URBAN STRATEGY IN WEST BENGAL

Nov 2010

Current situation analysis and Gap finding

Table of Contents
1. Introduction
1.1 1.2 Introduction Other urban strategy documents in India and West Bengal 1.2.1 Previous Urban Strategy/policy studies in India 1.3 Methodology 1.3.1 Meeting of the Steering Committee and Stakeholders Workshops 1.4 Chapterisation

1
2 3 3 6 6 8

2. Urbanisation and Demography

2.1 A Brief Overview 2.1.1 2.1.2 2.1.3 Relevance of the Analysis Comparison with other states Projected Population India, other states and West Bengal.

11
12 12 14 14 16 17 18 19 20 20 24 31 32 33

2.1.4 Net Migration rates: West Bengal and other states 2.2 Share of Urban Population by City size-classes 2.2.1 KMA, KUA and KMC vis a vis West Bengal as a whole 2.2.2 Urban Population Growth is slowing down 2.3 What is Urban Area? 2.3.1 Review of national norms and comparison with other states 2.4 2.5 2.6 2.7 District-wise Urban Growth Sex Ratio Occupation Structure: Workers data by districts Migration

2.7.1 2.7.2

Migration Pattern in West Bengal (2001 Census) Other features of migration in West Bengal

33 34

3. Urban Policy, Legislative and Institutional Framework

3.1 Institutional framework at the state and city level

35
37

3.1.1 Structure and functions of Urban Development Department (UDD) and Municipal Affairs Department State level 37 3.1.2 Various players in Urban Development - roles and responsibilities 3.1.3 Urban Local Bodies and Governance 41 43

3.1.4 Ward Committees, Community Development Societies: Role of civil society and its participation 44 3.2 3.3 Urban Planning and DPC and MPC related issues Organisational Development and Administrative Reforms Pujali: A self-driven Municipality 3.4 3.5 3.6 JnNURM Reform Implementation Status Capacity Building and Institutional Strengthening Issues and Recommendations 46 50 51 52 59 60

4. Regional and Urban Economic Growth

4.1 4.2 4.3 4.4 Introduction Economic Growth in West Bengal Economic Performance of State Review of Economic Policies, Initiatives and Institutions 4.4.1 4.4.2 4.4.3 4.5 Policy Initiatives PPP initiatives in West Bengal Institutions

63
64 64 65 68 68 73 75 79 79

Mapping and Analysis of Urban Economic Growth by State and Districts 4.5.1 Work Force Participation

4.5.2 4.5.3 4.5.4 4.5.5 4.6

Distribution of Work Force by Sectors District Wise Net District Domestic Product Levels of Urbanization, Industrialization and Human Development Index Competitiveness of West Bengal and Kolkata

83 90 91 91 95 96 101 101 106

Regional Linkages and Clusters and Growth Strategy 4.6.1 Identifying Large Urban Centres as Growth Drivers and Corridors

4.7

Identification of Constraints and Potentials Vision

4.8

References

5. Urban Land Use Planning & Regulations

5.0 Urban Land Use Planning in India 5.1 Urban History of West Bengal 5.1.1 5.1.2 5.1.3 5.1.4 5.2 5.3 5.4 5.5 109

108
109

The Basic Development Plan (BDP) by CMPO The Report of the National Commission on Urbanization 1988 The Kolkata Metropolitan Development Authority (KMDA) and its plans. K.M.P.C. Perspective Vision Plan 2025

109 110 111 112 116 117 118 120

Land Use Planning and Policies Urban Planning in West Bengal Major Functions of the Authorities Merits of the West Bengal System and possible improvements

5.5.1 Need for amending the Municipal Act to include Proposed Land Use Plans and powers of development control to Urban Local Bodies 120 5.5.2 Extending Building byelaws to Gram Panchayat areas which control 252 census towns in the state far outnumbering the 127 ULB towns. 120 5.6 5.7 Urban Heritage Conservation Emerging ideas and alternative models of urban planning and development. 121 122

Urban Agriculture: A new era for self-sufficiency 5.8 Debates over Urban Form, Densities, and Concentration without Congestion 5.8.1 Cities and Population Densities 5.8.2 Densities prescribed and densities on ground 5.8.3 Floor Area Ratio 5.9 5.10 5.11 Public policy for urban form in the context of housing for the urban poor New Towns versus expansion of existing towns Key issues in urban planning and development:

123 124 125 126 126 128 129 130

6. Urban Environment
6.1 Review of Environment Planning and Legislations 6.1.1 6.1.2 6.1.3 6.2 6.3 Introduction Certain Provisions in the Constitution of India Legal Instruments for Conservation of Environment

131
132 132 132 133 137 139 139 141 141 141 142 142 144 145 149 150 154

State Environmental Policy Statement - 1995 National Environment Policy 2006 6.3.1 Key Reforms

6.4

Bio-Diversity 6.4.1 6.4.2 Key functions of the Board Key Activities

6.5

Assessment of Urban Environment Status 6.5.1 6.5.2 6.5.3 6.5.4 6.5.5 6.5.6 Health Risks Status of Surface Water Quality Status of Ground Water Quality Bio-monitoring of River Hoogly Status of Air Quality Automobile Pollution

6.5.7 6.5.8 6.5.9

Health Impact of Air Pollution on Kolkata Population Municipal Solid Waste Management E- Waste - An Emerging Environmental Concern

154 155 155 156 157 158 158 158 159 160 161 162 164 166

6.5.10 Hazardous Waste Management 6.5.11 Critically Polluted Areas Identified by CPCB in West Bengal 6.6 Energy Conservation Voluntary Compliance Mechanism 6.6.1 6.6.2 6.6.3 6.6.4 Energy Conservation Building Code ECBC ECBC User Guide 2009 BEE Star Rating for Office Buildings Energy Labelling Programme

6.6.5 Solar Building Programmes by MNRE, GoI 6.6.6 Solar Water Heating System 6.7 West Bengal Disaster Management Policy and Framework 6.7.1 Conclusion

7. Urban Municipal Services

7.1 Review of urban services delivery framework on various services

167
168 170 ` 178 179 179 184 185 186 188 190 191

7.2 Water Supply 7.2.1 7.2.2 7.3 Water Quality

Urban Water Supply Policy framework

Urban Sewerage and Sanitation 7.3.1 National Sanitation Rankings

7.4

Solid Waste Management 7.4.1 Present status 7.4.2 Current programmes and Projects

7.5

Funding Municipal Services 7.5.1 Current Projects and Funding Infrastructure

7.6 7.7

Public Private Partnership Issues and Challenges

191 192

8. Urban Transport
8.0 National Urban Transport Policy of India 8.1 8.2 Regional and City Planning Trends in traffic and transportation growth 8.2.1 Roads 8.2.2 Railways

194
195 196 196 197 200 202 202 203 203 205 206 207 208 209

8.2.3 Seaports 8.2.4 Airports 8.3 Study of transportation plans and proposals 8.3.1 8.3.3 8.3.4 8.4 Transport System Choice Intercity Transport Models Intra-City Transportation Planning

Linkages between transport, economy and environment 8.4.1 BIMSTEC and the Kunming Initiative

A logistic and transport hub: Dalkhola Municipality

9. Social Development
9.1 Introduction 9.1.1 Overview of the state of social development in West Bengal 9.2 Review of Social Sector Status 9.2.1 9.2.2 9.3 9.4 Education Health

211
212 213 215 216 226 239 239

Social unrest and law and order conditions Review of displacement and rehabilitation policy related to urban projects

9.4.1 Resettlement and Rehabilitation Policy 9.5 Identification of key issues and concerns 9.5.1 9.6 Issues to be addressed in the urban strategy would be

240 244 244 245 245 245 245

List of gap areas 9.6.1 9.6.2 9.6.3 Education Gender Health

10. Municipal and Urban Finances

10.1 Analysis of ULB finances in West Bengal 10.1.1 The Urban Fiscal Problem 10.1.2 State of Municipal Finances: West Bengal 10.2 Accounting, Budgeting and Audit Practices 10.2.1 Double Entry Accrual Based System 10.2.3 New Accounting System 10.3 10.4 District/ULB wise analysis of finances Gaps identified

247
248 248 250 269 269 270 271 283

CHAPTER 1

Introduction
Background

This report corresponds to the second stage of the ongoing project on Formulation of Urban Strategy in West Bengal and looks at the current situation in West Bengal to relate it to the strategy preparation at later stages. The current situation analysis results in the identification of various gaps in each sector. These gaps, thus analysed would throw light on issues which need specific emphasis during the visioning exercises and consultations conducted during the period of the study. The current situation analysis delves into various aspects of development including social, economic, environmental, institutional and infrastructure related matters to provide a spatial dimension to the study. Findings from each sector are constructed together to analyse the past efforts of the government in each of these sectors. This also takes into purview the financing options and the sectoral policy/legislation which largely govern the shape of the efforts being taken and already taken up so far. The synthesis of policy options and imperatives evolving from each sector will then be carefully woven to prepare an urban strategy in West Bengal that banks on the strengths and mitigate the weaknesses of different areas in various sectors and will try to effectively represent them in the Strategy paper.

Urban Strategy in West Bengal

CURRENT SITUATION ANALYSIS AND GAP FINDING

1.1

Introduction

The increasing realisation of the importance of urban development for the overall economic development of the region necessitates attention to the facets of urbanisation at all levels of policy making. This case receives more attention in a state like West Bengal with high percentage of urban population (28.3%). The percentage of urban population in the State has always been higher than the national average, calling for a greater need to tap the benefits of urbanisation. The urban characteristics of West Bengal are marked with several unique features. High population density patterns, rich environmental endowments, strong people centric governance, long urban history, importance laid on rural areas traditionally; all these factors and many more contribute to a vivid yet challenging picture of urbanisation in West Bengal. While tapping the full potential of urbanisation is a challenge in itself, the entailing problems of urbanisation are major stumbling blocks to development. To be in a position to analyse and understand the system, its pros and cons, there is a need for a holistic approach which gathers a wholesome understanding of the current scenario, the factors which instrumentalised such a setting, their long term intentions and their de facto outcomes. This then paves way for strategically positioning the situation and analysing the way forward for addressing the unwanted by-products of urbanisation. The total urban population in the state is distributed across 127 statutory towns and 249 census towns covering only 3% of the total land area1 Across the districts, the level of urbanisation is also very uneven. Apart from North 24 Parganas (54.36%), Howrah (50.39%), Burdwan (37.18%), Hooghly (33.48%) and Darjeeling (32.44%), all the other 13 districts have urbanisation levels of less than 25%. Districts like Koch-bihar, Malda, Birbhum, Bankura and Purulia have the urbanisation levels of less than 10%.

KUSP, RfP, Urban Strategy for West Bengal, 2010 Note: The RfP mentions the numbers, 126 ULBs and 252 Census Towns. Upon further analysis by the consultants, it was found that of the 4 ULBs created after 2001 census, 3 were already listed in the Census Town directory as Census towns viz. Dalkhola, Dhupguri, Dankhuni previously listed as Raghunathpur (PS- Dankhuni). This results in the decrease of the total number of Census Towns from 252 to 249. To the 126 ULBs mentioned in RfP, Dankhuni was added recently, increasing the total number of ULBs to 127.

Urban Strategy in West Bengal

CURRENT SITUATION ANALYSIS AND GAP FINDING

The study therefore used a triangulation approach by synthesising data gathered from detailed secondary data analysis and that from the primary discussions and focus group with the ULBs and other government departments and para statal bodies.

1.4

Chapterisation

The analysis has been performed keeping in mind the policy directives applicable to each sector, their regional implications and performances of local authorities. This analysis has again been performed at sub-regional/district level to arrive at a pattern, which would help look at the characteristic profiles, growth areas, potentials and deficiencies of different regions within the state. Such a situation analysis would help effectively achieve the strategy goal of balanced urban development within the state of West Bengal. The current report starts with a Trend Analysis of Urbanisation and Demography in the state during different years. This is mapped out within the context of urbanisation trends witnessed in the country as a whole. This section then tries to forecast trends within the state across districts, different classes of urban centres and within ULBs2. Migration trends from and to different districts and that of other states and countries are also analysed.

Where ever analysis for ULBs has been carried out under different sectors, the number of ULBs varies from that of the actual 127 number. This is due to the reason that data gathered for different sectors is from different years yielding varied totals for the ULBs during that point in time.

Urban Strategy in West Bengal

CURRENT SITUATION ANALYSIS AND GAP FINDING

Next chapter on Urban policy, Legislative and Institutional growth describes the existing set up in the state within which this strategy would be implemented. The chapter describes the existing urban administrative set up in the state and proceeds to discuss the provisions made in this for improved representation in urban elected bodies and strategic planning. It also describes the organisation structure and hierarchy of different institutions within the urban set-up. Third chapter on Regional and Urban Economic Growth offers insights into the major revenue generating activities of different sub-regions and towns within the state. General performance and the economic growth trends of the state are compared to that of the other states and the country as a whole. Production of different sectors like primary, secondary and tertiary over the years is also analysed to see the growth trend witnessed in specific sectors to understand the potential sectors and areas. The chapter also identifies a set of regions, urban areas with growth potential and with the ability to act as growth drivers. Urban Landuse and Planning chapter mainly discusses the physical planning framework in practice in the state. This includes different master plans, draft development plans and other land use & development control maps being prepared by the towns and cities within the state for town planning. This is done in the context of plans keeping up with the rapid urbanisation and being able to accommodate the growing needs of urban land and infrastructure. The next chapter Urban Environment reviews various environment related legislations already in force. It then illustrates the environment scene in different urban areas of the state. A strategic assessment of how urban development is affecting the environment in the state is undertaken to bring into light various ecological imbalances and hazards and the efficiency of available frameworks in tackling them. The following chapter on urban infrastructure and services looks into the level of service delivery being provided in different urban areas. Effective utilisation of various state and central level funds/schemes in the up-gradation and development of infrastructure services in urban areas is then reviewed. The status itself is assessed based on country level benchmarks and good practices in respective services. The subsequent chapter on urban transport initially tries to fit in the transportation sector in the existing framework and regional and metropolitan planning. A general trend is drawn on the trip generation behaviour in the state. Major transportation corridors, national highways, railway

Urban Strategy in West Bengal

CURRENT SITUATION ANALYSIS AND GAP FINDING

routes and important transport nodes are then plotted on the state map to assess the urban growth pattern as influenced by the transportation networking. The ninth chapter of this report on social development looks at aspects like education, health, gender, resettlement and rehabilitation issues and vulnerable section population including slums. These are described in general for the state as a whole and are treated for evolving district wise trends. Areas for improvement in the policy as well as the institutional framework in addressing various social issues are then addressed. The final chapter of the report is on the municipal and urban finance management in the state. Data on ULB finances over the years have been analysed based on their sources and expenditure. This analysis is again classified according to different districts and classes of ULBs to find specific problem areas and practices in the Financing model adopted by the ULBs in West Bengal state.

10

Annexure i
ULBs Combined to form Clusters

88 | A n n e x u r e

Annexure vii
District Clusters & ULB with highest population amongst the cluster

94 | A n n e x u r e