by the vernacular builder called al-ustaz – the master builder – using

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local adobe mud bricks or coral stones for walls and imported wood trunks for roofs. The vernacular builder translated the needs and aspirations expressed by the owner into a house according to the available land and economic resources of the owner.

Following the discovery of oil in Kuwait during the 1940’s, the government assumed the responsibility of providing housing for the people. New private housing neighborhoods were constructed providing sites and services for those who wish to build their own houses. Other complete governmental housing neighborhoods were constructed containing finished housing units to be distributed to the citizens.

Since the early 1950’s, Kuwait was one of the first Gulf states to provide housing welfare to its citizens through the establishment of governmental agencies and authorities specialized in planning and construction of governmental housing projects. As described

by Khattab, “in its strive to fulfill its constitutional pledge of providing public housing to all Kuwaitis, the government has tried several policies over the past four decades. These policies have ranged from providing the beneficiaries with a house and plot in new housing estates, a flat in apartment blocks in Kuwait city, a loan and plot in site and services projects, or only a long-term loan with low interest.” (Khattab 2000, p. 353) In 1954 the Construction Council was established. Two thousands housing units were constructed using several prototypes in the neighborhoods of Shamiah, Kefan, Fayha, Salmiya and Duaia. In 1956 the State Properties Department was established and assumed the responsibility of distributing the houses to the people- later supported by a Housing Committee established in1958. In 1962, following the independence of Kuwait in 1961, the responsibility of distributing governmental housing units was assigned to the Ministry of Welfare and Employment. In 1974 the Public Housing Authority was

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established to assume the responsibility of design and construction of governmental housing units followed by the establishment of the Ministry of Housing in 1975 to assume the responsibility of distributing the houses to the citizens. In 1986 the Ministry of Housing and the Public Housing Authority were combined into one entity called the Public Authority for Housing Welfare (PAHW) that assumed all responsibilities of planning, design, construction and distribution of governmental housing neighborhoods and units.

The planning and design of governmental housing neighborhoods and units is completely different than the traditional houses of old Kuwait. Examples of early types of governmental housing are shown in figure (1).The governmental houses are designed as detached villas lined along a network gridiron streets within typical neighborhoods containing essential daily and weekly services. (See figure (2)) Unlike the traditional dwellings, the decision making process regarding planning, design and financing of units is made without the active participation of the end users. The government provided completely finished housing units distributed using a public selection process. Figure (3) illustrates the process of public housing selection and figure (4) illustrates a prototype of a governmental housing unit.

According to recent studies governmental housing deficit increased from 51000 units in 1998 to 54963 units in 2000 and is expected to reach 68000 units by the year 2010, provided that the government constructs the currently needed 54000 units. The average waiting period to receive a governmental house as reached 8.5 years from the date of application. (Ramadan, 2004) Considering that the average family size is five, the

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statistics means that approximately 250,000 citizens – approximately 25% of the almost one million Kuwaiti citizens - are waiting to receive governmental housing units.

DATA ANALYSIS: QUANTITY AND QUALITY OF MODIFICATIONS Descriptive statistics was used to analyze the data collected from the sample. It revealed that 86% of the respondents indicated that they applied modifications and changes to improve the functionality of the units, 7% indicated that they applied the modifications to improve the aesthetic qualities of the units, and 7% selected both reasons. (See figure (5)) The most common types of modifications observed were classified into two main categories: interior and exterior modifications. Interior modifications included major changes such as change of distribution and size of rooms- by altering interior walls to change the size of a room, expansion or division of spaces, creation of storage spaces, staircases, changing the intended use of space from one function to another, and minor modifications such as repositioning openings; doors and windows, installation of curtains for separation or privacy purposes, and the repainting of walls. (See figure (6)) Exterior modifications included major modifications such as altering elevations completely to create more fashionable facades instead of the typical facades, addition of fences and gates to create identified entrances and provide more privacy for the interior of the unit, raising roof parapets and closing up exposed balconies to provide more privacy for the rooms, or for use as an extra room or as an extension of an existing room, and making openings in walls for new windows. Modifications of ground floor included additions and extensions to create new rooms and diwania – a social gathering room for

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men. Roof top vertical and underground extensions are rare due to structural limitations.

(See figure (7)) Appropriating public open spaces for extension use as private gardens or parking spaces usually starts during the selection of unit during the “raffle or draw� selection process. The first choices are usually the units by the corner or the units overlooking open public lands. Immediately after the acquisition of the unit the owner annexes the land by fencing it and claims it as his own. Later they would start developing it as their private gardens or erect parking sheds for their automobiles.

Immediately after their completion, the appearance of all governmental housing projects is similar. This is due to the fact that they all originate from the same prototype planning and units design. After going through the process of modifications and change by end users, each project develops a character of its own resulting from the tendencies of transformation activities by the residents.

The end users’ financial capabilities and willingness to apply changes are expressed through the amount of money paid to do these changes. Approximately 27% of the users indicated that they spent between 1000 to 5000 KD on changes and modifications, 22% between 5000 and 10000 KD, 22% between 10000 and 20000 KD, 7% between 20 and 30000 KD, and 22% between 30000 and 40000 KD. (1 KD = approximately 3.3 $) On average, the cost of modification and changes made by the end user is 15,000 KD which is approximately 37% of the total cost of the unit paid by the government- which is approximately 40,000 KD. (Figure (8)) Most of the wasted building material is discarded in junkyards and garbage dumps.

52% of the respondents indicated that they through away the material, 41% indicated that

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they have sold the material, while only 7% indicated that they have reused the material.

(Figure (9)) It is not only materials and cost that is wasted in this process, but also time that is spent to do them before being able to use the unit. The model in figure (10) illustrates the process of producing the unit and the application of modifications and changes that can be saved if other means of design and distribution of units is used.

Some users suggested to receive the unit as a concrete skeleton without any finishing while others preferred to receive the unit with an additional loan for remodeling.

The majority of respondents demanded that there should be cooperation between the PAHW and the people before and after designing the unit to achieve the unit design that meets the requirements of the typical Kuwaiti family and to get rid of this phenomenon.

All the respondents expressed discomfort with the governmental housing units done

by The PAHW and they would like to apply changes to these units whether it is small or big changes some times even reaching the point where the unit is taken down to the ground and rebuilt.

Another important finding is that urban design of the neighborhood area itself is as important as the design of the unit. The availability of vacant lands, the spatial relationship between units, and the general character of the neighborhood are important considerations. The PAHW uses a typical design of units and neighborhoods that is repeated over and over in all its projects.

The immediate problems of modifying units can be solved if the final finishings are not applied without consulting the end user. This will reduce the number of people who start remodeling their house immediately after receiving their units. People intending to

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modify or do future changes to their units can be provided with open areas that makes future expansion possible. Long term solution for similar future projects include the provision of the citizens with a skeleton-only units and a loan to help finish up the house.

There should also be close cooperation between the PAHW and the citizens at early stages of designing the unit. The user can be offered to pay the difference to get what he wants, if his requirements exceed the price limit of the unit. Cooperation between the three sides of the housing triangle; the government, the designer and the citizen, should be more close and innovative.

The government’s attitude towards the phenomenon was until recently a resentful one. Newspapers advertisements warn users and local contractors against the application of modifications and changes to governmental units without receiving proper approvals and consents from the government. A new initiative is being studied by the government to deliver skeleton-only units to be completed and finished by the end user.

THEORETICAL IMPLICATIONS: MODELS OF HOUSING PROVISION Governmental housing provision in Kuwait is following what Habaraken termed the “Old Model” of housing provision, where housing is viewed as only “a matter of production of buildings and the primary goal is to give shelter, build as many units as you can, there is no time to waste, the need is too large.” (Habraken, 2002, p.9) There is an enormous emphasis on the number of units in terms of needs and production. The utilization of typical, repeated prototypes is viewed as the only valid way of producing large number of units in a very short period of time.

The exclusion of the end user from the process is another typical aspect of the old model. While their needs are studied as typical requirements for the design stage of the

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project, end users are not involved in the actual process of design and construction.

Habraken stresses that “professionals are important and, indeed indispensable, but they must work together with users, user groups, and those who represent them: the politicians and other elected officials.” (Habraken, 2002, p.9) The use of prototype designs has proved inappropriate in many contexts. This study illustrated that, especially when they have good financial capabilities, people strive to achieve individuality and uniqueness in their housing units. Uniform floor plans do not ensure satisfaction since they only address the needs of the average family, which does not usually exist. As Habraken put it, “it is impossible to find a solution that fits everybody. A house is a personal thing and must adapt to the user. People like to share the same type of dwellings and to conform to certain lifestyles. But within that common context they want to identify themselves as different from their neighbors. Individual preferences are very important and can only be taken care of on an individual basis. In the Old Model of housing provision, users’ needs are translated into uniform floor plan and therefore cannot recognize individual differences. It seeks the ideal prototype to be designed on the basis of scientific user needs survey.” (Habraken, 2002, p.9) In the old model, changes and transformations by end users are viewed as failures of the housing project. As Habraken put it, “housing projects and neighborhoods must grow and develop over time. There is no such thing as an instant environment. What is good today is insufficient tomorrow.” (Habraken, 2002, p.9) TOWARDS A NEW MODEL FOR GOVERNMENTAL HOUSING PROJECTS IN KUWAIT

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A new model for governmental housing projects is needed. The new model should recognize modifications and changes made by housing occupants as a positive contribution to the process of housing. People should be viewed as active participants in the efforts to solve the housing problem. As Habraken put it, “in this model both professionals and non professionals can have a place. In some cases users can do the job better, in others professionals must do it.” (Habraken, 2002, p.9) There are many new approaches that benefit the development of a new model for governmental housing in Kuwait. Habraken suggests a new model that facilitates the production of housing using different Levels of Control. (Habraken, 2002, p.11) While some of the strategies suggested by the model are currently in use in Kuwait, other strategies should be introduced and utilized. For example, while sites-and-services supported by loan is available in Kuwait, core housing, systems and walls, and support/infill approaches are not currently applied. They should be considered as valid housing provision strategies and be utilized in some of the future projects of the government.

Gann suggests “the use of new technology to provide flexibility in housing with the goal of increasing choice for residents.” (Gann, 1999, p. 1) He proposes technologies that support industrialized processes for housing construction, make construction sites more mechanized, and use pre-assembled components. The use of standardized components does not necessarily result in a uniform architecture. The adoption of open-building concepts delivers wider choice to residents through using industrialized component parts.

New re-engineering skills are required to develop new ways of working with customers

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and end-users, defining value from a user perspective and identifying the best means for delivery.

CONCLUSIONS User modifications of governmental housing projects in Kuwait are likely to continue as long as its benefits outweigh its cost. The modified units have accommodated the dwellers needs and aspirations better than the original design of the units. They can be viewed as collective efforts to express individuality and uniqueness. Until users’ sociocultural needs, aspirations and capabilities are recognized, they are going to adapt their houses to express their identity and individuality. It is not only an expression of dissatisfaction with the product but also a resentment to a process that does not recognize their existence.

Blenkus argues that “most of build stock dates from the period of positivism and narrow minded belief in progress. On the other hand, more and more our life-style recognises personal individualism and tends to negate any kind of overall ideology. The dualism of monotonous living cells and free-minded personalities tenses the relation between the user and his habitat.� (Blenkus, 2002, p. 142) The attitude of the authority should perceive positively these modification activities and orient them in the right direction. Authoritarian attitudes will not stop this activity; it will only make it more difficult and expensive to perform. Governments should play a more positive role as enablers by legislating modifications and allowing future modifications to occur as a natural building activities, as long as they are carried out within acceptable standards and not represent a hazard to residents. For example, the PAHW in Kuwait has adopted a new strategy to utilize this phenomenon positively and accommodate the needs and

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aspirations of the citizens by engaging them in the process of finishing their dwellings. A new initiative was proposed to the public and 66% of the respondents were in favor of delivering skeleton-only units that can be finished according to the requirements of the end user.

Governments all over the world will continue to produce governmental housing units. It is recommended that new projects should take into considerations the possibility of end user modifications of units. End user participation activities can take place from the early stages of planning, design and construction stages, to the finishing stages.

Currently the government is interested in user participation in the finishing stages and the selection of finishing materials. The author of this paper recommends the expansion of this participation to include planning and design of neighborhoods and units.

More important is the change in the attitudes of decision makers and housing officials. Existing housing strategies and practices are reproducing the same mistakes of the past and prohibiting the adoption of new approaches towards housing. Housing should be viewed as a continuous process of change and modifications to satisfy the changing needs and aspirations of end users. Change should be viewed as the only constant fact in the housing equation.

Post occupancy evaluation of governmental housing projects should be a regular activity and should feed-forward the design of new projects. Existing housing strategies should be reviewed in the light of in-depth studies of success and failures of past projects.

There is a lot to be learned from studying user modifications and alterations of a given housing designed by professionals and economists.

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“No thoughts directed towards a better future can be fruitful unless they couple confidence in human nature with a full exploitation of all useful means.�

(Habraken, 1972, p92) This study points out to the inappropriateness of governmental housing projects and their failure to respond to users needs due to the lack of participation of end users in the design and production units. The problem has two complementing sides. First it reflects dissatisfaction with the produced government housing units, and second it consumes economic resources building materials, labor and time. The application of these changes and modifications reflect the lack of satisfaction of Kuwaitis with governmental housing units. Also the resulting environment lacks identity and coherence due to inconsistency of these modifications.

Modifications and changes made by end users of governmental housing units in Kuwait are expressions of social and cultural needs. They express dissatisfaction of end users and reflect major differences between the government and people points of view regarding housing needs and images. They illustrate that people are interested in participating in the design and construction of their houses and that if they are provided with this opportunity, time and cost will be saved instead of the fear that this might delay the process of construction.

It was recommended by other researchers “that new projects should take into consideration the possibility of future transformation activity from the early planning and design stages. Housing should be seen as a process of constant transformation and endless variation. There is certainly a lot to be learned by looking at user transformation

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as it unfolds in a continuing open-ended process of unexpected developments.” (Salama, 1998, p.32) This study represents a different case of user modifications of governmental housing. While most of the studies conducted in this field used developing countries; such as Mexico, Bangladesh, Egypt, Ghana, India and Zimbabwe, as case studies, this study used governmental housing in an oil rich country as a case study. While there are obvious differences between the two contexts, there are many commonalities of the way people interact and control their built environment. As Habaraken put it, “to use built form is to exercise some control, and to control is to transform. There is thus no absolute distinction between those who create and those who use.” (Habraken, 1998, p.7) The results of this study should not be generalized to other contexts. They represent a context where people exercise their right to control and transform their living environment.

Future research should compare these results with other similar environments.

REFERENCES BLENKUS, M. (2002). User Interface in Housing design, International Journal for Housing Science 26 (2), pp. 141-148.

GANN, D. (1999). Flexibility and Choice in Housing. The Policy Press, Bristol, UK. GARROD G., TIPPLE, G. AND MASTERS G. (2000) An assessment of the decision to extend government-built houses in developing countries, Urban Studies, 37 (9): 1605-17.

HABRAKEN N. (1972) Supports: An Alternative to Mass Housing. The Architectural Press, London.

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HABRAKEN, N. (1998) The Structure of the Ordinary, Form and Control in the Built Environment, Jonathan Teicher, Editor. Cambridge, MIT Press.

HABRAKEN, N. (2002) The Uses of Levels, Open House International 27 (2) pp.

9-19.

KHATTAB, O. & AL-MUMIN, A. (2000) The Evolution of Public Housing Policies in Kuwait from 1960’s to 1990’s, Housing Science 24 (4) pp. 353-360.

MURPHY, A., FINSTEN L., MORRIS E., PETTIT S. & WINTER, M. (1997) Household Adaptations to Government Housing Designs in Oaxaca, Mexico, Housing and Society 24 (2) pp. 1-21.

RAMADAN, M. (2004) Kuwait Institute for Scientific Research housing study. Al Rai Al-Am, (112895) p. 4.

SALAMA, R. (1998) Understanding Public Housing Transformations in Egypt, Open House International 23 (1) pp. 32-40.

SHIFERAW, D. (1998) Self-initiated transformations of public-provided dwellings in Addis Ababa, Ethiopia, Cities 15 (6) pp. 437-448.

TIPPLE, G. (2000) Extending themselves: user-initiated transformation of government-built housing in developing countries. Liverpool: Liverpool University Press.

TIPPLE, G. (1996) Housing extensions as sustainable development, Habitat International 20 (3) pp. 367-376.

TURNER, J. (1976) Housing by people: Towards Autonomy in Building Environments. Pantheon Books, New York; Marion Boyers, London.

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FIGURES

Figure 1. Different styles of early governmental housing projects in Kuwait

Figure 2. Typical governmental housing neighborhood planning

Figure 3. Public housing selection process 20

Figure 4. Typical design of governmental units Reasons behind changes

7%

7% functional form both 86%

Figure 5. Reasons for making modification

Exterior modifications

Interior modifications

Figure 6. Types of modifications of units

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Minor Modifications

Major Modifications

Modified Houses

Wasted construction material

Figure 7. Modifications of units Expence of changes and modification

22%

27%

1000-5000 KD 5000-10000 KD 10000-20000 KD

7%

20000-30000 KD 22%

22%

Figure 8. Cost of modifications

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30000-40000 KD

The materials that are changed

7% discarded sold 52%

41%

Figure 9. Materials reuse

Begin

End

Use

Time & Cost

Figure 10. Model of modifications of units

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reused