Professional Documents
Culture Documents
Presented by
Prof.(Dr.) Neelima Risbud Co-ordinator In-charge, National Resource Centre on Urban Poverty
(Est. by Ministry of Housing & Urban Poverty Alleviation, GOI)
Context .
Major initiative in contemporary urban reforms is JNNURM, aimed towards inclusive city development through provision of basic services & affordable housing to the urban poor through its sub-components of BSUP & IHSDP. Recently, the GOI announced Rajiv Awas Yojna to make Indian cities slum-free by according property rights, providing basic amenities and social infrastructure facilities in slums and low income settlements adopting a 'whole city' approach. Slum settlements differ substantially from each other in terms of tenure security ,environmental deficiencies, shelter conditions, income levels and affordability. The definition of slums needs brainstorming as the definition is quite subjective and need to be supported by parameters of substandardness. The RAY subsidies, therefore needs to be rationalized for effective & sustainable targeting and while according property rights & providing urban infrastructure in slums. One possible approach can be , define, categorize, prioritize & grade slums using parameter i.e. tenure insecurity, infrastructure deficiencies, housing requirements/improvements and planning inputs to workout different packages based on nature of deficiencies and interventions required.
In-site Redevelopment
Relocation
Review & Changes in Master Plan & Framing of Appropriate Regulations to facilitate slum-free cities
Context .
Most of Indias urban poor live in settlements, commonly known as slums Designated slum areas include settlements with varying range of legality and degree of deficiency of services. Slums need to be identified, classified and prioritised on the basis of tangible parameters. This is important So that improvement packages are appropriately designed and subsidies are correctly targeted .
Defining Slums
Slum areas were first notified under Section 3 (1) under SLUM AREAS (IMPROVEMENT AND CLEARANCE) ACT 1956 enacted in Delhi
Any area unfit for human habitation by reason of- dilapidation, Overcrowding, faulty arrangement and design of such buildings, narrowness or faulty arrangement of streets, lack of ventilation, light or sanitation facilities, or any combination of above factors, are detrimental to safety, health or morals,
The Definition does not provide any measurable parameters for area unfit for human habitation, and declare it as slum
UN Habitat define slum as as a group of individuals living under the same roof that lack one or more (in some cities, two or more) of the following conditions: i. ii. iii. iv. v. vi. security of tenure, structural quality and durability of dwellings, access to safe water, access to sanitation facilities and sufficient living area.
Census of India
The Census of India, has adopted the definition of slums specified/declared slums through State/UT or local government under any act. In additions it also consider the following area as slum : A compact area of at least 300 population or about 60-70 households of poorly built congested tenements, in unhygienic environment usually with inadequate infrastructure and lacking in proper sanitary and drinking water facilities.
Comparison of Parameters used by different agencies while defining any area slums
Definitions provided by: lack of ventilation, light or sanitation Access to Safe Drinking Water Structural Quality Over crowding Living Area Security of Tenure
The security of tenure is not considered as important parameter while declaring any area as slum by Slum Act, Census or NSSO. Security of Tenure empowers and enables entitlement of formal access to basic services .
Cities
Hyderabad Kakinada
Urban Population
FORMS OF TENURE
Sl.No 1 2 3 FORMS OF TENURE Freehold (Individual) Delayed Freehold (Individual) Registered Leasehold (individual or community based) Co-operative ownership Public Rental Private Rental Shared equity Community based tenure Ownership in Perpetuity Conditional Ownership. Title is granted on completion of payments or when developments have been completed. The right to hold or use property for a fixed period at a given price., without transfer of ownership, on the basis of a lease contract. A leasehold is a fixed asset. The Ownership for specified period. Ownership is vested in the co-operative or group of which residents are co-owner Rental Occupation of publicly owned land or house Rental of privately owned land or property Combination of delayed freehold and rental in which residents purchase a stake in their property (often 50%) and pay rent on the remainder to the other stakeholder This can take several forms from rental by a community of generally private land for an agreed period. At the end of the period, the community an extension may be agreed of the community is given notice to leave within a agreed period. Other options include Community Area Permits, Community Lease, or community ownership. 4 main categories within Islamic Societies Waqf, Mulk, Min Tassuruf or usufruct rights, is increasingly common whilst musha/mushtarak, is collective/tribal ownership. Squatting on public land, prone to eviction as there is no security of tenure but government may relocate. Squatting on privateland, prone to forced eviction, the land-owner reserve the land rights. Temporary Encroachment, government/private agencies keep removing them time to time
CHARACTERISTICS
4 5 6 7 8
9 10
11 12
Slums in Delhi
In Delhi the Commissioner of MCD is the Competent Authority to notify or de-notify slums. The powers are further delegated to the Director (TP) of the Slum & JJ Department. Last notification by Slum & JJ Department was done on 28 April 1994 .
In the Walled City and its extension about one lakh Katras/properties have been identified as Slum. Private Property (97% of total property) i.e. about 97000 katras/properties Evacuee property (3%) i.e. about 3000 katras/properties which are under the Slum and JJ Department. Last de-notification by Slum & JJ Department was done in 2004. Some portions of Paharganj were de-notified.
Notified Slums
JJ Cluster
Urban Village
Unauthorise d Colony
Homeless
Katras in Old Delhi (Ward No. VIII) Freehold Status 360 years old settlement, area 100 acres with population of 75000 people, 5000 properties in the ward with large number of families (at times 15 to 20 families) living in one property.
People living in these katras of the walled city do not want to move out of thier present accomodation despite all the difficulties.
Details of Property No. 2785: (Private Free hold property)360 years old
Area of the property is 549 sq m. with houses 18 tenant families . 2 storied high structure in dilapidated state, structurally unsafe to stay, small room sizes with no natural light and ventilation. Leakage from the roof is a problem leading to dampness in the house. The property has only four toilets (which are pour flush latrines) to cater to the needs of 108 people.
38 unauthorized colonies which were notified as Slum in the year 1957 but at present only 3 such colonies are notified as Slum while the remaining were de-notified in 1987 and 1995 Street width varies from 0.8 m to 2m No natural light and ventilation Tenants belong to lower income and owners are middle or higher income households
Jhuggi-jhompri settlements are not considered as Slums and are resettled under centrally sponsored scheme.
Madhya Pradesh
Slums identification in M. P.
Slum Declaration is done by the Municipality under the [The M.P. Slum Act, [1976]. Amendment proposed in Directions for declaring an area as slum under Sub-Section 418-A of the M.P. Municipal Corp. Act, 1956, DUDA has issued directions to ULBs in 2009 for declaring an area as slum. Non-transferable PATTA ( 30 yr. Lease) was Granted to encroachers on govt. land by Revenue Department under the Patta Act 1984 to the landless urban poor An amendment to the Patta Act in 2003 allows pattas to be mortgaged for housing loans from banks, registered housing societies or government organizations. Cut off dates have been advanced to 31 may 1998, 31 May 2003 and 31 December 2007 to grant Pattas
Huge difference in slum population quoted by Census 2001 & Indore Municipal Corporation. IDP 2021 quoted slum population as 30% of the citys population.
Slum typologies
Slums located in 712 Pockets across city All slums are notified vide resolution passed by Indore Municipal Corporation in 2008 Slum typology as identified by Indore Master Plan areEncroachment on Government Land Encroachment on Private Land Illegal Settlements Developed by Private Developers
Old City Slums with plots owned by slums dwellers
Eligibility criteria for slum declaration Group 1. Inadequate access to infrastructure and poor environment Group 2: Inadequate housing Group 3: Poverty Yes for at least 6 of the 11 indicators
Yes for 2.4 and any one from 2.1 to 2.3 Yes for all indicators
Group 3: Poverty
The slums of Indore are characterized by mix tenure type within a settlement. More then 70% (490) of H/Hs of CP Shekhar Nagar have patta of 30 years, followed by Bajrang Nagar (176 H/Hs), Nai Basti Pipliyao (126 H/Hs)) and Somnath ki chawl (90 H/Hs). Somnath ki Chawl, Janakpuri and Udyog Nagar have slum dwellers with freehold title.
Udyog Nagar, CP Shekhar Nagar, Bajrang Nagar, pipliyarao have good number of H/Hs i.e. 196, 174, 41 respectively with no legal rights. It is a predominant phenomena that settlements which have patta titles, have encroachments in their outer parts, people squat near these settlements in the hope to get services & benefits provided by the government.
Private land owned by slum dwellers illegal colony Incomes between 3000-10,000/month Low density (293ppha) slum. Majority of H/H have rented their houses Number of Industrial units Improved under MPUSP
Andhra Pradesh Urban Services for the Poor (2002) , DFID Funded
Project was implemented by Dept. of Municipal Administration and Urban Development (DMAUD) through 32 municipal urban local bodies (ULBs).
Land owner, Slum status Poverty Infrastructure Score Deficiency 1 2 3 1 1/1 1/3 2 2/1 2/3 3 3/1 3/2 3/3 ULB GoAP GoI Private owned Private occupied Mixed (Govt / ULB / Pvt) Others Total
1/ 2 2/2
Slum scoring 3/3 is of highest priority. Using this matrix the slums are ranked and there by priority slums for Improvement were decided. After approval of this matrix by the Council, the infrastructure development was taken up as per the priority.
In the above Matrix , Tenure Insecurity of settlements has not been considered
TN Nagar Serillingampally, Hyderabad Undeveloped slum located on lake bed. Originally construction labourcamp. Deficient in Services. Very poor community
A slum where housing provided by AP housing Corporation has been deserted by slum dwellers But the slum dwellers are mostly involved in commercial activity related to pilgrims visiting the Birla temple with their houses have shop fronts facing the walk way to the temple with the fear of losing their livelihoods about half of the slum residents are still living in their original houses leaving the housing provided by govt.
Large notified slum (80 acres) Population - 4900, Households - 980 Private land owned by slum dwellers Flooded every year due to its proximity to the sea. predominantly a fishermen community. There are 2 more non notified slums attached to this notified slum.
Yetimoga (Freehold)
One of the oldest notified slum in 28 acres with highest density ( Pop.- 8892, H/H: 1636). Surrounded bya salt creak in the north, salt pond in the south, Bay of Bengal in the east and boat building yard in the west with only a single entry & exit ways to the slum. Not much scope for improvement of Infrastructure due to irregular topography & high density building foot print. Most of the residents are either fishermen or involved in boat building and port related works for livelihoods. Private / owned by the slum dwellers.
Houses are being used for residential or commercial activities. MCGM has cancelled Vacant Land Tenures status as the original VLTs have constructed slum structures and rented them or sold them to others.
Qureshi Nagar,Kurla
(Encroachments on Land belongs to MC & State Govt. )
100 years old settlement, (Kasai wada) located in Kurla East (L Ward). Total area of about 12 hectares, with 7200 families working in nearby places or in animal fat godown. Houses are of approximately 10 x 10 or 12 x 12 size A thin drain outside the houses to carry sewage from the bathroom (nahanighar) as well as toilet the railway tracks are used for open defecation.
The extensions to houses are made whenever required, the extensions either get used by the occupier or are rented further to sub-tenants.
The 60 years old settlement,population around 50,000 with 2.7 hect. Area. The lower floor occupants do not pay rent but lease out the upper floors of their shanties. Know as place of refuge for extremely poor migrants from all over India, majority of people living here are Muslims.Water supply provided by the municipality with water meters. No sewers, just a nullah along station road, people used 8 public toilets or defecate along railway tracks. The waste water from houses flows in open channels between houses covered with slabs and at times water supply pipes pass through these same channels.
o Dwellings are 4 to 6 storied structures having framework of steel sections and walls of plywood; tin sheets; and sometimes bricks. Roofs are made up of tin sheets. o The ground storey is mostly a shop if the structure is along the road or along the lanes. Otherwise, the owner of the shanty occupies the ground floor o The upper stories are rented out to labourers or other families. Topmost stories also house public spaces like a community hall etc. The built form is an excellent example of dense vertical neighbourhood.
o A resettlement colony of people evicted from slums by the govt. in mid 70s, predominantly Muslims Butchers community. o Land owned by MAHADA, which provided the resettlement in three parts transit camps (ground + three storied temporary accommodations for people who were to be shifted, but never shifted); plots of land (where the settlers were to build their own houses) and built tenements. All settlers were tenants of MHADA and currently pay Rs. 125 as rent. o Prime Property location, sectors notified as a Slum by the Collector (as slum sites are entitled for higher floor space index) and SRA given redevelopment permission. o About 500 houses have been already bought by the developers in 3 sectors of Bharat Nagar @ of Rs. 1 crore, original occupants have been moved & the tenements were transferred into names of new persons by the developer.
Pavement Dwellers
Characteristics
Prone to Eviction, squatting on public/private land, no housing, depends public infrastructure high inadequacy of infrastructure
CONCLUSIONS
There is a need to decide on tangible parameters for identification of Slum. This is important as significant amount of subsidies are channelized into slums. Variety of tenure exists in substandard settlements and all may get included in slum for the benefit of getting free services. Insecure tenure, deficiency of services and poor quality of shelter are important parameters for .defining slum Prioritisation of slums is necessary to intervene for improvement. Insecurity of tenure is the most important parameter resulting in poor living conditions as it deprives residents to entitlements like access to basic services. Present slum legislation, census, or NSSO do not include this parameter. Slum characteristics vary according to age, location and city size and city characteristics. Slum continue to grow and get densified as such their potential to
Settlements in high risk areas: Environmentally Vulnerable Topographic conditions steep slopes (more than 30 degree slope), low lying/floodable area, area vulnerable to landslides, high tides. Land use constraints: Slums on Non-Confirming uses, settlements in areas earmarked in the Master Plan for non residential use or earmarked for large infrastructure of city-wide interest projects of public interest Land ownership: Slum Settlements on Forest land, Railway land, Defense land , airport land
Existence of trunk infrastructure: - Areas near existing spare capacity of trunk infrastructure can be given priority, since investments will be more cost effective. Settlements with illegal land-sub-divisions- where plot sizes are small(upto 50 sq. mts), there is infrastructure deficiency and community is willing for improvements in infrastructure. Such settlements can be taken up for in-situ slum up gradation. Population Density It is desirable to take up improvement of small and medium size slums with low or moderate densities. It is difficult to improve very high density /large slums. Economic potential (including land Value) on which slum is located Vacant/ underutilized lands available within 1 km public transport corridor.
Very often not all these criteria can be met, and consequently the project selection will require a process of trade-offs.
Categorization and Prioritization Matrix for Slum based on Tenure Andhra Pradesh
Sl. No Cities Name of Slum Tenure Status Land Ownership Legal Status
Notified Non-notified Notified Non-notified Non-notified Non-notified
Location
Existing Density
Community Willingness
1 2 3 4 5 6
GHMC & BPPA Public Land Private owned Waqf Board Private owned A combination of Private owned and occupied Private owned Private owned Private owned Lake Bed Private owned Public Land Public Land Private and Government owned Private owned Disputed
7 8 9 10 11 12 13 14
Freehold Freehold
Notified Notified Non-notified Non-notified Notified Non-notified Notified Notified & Non-Notified Notified Not Known
KhanametLambadiTha Freehold da TN Nagar Vimukti (Refugee Resettlement) Colony Ayodhya Nagar Dummulapeta Encroachment Encroachment Encroachment Freehold
Sanjaynagar&Sanjayna Freehold garpakkalu Yetimoga PagadallaPeta (Urban Village) Freehold Urban Village - Land belongs to Gram Panchayat
15 16
Kakinada Kakinada
> 25 15-20
Periphery Periphery
Categorization and Prioritization Matrix for Slum based on Tenure Madhya Pradesh
City Indore Indore Slum Bajrang Nagar Tenure Slum Settlements with Pattas (1998) Land Ownership Government Land Government Land Legal Status Age of Slum Notified Notified 30 40 Location Zone-1 Ward-7 Zone-4 Ward-45
Chandra Slum Settlements Prabhat with Pattas (1984) Sekhar Nagar Somnath Ki Juni Chowl Janakpuri Freehold Freehold
90 >10 >10
Zone- 9, Ward No -31 Zone No- 11, Ward 8 Zone No-7, Ward No-54
Udyog Nagar Slums in illegal colonies Nai Basti Pipliyarao Slums in illegal colonies
Mumbai Mumbai
Partly by Govt., partly Private Notified Partly Central Government, Partly State Govt. and partly Municipal Corporation Land Municipal Land N.A
Western Sub-urbs Kurla, Eastern Suburbs Govandi, Eastern Suburbs Bandra East, Western Suburbs Port Land in the Island city along waterfront
Mumbai Mumbai
Shiv Krupa Society Freehold Behrampada, Bandra East Darukhana, Reay Road Bharat Nagar, Bandra Kurla Complex Varsoava Fishing Village Vasi Naka Resettlement Colony Refugee Colony
Legal
Partly Government, Partly N.A State Government and Partly Municipal owned land
Mumbai
Leasehold (15 Days) Central Government Land (Mumbai Port Trust) Resettlement Colony MAHADA Land Legal
Mumbai
Bandra Kural Complex, Central Mumbai Western Sub-urbs near sea Anik Panjrapol, Eastern Suburbs near oil companies
Mumbai Mumbai
Freehold (Occupants Occupants own land own land) Resettlement & Rehabilitation Colony Originally owned by Private, transferred to State Government, in turn lease
Legal Legal
Encroachment Public Notified Land (Railways) Freehold Freehold Freehold Public Public Private Legal Legal Abadi Area (Lal Dora) De-notifed
> 40 Years > 30 Years > 50 Years > 40 Years >50 Years
Baljeet Nagar Freehold Private (Unauthorised Colony) (Illegal-Land Sub-Division) Night shelters(Old Delhi) Rental Public
Delhi
Legal
All Zones
Notified Slums
Income Levels
Non-Vulnerable Maintenance
Partly Vulnerable
Most Vulnerable
Improvements
Re- Development
Economic Viability
Land Ownership
Environmental Vulnerability
Infrastructure Deficiencies
Land Tenure
Community Organizations
Planning Deficiencies
Social Integration
RECOMMENDATIONS
Revision of Slum Act , define and set measurable indicators to declare any area slum, regular monitoring of development process to de-notify developed slums. Initiate dialogue to make necessary amendments in slum acts and related legislations , with greater and stronger enforcements of these acts. Clear institutional framework, set accountability, greater co-ordination and integration, defined through government procedures/legislations. Exhaustive and detailed database (including GIS enabled database) Identify, Characterize, categories and prioritize slums for need based approach based on rationalized methodology, which should be worked out in local context. Empower communities to participation in identification, planning and monitoring of slum development, form and strengthen Ward Committees or Mohalla Samities as formal and legal mechanisms to promote community participation in local development. Ensure collectives of slums dwellers, women group,SHGs for micro finance for livelihoods and economic upliftment of slum dwellers.
Characterization and prioritization for slum redevelopment. Workout different tenure options (short-term & long term, ensure lesser amalgamation/selling of properties) Measures to ensure slum development becomes integral part of town planning through specified norms/regulations Incentive FSI limit and rationalized, different for different kind of slums. Clear workout approaches of community integration and work-home relation is to ensured in redevelopment and resettlement process. Special community and work related requirements to be ensured while planning for re-settlement. Collectives of Slum dwellers to facilitate/motivate dwellers to
Establish a successful track record through (pilot phase) in a few areas before a program can consider itself to have consolidated a methodology that allows it to go to scale
Thank You