Infrastructure to house more than 2 million people is under construction in a 54-square- kilometer (21-square-mile) area of the city including the neighborhoods of Cazenga, Rangel and Sambizanga. The state has yet to fully meet a 2008 promise to build one million houses by 2012 because of slow implementation and the world economic downturn, Allan Cain, executive director of Development Workshop, said. Despite government pressure, banks are reluctant to provide mortgages because the poor lack land titles and collateral, he said.