CHAPTER 5

DELHI DEVELOPMENT AUTHORITY

5.1 Delhi- The Historical Perspective

Delhi, as per historical records, was reigned by 7 (seven) different
dynasties and was built and rebuilt to suit the demands of its rulers. The
7 Cities, as per the Archives, were:

• Kila Rai Pithora built by Prithvi Raj Chauhan

• Siri Fort, built by Alauddin Khilji
• Tughluqabad, built by Ghiyasuddin Tughluq
• Jahanapanah, built by Muhammad bin Tughluq
• Kotla Firoz Shah, built by Firoz Shah Tughluq
• Dinpanah built by Humayun
• Shahjahanabad, built by Shah Jahan

The last Mughal Emperor, who ruled Delhi was Bahadur Shah Zafar–
II, who was exiled to Rangoon.

Delhi again came into limelight in 1911 when the Capital of British
India was moved to Delhi from Calcutta for strategic reasons. The British
Architects, Lutyens and Becker planned the Capital of British India by
planning the Viceroy’s residence, presently the Rashtrapati Bhawan, the
Kingsway, presently the Rajpath, the Secretariat, Connaught Place, etc.

In 1947, after independence, Delhi witnessed world’s the largest

human migration that followed the partition of India and Pakistan. A
large number of refugees moved in to Delhi and thus increased the city’s
population from 7 lakh to 17 lakh by 1951. Hundreds of settlements
mushroomed all over the City in a haphazard manner. Even the monuments

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and gardens became transit camps for the people fleeing from Pakistan.
The disorderly condition led to scarcity of accommodation resulting in
indiscriminate construction of colonies and growth of slums.

5.2 DDA – The Genesis

In order to stop this haphazard growth and plan systematic
development of Delhi, the Central Government appointed a Committee
in 1950 under the chairmanship of Shri G. D. Birla. The Committee
recommended the establishment of a single Planning & Controlling
Authority for all urban areas of Delhi. As a result, Delhi Development
[Provisional] Authority was constituted with the promulgation of Delhi
[Control of Building Operations] Ordinance, 1955. The present status
of Delhi Development Authority was acquired on 27th December, 1957
through the Delhi Development Act, 1957. DDA was formed with the
following mandate “To acquire and develop land on large scale basis; to
formulate plans [Master Plan] and develop Delhi in a manner to provide shelter,
amenities and facilities to the existing population and make provision for future
growth; to carry out building, engineering or any other allied activities so as to
provide services required for smooth and social living.”

As per this mandate the first Master Plan of Delhi was formulated
in 1962 with perspective up to 1982. A significantly improved plan was
formulated in 1990, this time with the perspective up to 2001. During the
new Millennium, DDA set its goals afresh with Master Plan Delhi, 2021.

5.3 Performance of DDA

During the last 53 years of its working, DDA has done work by way of
providing housing facilities to almost half of the population of Delhi. This
has been possible through construction and allotment of 3,11,879 houses,

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facilitating land allotment to 878 Cooperative Societies, 126 House Building
Societies, 55169 Residential Plots under Rohini Residential Scheme and
2.40 lakh DUs for rehabilitation of slum dwellers. DDA claims, through
various published documents, that in case it is envisaged that 5 people
live in one house the half of the population of Delhi lives in houses either
constructed by DDA or facilitated by it through the above given modes.
Similarly, it has developed commercial establishments numbering more
than 600. 22 industrial areas, vast greens on more than 4500 hectares of
land, 14 sports complexes of international standards etc. As per statistics,
Delhites directly or indirectly come in contact with DDA either as allottees
or as users of DDA facilities. The ambit of its functioning and services
entails a very huge public interface. An average of 600 people visit DDA’s
main office on working days.

The overall performance of DDA vis-à-vis its mandate was evaluated

in terms of the quantum of planning and ensuring a planned City, with
convenience by a survey of Earnest & Young through Readers Digest
in 2007. As per this survey Delhi is considered one of the most planned
metros of the country with highest percentage of greens, which is 17%, as
compared to any other capital city in the whole of Asia. This development
has been possible despite the fact that the population of Delhi grew as per
census, by more than one lakh every year and also added around 4 lakh
migrants, who came in search of avenues of employment, education, etc.
to Delhi. The city has been able to sustain the pressures of such population
explosion and has also be able to modernize itself in a way that it was able to
show-case itself. DDA’s performance evaluation as per newspaper reports
studied for the period 2008 to 2010 has not been very encouraging. The
reports carried negative stories highlighting small incidents or individual
cases and twisting facts beyond imaginable proportions.

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5.4 Public Relations in Delhi Development Authority
Like in most of PSUs, Public Relations at Delhi Development Authority
is seen as a medium between the organization and its clientele which
makes use of various modes of communication to reach the stakeholders.
The basic perception about Public Relation is that it should project positive
image and try to whitewash inefficiency or inadequacy in the functioning
of the Organization.

PR set up in DDA
The Public Relations Department has a total strength of 60 which is
divided into various departments such as (i) PR & Publicity (ii) Library (iii)
Photo Unit (iv) Reception (v) Counselling Services. These departments
are managed by employees from general administrative cadres of DDA
except for few posts manned by professionals like Commissioner (PR),
Director (PR), Library Officer, Photo Officer and Deputy Director (PR)
& Deputy Director (Publicity). The lower ranks after Deputy Directors/
Photo Officer/ Library Officer are managed by non-experts from general
cadre of DDA and are thus shifted / transferred every two or three years as
per rotation transfer policy followed in DDA. There is thus no continuity
on these posts.

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 Function of PR Department
Public Relations of DDA is responsible for following functions:

1. Paid & Unpaid Publicity

2. Media Relations

3. Managing Public Interface

Paid and Unpaid Publicity

Paid publicity in DDA is by way of releasing advertisements. A
study of the advertisements for the period 2007-2010 revealed that all
advertisements were issued while announcing sale of plots or announcing
a housing scheme, etc. No advertisements for promotional purpose or for
general awareness were displayed excepting that in December, 2007 DDA
released promotional / informative advertisements to mark its Golden
Jubilee Celebrations. These advertisements highlighted various aspects
of functioning of DDA in a series and also contained data of the work
done for the last 50 years. Excepting for these short term promotional
advertisements, no other advertisements for information dissemination or
awareness had been released during the period which was scrutinized.

The unpaid publicity has been by way of issuing handouts or arranging

press conferences, bringing out publications which are not priced and
are circulated free. Brochures of new projects are also published and
circulated at the time of either Foundation Stone Laying Ceremony or the
concerned occasion. During the period 2007-2010 about 42 press handouts
were issued and 3 press conferences held.

Media Relations
There is no defined pattern of media interaction. As DDA is a separate

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beat in most newspapers, media personnel through the DDA officers try to
collect information. The PR Deptt. tries to provide whatever information
they can collect officially or unofficially but there is no regular system as
there are no defined channels of internal communication. No first hand
information is provided to media by organizing trips, showing projects,
etc. Press Handouts and Conferences are occasion based and issued/
held at the behest of seniors. No proactive interactions are encouraged.
Thus media reports are usually either corridor news or news as per the
presumption or interpretation of different categories of employees. Media
is viewed with suspicion and facts are seldom made available.

Managing Public Interface and Delivery of Services

For managing public interface, the PR Deptt. is responsible for
reception, which is manned by facilitation officers, who issue passes for
entry to the premises, Counsellors, who advise people on documentation
and other calculations etc and thirdly by Receipt and Dispatch Clerks,
who receive letters from people who visit DDA or dispatch letters.

All these three facets of the functioning of PR are being administratively

controlled by the Head of the Department of Public Relations i.e.
Commissioner [PR].

An analysis of the functions of the PR Deptt. shows that it does not

have a defined role or role profile of officers manning the department.
The work is done as per instructions of management or as demanded by
the situation with no proactive initiative. Even within the PR Deptt. all
departments such as Reception, Diary and Dispatch and Media Relations
Advertising are working in isolation and there is no communication even
within the various departments of PR. The approach of the employees

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manning public interface or of the PR officers is not very professional
and is bureaucratic in handling customers and work is treated as a matter
of routine without any sensitivity. The process to source information
by PR Deptt. is very cumbersome as there are no defined channels. As
a result, PR is caught unawares whenever there is news. The Reception
staff, excepting for routine handling i.e. receipt or dispatch of the letters,
making entry passes etc., do not show concern for customers nor is there
any provision of training which can ensure good delivery of services.
There is no trained staff and any employee can be transferred to these
posts from general cadre.

It can thus be concluded that the overall functioning of the PR

Deptt. has been like a typical non-professional government body. There
was no PR strategy or no PR exercise which could ensure or focus on
reaching the message to customers in a proactive manner. No system for
collecting feedback or evaluating feedback or suggesting management
regarding the needs and aspirations of the customers was found to be
in place. The approach of the Management and of PR appeared to be of
least concern about the image and any communication or action to this
effect was a matter of routine. The perceptions which were generated
by such communications were only incidental and no effort was made
to correct them or in place them rightly. It had no proactive role or no
strategy to manage perceptions or to evaluate perceptions which could
lead to identity or image management of the organization.

5.5. Communication Patterns in Delhi Development Authority

Communication Patterns of DDA were studied. The DDA has
basically the following modes of communication for both internal and
external communications:

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 1. House Journal titled ‘Delhi Vikas Varta’ - [Quarterly]

2. Newsletters such as ‘Biodiversity Newsletter’ and ‘Sports

Newsletter’- [Quarterly]

3. Press Handouts & Press Conferences

4. Internal Circulars

5. Website and Touch-Screen Kiosks

House Journal
The House Journal ‘Delhi Vikas Varta’ published quarterly is not a
pure house journal as apart from news about events of DDA, it also carries
articles on Urban Development, Green Development, etc. Its circulation is
limited to Development Authorities and senior officers in the Government.
There is no system of distribution within the organization even though
some copies are distributed to senior officers like Chief Engineers. The
contents of the Journal are not of much interest for internal information
seekers.

Newsletters
Apart from the House Journal DDA also publishes two Newsletters
- one on ‘Biodiversity Parks’ and the second on ‘Sports’ i.e., sports
infrastructure and sports facilities being provided by DDA. These
newsletters are circulated to the concerned readers, such as Biodiversity
newsletter is circulated to the students of Botany and also to organizations
connected with preservation of ecosystems of Delhi. The Sports newsletter
is sent to all DDA Sports Complexes and circulated to schools, etc. None of
these publications are circulated internally to the employees at the middle
or lower level even though it reaches the employees at senior level.

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 Press Handouts & Press Conferences
The DDA from time to time, issues press handouts. After studying press
handouts for the year 2008-2010 it was found that all communications are
routine handouts issued to the press highlighting some events, function or
issue or policy. At times, if there is news value these handouts are covered
extensively but in case these are not timely or do not have sufficient news
value, are not covered. Press conferences are held very rarely by DDA.
During the year 2008-2010, which was studied, it was observed that only
two press conferences were held by DDA.

Internal Circulars
Regarding policies and guidelines, internal circulars are issued which
go to all Departments but seldom travel to the lower level especially to
those levels which are not connected with the subject. As a result, most
employees of DDA come to know about policies and programmes through
only media or through internal sources. These circulars are also not
manualized or updated to form policy guidelines. These are not regularly
uploaded on the Website with the result that concerned public has to refer
to a number of circulars to arrive at the explicit applicable policy for their
transaction.

Website and Touch-Screen Kiosks

DDA has a Website which gives details about DDA but it is not
regularly updated with the result that very few people refer to it as a
source of information. There are about six Touch Screen Kiosks in DDA
Head Office at Vikas Sadan and these are linked to the DDA Website. Also,
they are either non-functional or are not referred to by general public.
During August 2009 only 2 were found functional against 6.

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 An analysis of all these modes of communication reveals that there is
no organized channel / pattern for internal communication whereby all
information regarding policies and programmes reach all employees of the
organization and to the general public. The employees of the organization
usually draw their information from newspapers or from indirect sources
and same is true of the Public Relations Department. No policy circular
or guidelines is marked to the Public Relations Department. Only when
it is specifically asked to issue a press release the circular is marked to
the Department. Thus the PR Deptt.’s main source of information is also
the media.

As far as external communication is concerned, it has been observed

by studying press releases for the period that most communications are
not timely. Even the rebuttals are issued quite late resulting in wrong
message having reached and settled with the masses. The delayed
rebuttals are hardly carried out by the newspapers.

Therefore, the Communication Patterns in DDA were found to be in

improvement both in internal as well as external communication.

5.6 Media Perception of DDA

As discussed with DDA officials no research, so far, has been done
for image or perception study of DDA excepting the one done in the year
2004 by M/s Perfect Relations, a PR agency engaged by DDA.

This study was conducted over a period of 14 days starting from

September 16, 2004 to September 29, 2004. A sample of respondents
numbering about 50 was taken for the study from DDA Office at Vikas
Sadan and some residential areas including Vasant Kunj, Saket, Dwarka,
Janakpuri, Vikas Puri, Dilshad Garden, Siri Fort Sports Complex, Safdar
Jung Enclave, DDA Park at Lado Sarai and Nehru Park.

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 The main findings of the study were that :

1. Majority of the Respondents associated DDA with housing only

and were not aware of other areas of development undertaken by
DDA.

2. Majority of the Respondents, more than 70%, were not satisfied

with DDA’s overall qualities of services or public interface with
the customers as they felt that interacting with DDA was not a
pleasant experience.

3. DDA needed to improve the delivery of its services.

4. DDA was associated with lethargy and red-tapism in its various

forms.

5. More than 90% Respondents believed that DDA is a very corrupt

organization and it is only the speed money which can get the
work done.

The study had concluded that there is a gap between the work done
and the work perceived to have been done by DDA.

Limitations of the Study

The study was not a scientific one and suffered due to lack of
representative sample size, limited components of image being studied,
etc.

Interventions Undertaken by DDA

Based on the study certain measures were recommended. The
interventions /measures were aimed to reduce delays and bring in
transparency, objectivity and accountability into the system. These were

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broadly focused into the areas of: (a) Information dissemination and
facilitation (b) Systems improvement (c) Redressal of Grievances, and (d)
Improve delivery systems.

5.7 Media Perception of DDA [A Case Study]

As is clear, organisational perception, which is sum total of many
factors like image, identity and work components is the first impression
about an organization which may be true or not but if allowed to continue it
becomes an opinion, further leading to image and determines the behavior
of stakeholders and media. It also shapes the opinion of opinion makers
which in turn adds to the perception and trends in media reporting, thus
forming a vicious circle.

Perception of an organization gets generated by various interactions

of stakeholders such as:

1. Actual work done and timely communicated through various

modes of communication.

2. Inadequate work done leading to public out cry.

3. Proper delivery of services or improper services.

4. Proper Public Interface and Level of Consumer Satisfaction.

All the components of interaction need to be managed in a proper

and balanced fashion and if there is deficiency or mismanagement of
any of the components, the perceptions go haywire leading to reporting
and media hype quite contrary to the reality. A study was done of crisis
situation in DDA and the trends of media reporting based on popular
perceptions.

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 Methodology
After doing the review of literature, wherein the components of
perception have been researched media perception mapping was done by
studying the crisis situation faced by DDA during “DDA Housing Scheme,
2008” by studying and analyzing the news paper reports. A total of 300
clippings published from 16th August, 2008 to 30th October, 2009 that is
during the floating of the scheme and its final clearance given by various
investigating agencies were analysed. Trends in reporting, by linking
them to the information disseminated by DDA through press releases,
conferences and one to one interactions, were followed and analysed. The
newspapers which were followed were (1) Times of India (2) Hindustan
Times (3) Dainik Jagran (4) Nav Bharat Times (5) Hindustan Hindi (6)
Punjab Kesari (7) Hindu, and (8) Pioneer.

Details of the Scheme

Delhi Development Authority announced a housing scheme on 16th
of August, 2008. As per the advertisement displayed for launching the
scheme, the scheme had an USP as “affordable housing” as the houses
offered under the scheme were about 40 percent less in cost as compared to
the market rate of the flats in the city. For launching the scheme DDA held
a press briefing on 14th August, 2008. The announcement was reported
in all the newspapers and all newspapers projected the difference in
cost in the market rate and DDA rate. All banks in the city announced
schemes towards financing of registration money, which was Rs. 1.50 lakh
per application. Due to the low cost of the flats, it was a gamble for any
one as one had to pay Rs.5000/- to get a loan of Rs.1.50 lakh towards the
registration money and later could sell the house at a premium. As per
DDA records, about six lakh applications were received for 5238 flats.

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 In the conditions of allotment contained in the brochure provided
by DDA along with application form given to applicants, DDA had
mentioned that the scrutiny for authenticity of the documents submitted
with the application will be done only for successful applicants as it was
not possible for it to scrutinize all the applications before the draw. After
the announcement of the scheme, reports of middlemen manipulating
and applying on behalf of Scheduled Castes and Scheduled Tribes i.e.
reserve category, which had a priority reservation of 17%, appeared in
various newspapers. This, as per reports was to corner the flats which
could be allotted to the Scheduled Castes and Scheduled Tribes as their
probability of getting the flats, due to reservation, was high. As a reaction
to the reports, DDA communicated through advertisements that no one
should go to a middleman as the draw would be totally transparent. The
draw was held on 16th of December, 2008 and results were displayed on
the Website and also communicated through advertisements in National
Dailies. Within 15 days of the draw, there were allegations of rigging of
the draw in the media. Allegations of double allotments, allegations of
rigging of the draw and allotting flats to SC & ST applicants, who were
non-existent or not aware of such an application having been submitted
in their name, were continuously reported in all newspapers from 22nd
December, 2008 to 3rd January 2009. All papers alleged a very big scam.
Calculations of the scam, calculations of the money involved, news of
property deals, allegations on duplicate numbers, etc. kept on appearing
continuously in almost all newspapers. DDA did not communicate
anything till 3rd of January, 2009.

DDA through a press conference on 4th January, 2009 rebutted the

issue. All allegations leveled through newspapers were explained point
by point. A brief of the process of the draw, point by point explanation

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of various allegations given and as per records in the PR Deptt. of DDA
were reported live on many channels but with a slant. The reporting
in the newspapers was also slanted and not positive. It appeared that
no newspaper believed what DDA communicated, and so kept on
reporting various spiced stories about the alleged scam along with DDA
clarifications.

As per records in DDA, an enquiry was ordered by the Government

and the software of the draw was sent for testing. The enquiry was held
by Economic Offences Wing and the software was checked by NIC and
CDAC. A public interest litigation was also filed. DDA remained in
the news during the pendency of enquiry and stories repeating earlier
allegations and reporting involvement of different officers and people
kept on being published. Though DDA during this period, kept on
communicating with its stakeholders with clarifications etc., but it did
not have the desired effect.

The report from the agency entrusted with the checking of the software
and the Economic Offences Wing, was received in October, 2009; the High
Court also cleared the draw setting aside all the allegation and DDA
was given a clean chit. The news about no irregularity was hardly given
coverage and reports were slanted like “DDA too given a clean chit”.

Analysis
Due to the prevailing image and lack of proper / timely communication,
perceptions were generated on assumptions leading to misgivings about
the draw in a small way right after the results of draw were displayed
and made known. These multiplied since they were not checked on time
and thus became a very strong belief / thought with all stakeholders. Any

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clarification at a later date i.e. after a lapse of 15 days on 3rd January, 2010,
when DDA held a press conference, did not have the desired results and
were reported with disbelief. The prevailing perceptions were reinforced
when the key-personnel in the Government, despite denials from DDA,
ordered conducting an enquiry. The opposition also started demanding
resignation of the Minister and the draw remained in the news and even
in Parliament for quite some time evoking interest and generating /
reinforcing perceptions. So strong was the opinion formed that the reality
when communicated had no effect - firstly because of the prevailing
perception and secondly due to delayed communication by DDA. DDA
did not communicate till 3rd January thereby allowing allegations to settle
and reinforce the already prevailing perceptions.

Therefore, it can be concluded that media in DDA is led by the image

of the organization and prevailing perceptions. Untimely and inadequate
communication instead of correcting the perception reinforce the same.
Media reports on any issue including Housing Scheme were either
slanted or hostile and every communication from DDA was viewed with
suspicion.

Conclusion
An organization’s image depends on a number of factors such as the
work done, the product which it brings out, the services which it renders,
the social responsibility which it takes and the confidence it is able to
generate of the stakeholders through work done as per their needs and
aspirations. A continuous assessment of the work done, the general
perceptions and carrying out changes, if necessary, is required to maintain
a positive perception for the organization. In case of crisis, which can be
for any reason including an organization’s internal or external factors,

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the most important parameter on which it will be adjudged is as to how
it rebounds, how sensitively and emphatically it deals with its victims.
The way media rates the performance of an organization on the above
parameters and in critical times becomes an important benchmark of how
it is likely to be perceived by various stakeholders.

The conclusion which can be drawn after analyzing media reports is

that media, led by perceptions and reinforced by competitiveness amongst
the media to sell more news based on popular public opinion perceived a
scam, sold its news, further reinforcing the perceptions. The basic reason
for it has been that the perception of DDA right from beginning of the
draw has not been very positive so the stakeholders listened to the media
and newspapers and paid no heed to DDA clarifications. The situation
was aggravated and perceptions turned into conviction and belief when
an enquiry was ordered and software seized for testing. Secondly the
communication from DDA was not timely thereby de-establishing
the communication component of perception formation. It created an
imbalance as media was feeding the stakeholders but DDA remained
mum till 3rd January, 2009.

Therefore, perceptions if not linked to reality need to be checked in

time through effective communication, strategies and confidence building
measures otherwise the perceptions become sentiments and convictions
which when hard like solids, are difficult to change. As the behavior
of stakeholders and acceptance of the policies and programmes of any
organization depend on perceptions they need to be managed through
effective and timely communication so that media reporting can be tuned
with reality instead of false perceptions.

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