UvA-DARE (Digital Academic Repository) Lakshmi Raj: Shaping spaces in post industrial Mumbai: Urban regimes, planning instruments and splintering communities Nainan, N.K.B. Publication date 2012 Document Version Final published version Link to publication Citation for published version (APA): Nainan, N. K. B. (2012). Lakshmi Raj: Shaping spaces in post industrial Mumbai: Urban regimes, planning instruments and splintering communities. General rights It is not permitted to download or to forward/distribute the text or part of it without the consent of the author(s) and/or copyright holder(s), other than for strictly personal, individual use, unless the work is under an open content license (like Creative Commons). Disclaimer/Complaints regulations If you believe that digital publication of certain material infringes any of your rights or (privacy) interests, please let the Library know, stating your reasons. In case of a legitimate complaint, the Library will make the material inaccessible and/or remove it from the website. Please Ask the Library: https://uba.uva.nl/en/contact, or a letter to: Library of the University of Amsterdam, Secretariat, Singel 425, 1012 WP Amsterdam, The Netherlands. You will be contacted as soon as possible. UvA-DARE is a service provided by the library of the University of Amsterdam (https://dare.uva.nl) Download date:04 Oct 2021 Lakshmi Raj SHAPING SPACES IN POST INDUSTRIAL MUMBAI: URBAN REGIMES, PLANNING INSTRUMENTS AND SPLINTERING COMMUNITIES By Navtej K. B. Nainan Universiteit van Amsterdam 2012 ii Lakshmi Raj SHAPING SPACES IN POST INDUSTRIAL MUMBAI: URBAN REGIMES, PLANNING INSTRUMENTS AND SPLINTERING COMMUNITIES ACADEMISCH PROEFSCHRIFT ter verkrijging van de graad van doctor aan de Universiteit van Amsterdam op gezag van de Rector Magnificus Prof. Dr. D.C. van den Boom ten overstaan van een door het College voor Promoties ingestelde commissie, in het openbaar te verdedigen in de Agnietenkapel op 1 Juni, 2012 te 10:00 uur door Navtej Khaur Bhutani Nainan geboren te New Delhi, India iii Promotiecommissie: Promotor(es): prof. dr. I.S.A. Baud prof. dr. A. Bhide Overige leden: prof. dr. M.A.F. Rutten dr. J. de Wit prof. dr. G.A. de Bruijne (Emeritus) dr. L. Kennedy prof. dr. J.B.F. Nijman Faculteit der Maatschappij- en Gedragswetenschappen iv TABLE OF CONTENTS List of Tables and Figures vii List of Abbreviations and Hindi Words ix List of Abbreviations ix List of Hindi words x Chapter 1: Raising the Issues 1 1.1 The City and its Development Plan 3 1.2 Shifts Towards New Town Planning Instruments –TDR and AR 6 1.3 Outcomes for the City and its Citizens? 10 Chapter 2: Literature Review: Changes in Urban Land Regimes - Approaches, Concepts and Outcomes 13 2.1 Approaches to Studying Urban Land Regimes 13 2.2 Concepts 14 2.3 Analytical Frameworks for Studying Collective Decision-Making 22 2.4 Outcome and Impact of Urban Land Regimes 27 Chapter 3: Research Methodology 35 3.1 Research Paradigm 35 3.2 Outlining Specific Research Questions 36 3.3 Data Sources and Tools 40 3.4 Sample Choices, Methodology and Analytical Tools 42 3.5 Rationale for Choosing Areas for In-Depth Case Studies 46 3.6 Scope and Limitations of the Study 48 Chapter 4: Designing Bombay: an Overview 49 4.1 Political and Economic History 49 4.2. City Designs 53 4.3 Land Ownership and Tenure 57 4.4 Conclusion 63 Chapter 5: Government and Governance of Urban Development in Mumbai 65 5.1 The Role of the Government of India in Urban Development 65 5.2 The Role of the Government of Maharashtra in Urban Development 68 5.3 The Role of MCGM in Urban Development 71 5.4 MCGM and State Government Relations 78 5.5 Conclusions 79 Chapter 6: MRTPs and the Consensus needed for a New Development Plan 81 6.1 The Draft Development Plan 82 6.2 Actors’ Reactions to the Draft Development Plan 83 v 6.3 The Bottom-Up Process of Identifying Actors 91 6.4 The Actors’ Interests and Constraints 99 6.5 Conclusions 110 Chapter 7: Coalitions, Strategies and Arenas 113 7.1 The Pro-Growth Coalition 113 7.2 The ‘No-Growth’ Coalition 120 7.3 Policy Brokers and their Role 127 7.4 Findings and Conclusions 129 Chapter 8: Direct and Indirect Outputs of the New Planning Instruments 131 8.1 New Development Control Rules and Liberalization of Land Regulations 131 8.2 Direct Policy Outputs of the New Planning Instruments 138 8.3 Comparative Analysis of NPIs 143 8.4 Impact on Land Markets 147 8.5 Impact on Redeveloped Communities 154 8.6 The Changing Role of Actors in Producing Amenities 157 8.7 Project Impact on Communities 161 8.8 Conclusions 163 Chapter 9: Impact of NPIs on Resettled and Redeveloped Communities 165 9.1 Spatial Impact of Market Instuments on Communities 165 9.2 Impacts on Resettled Households of the MUTP Cluster 171 9.3 Impacts on Households of the In-Situ Redevelopment Project of Roma Banjara Cluster 176 9.4 Impact on Livelihoods 179 9.5 Comparison amongst Subgroups of Roma Banjara and MUTP clusters 181 9.6 Findings and Conclusions 183 Chapter 10: Whose Regime is it Anyway? 185 10.1 Emergence of a New Urban regime in Mumbai 185 10.2. Heterogeneous Actors and Interests 188 10.3 Actor’s Resources and Strategies 191 10.3 Key Features of the New Regime and its Regulatory Framework 193 10.4 Policy Outcomes of New Regulations and Planning Instruments on Public Amenities and Urban Development 196 10.5 New Regulations and Unequal Impacts on Communities and Households 198 10.6 Reflections on the Conceptual Framework 199 10.7 Recommendations for Practice 203 Appendix: Summary thesis 207 Bibliography 213 vi LIST OF TABLES AND FIGURES List of Tables Table 2.1: A mode of coordination 16 Table 2.2: Four basic types of goods 31 Table 3.1: Concepts and indicators for assessing improvement in living condition 40 Table 3.2: Number and types of sites surveyed 41 Table 3.3: Specific research questions and data sources 42 Table 3.4: TDR plots acquired from 1997- 2005 and their use 45 Table 3.5: Chart showing TDRs generated in all wards of Mumbai 46 Table 3.6: Number of household interviews in the case study area 47 Table 4.1: Land ownership in Mumbai in 1981 in acres 57 Table 4.2: Land ownership of slums in Mumbai, 2001 63 Table 5.1: Current status of plots acquired under the LAA (1978-1999) 67 Table 5.2: Status of ULCRA land in Mumbai 68 Table 5.3: List of amenities for which land plots were acquired between 1978 and 1990 using the Land Acquisition Act 72 Table 5.4: Public amenity norms 74 Table 6.1: De-reservation applicants at the municipal level 86 Table 6.2: De-reservation applicants and applications by the state government 88 Table 6.3: Zoning and shifts in land value in M Ward 92 Table 6.4: Landowners and change in zoning in M Ward 92 Table 6.5: Actors according to sector 99 Table 8.1: Acquired TDR plots acquired and their use (1997-2005) 138 Table 8.2: Public amenity reservations plots realized via the three NPIs 138 Table 8.3: Size of survey sample 139 Table 8.4: Functional public amenity on the plot using a TDR instrument 140 Table 8.5: Fees required for use of the amenity on plots developed under TDR instrument 140 Table 8.6: Use of amenity on plots developed through TDR instrument according to class 140 Table 8.7: Capacity of amenity used by type 141 Table 8.8: Type of amenity constructed on plot through AR instruments 141 Table 8.9: Land acquisition of amenity by the MCGM through AR instruments 142 Table 8.10: Fees for using amenity on plots built under AR instruments 142 Table 8.11: Percentage of total plot area occupied by amenity on In-situ plots 143 Table 8.12: Current owner of the amenity structure on In-situ plots 143 Table 8.13: Percent of projects completed 143 Table 8.14: Ownership of amenity 144 Table 8.15: Performance of instruments 146 Table 8.16: Variations in TDR produced public amenities according to ward 149 Table 8.17: TDR beneficiaries of open space amenities 158 Table 8.18: Beneficiaries of SRA/PAP TDR 158 Table 8.19: TDR beneficiaries for open space and SRA/PAP housing amenities 159 Table 9.1: PAP townships in M Ward 166 Table 9.2: Monthly income of households in sub-communities of MUTP 171 Table 9.3: Percentage of households having proofs of residence in resettlement 172 vii Table 9.4: Housing conditions of sub-communities of the MUTP Project (in percentage of households) 173 Table 9.5: Comparison of schooling and health facilities between their earlier site and current site (in percentages) 175 Table 9.6: Type of housing and access to public amenities (in percentages) 175 Table 9.7: Percent of households living in different types of housing 177 Table 9.8: Perceived project benefits by households in the rehabilitation building of the Roma Banjara Housing Co-operative 178 Table 9.9: Impact of relocation on livelihoods resulting from the MUTP Project 180 Table 9.10: Connections of locality to main road or railway station (in percent) 181 Table 9.11: Comparative impact indicators for community subgroups 182 Table 10.1: Comparing strategies and arenas used by the two coalitions 191 Table 10.2: Comparing the traditional and liberal urban regime 195 List of Figures Figure 1.1: Map detailing land use of Greater Bombay 5 Figure 1.2: General Conceptual Framework 11 Figure 2.1: Institutional Analysis and Development (IAD) 22 Figure 2.2: Elements of key variables in the ACF 24 Figure 3.1 Conceptual framework of advocacy coalitions 38 Figure 3.2: Selection Process of sample size and case study 43 Figure 3.3: Administrative Ward Map of Mumbai 44 Figure 3.4: Map of M/East Ward 45 Figure 4.1: Map of Bombay late nineteenth century from Captain Thomas Dickinson’s