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From MHADA to Prada From MHADA to Prada De ruimtelijke ontwikkeling van de publieke woonsector in Mumbai vanuit een Actor-Netwerk perspectief Masterthesis Willem Apperloo Willem Apperloo Colofon Titel: From MHADA to Prada. De ruimtelijke ontwikkeling van de publieke woonsector in Mumbai vanuit een Actor-Netwerk perspectief Locatie: Mumbai / Rotterdam Datum: 20 augustus 2011 Pagina’s: 126 Status: Eindversie Auteur Naam: W. (Willem) Apperloo BSc Studentnummer: 334786 Opleiding: Master Planologie Faculteit: Faculteit Geowetenschappen Universiteit: Universiteit Utrecht Begeleiding Begeleider: Dr. Bart Wissink Eerste lezer: Prof. Dr. Tejo Spit Tweede lezer: Dr. Bart Wissink Adressen Universiteit Utrecht Heidelberglaan 2 Postbus 80140 3508 TC Utrecht Foto voorpagina: BIT chawls Mumbai Central Fotomateriaal: Willem Apperloo Kaartmateriaal: Timo Cents 2 Woord vooraf ‘From MHADA to Prada’. Dit was een krantenkop die voorbij kwam zetten toen ik in het kleine kantoortje van het ‘Center For Education and Documentation’ door één van de dikke mappen met krantenartikelen aan het bladeren was. Het artikel vertelde het verhaal van de ontwikkeling van de Hirinandani Gardens. Op grond dat ooit bestemd was voor woningen voor lagere inkomensgroepen, werd een luxueuze enclave gebouwd die werd aangekondigd als het Zwitserland in India. ‘A 230 acre plot at Powai meant for “affordable housing for Mumbaikars” was transformed into a plush haven for the wealthy’ (Mumbai Mirror, 02-09-2008). De grond was niet terecht gekomen bij de MHADA (de publieke woningbouworganisatie) maar de Prada (het befaamde Italiaanse modemerk, dat hier synoniem staat voor de ‘rich and famous’ van Mumbai). Onder het mom van beter gejat dan slechts verzonnen, is ‘From MHADA to Prada’ de titel van mijn masterthesis geworden. Deze masterthesis behandelt de ruimtelijke ontwikkeling van de publieke woonsector in Mumbai. Een interessant onderwerp om te onderzoeken in een megastad waarin meer dan de helft van de inwoners in slums woont. Een vraag die daarbij al snel naar boven komt, is wat de overheid heeft gedaan om huisvesting te bieden aan lagere inkomensgroepen. Het verhaal over de ontwikkeling van Hirinandani Gardens is voor een groot deel exemplarisch voor de ontwikkelingen in de publieke woonsector. De grond die bestemd is voor publieke woningbouw komt via schimmige constructies in handen van andere partijen, die met dikke winsten de grond kunnen ontwikkelen. Wanneer er wel publieke woningbouw wordt ontwikkeld, komen de woningen in veel gevallen niet terecht bij lagere, maar juist bij hogere inkomensgroepen. Mijn onderzoek naar de ontwikkeling van de publieke woonsector in Mumbai maakt onderdeel uit van een groter onderzoek naar de ruimtelijke ontwikkeling van Mumbai. Onder leiding van Bart Wissink heb ik samen met negen andere studenten in het voorjaar van 2009 ruim drie maanden lang onderzoek gedaan in Mumbai. Nog nooit had ik zo’n drukke stad gezien en nog nooit had ik zulke grote contrasten gezien. Toch voelde het er ook al snel als een thuis. Onderzoek doen in Mumbai bleek een leuke ervaring. De interviews met respondenten maakte steeds iets meer duidelijk over de publieke woonsector en brachten je op allerlei plekken in de stad. Het veldwerk zorgde ervoor dat je opeens bij iemand binnen zat of dat je zo maar op het dak stond van de BIT chawls. Na een schitterende tijd in Mumbai, viel het terug in Nederland niet mee om de draad weer helemaal op te pakken. Mede door een studie Bestuurskunde heeft het iets langer geduurd voordat ik mijn masterthesis heb afgerond. Toch ben ik trots dat deze thesis hier nu voor u ligt. Op deze plek wil ik, zoals te doen gebruikelijk, nog een aantal mensen bedanken. In de eerst plaats is er een woord voor dank voor Bart Wissink. Hij was degene die mij de kans heeft geboden om dit uitdagende onderzoek te doen. Zijn begeleiding in Mumbai heb ik altijd als prettig ervaren. Daarnaast wil ik mijn negen medestudenten bedanken waarmee ik in Mumbai heb gebivakkeerd. Samen hebben we er een fantastische tijd van gemaakt. Caroline, Daniël, Nienke, Hielke, Paul, Rens, Rianne, Stéphanie en Timo bedankt! Ook wil ik alle docenten en studenten van het Kamla Raheja Vidyanidhi Institute of Architecture and Environmental Studies in Mumbai bedanken. Ze hebben me vooral in de beginfase geholpen om wegwijs te geraken in Mumbai. Daarnaast gaat ook dank uit naar alle respondenten waarmee ik een interview heb gehad. Hun visies en opmerkingen zijn cruciaal geweest om de ontwikkeling van de publieke woonsector te begrijpen. Tot slot wil ik mijn vriendin Chantal bedanken. Zij heeft moeten toezien hoe ik urenlang achter mijn laptop aan het werken was. Ik hoop dat ik binnenkort weer wat meer tijd heb om samen de wereld te ontdekken. 3 Lijst van afkortingen ANT Actor-Netwerk Theorie BDD Bombay Development Directory BEAG Bombay Environment Action Group BHADB Bombay Housing and Area Development Board BHB Bombay Housing Board BIT Bombay Improvement Trust BJP Bharatiya Janata Party BMRDA Bombay Metropolitan Region Development Board BUDP Bombay Urban Development Project CBD Central Business District CIDCO City and Industrial Development Corporation CLAA Central Land Acquisition Act CRZ Coastal Regulatory Zones CZMP Coastal Zone Management Plan DCR Development Control Regulations EWS Economically Weaker Section FSI Floor Space Indiex HDB Housing and Development Board HIG Higher Income Group HUDCO Housing and Urban Development Corporation IMF International Monetary Fund JNNURM Jawaharlal Nehru National Urban Renewal Mission LIG Lower Income Group LISP Land Infrastructure Program LOGFAS Local Government Finance Administration and Services MCGM Municipal Corporation of Greater Mumbai MHADA Maharashtra Housing and Area Development Authority MHADB Maharashtra Housing and Area Development Board MIG Middle Income Group MMR Mumbai Metropolitan Region MMRDA Mumbai Metropolitan Regional Development Authority MTSU Mumbai Transformation Support Unit NCU National Commission on Urbanization NDZ No Development Zones NGO Non Governmental Organization PIL Public Interest Litigation PIO Public Information Officer RTI Right to Information SEZ Special Economic Zone SRS Slum Rehabilitation Scheme SUP Slum Upgrading Programme TATE Technical Assistance, Training and Equipment TDR Transfering Development Rights UDD Urban Development Department ULCRA Urban Land Ceiling and Regulation Act 4 Summary Splintering urbanism and public housing Cities grow and transform rapidly. Since 2008, more than half of the world population lives in cities. Several well-read neo-marxist authors like Sorkin, Castells and Graham and Marvin emphasize that due to the splintering of physical space, also social life in the post-industrial city becomes ‘fragmented’, ‘splintered’ or ‘segmented’. They stress that the rich are disconnecting themselves spatially from the poor, and are retreating in the pseudo public spaces of shopping malls, golf clubs and gated communities. An elite is connected to privileges and benefits, while an underprivileged is disconnected. Urban restructuring is often framed negatively from the neo-marxist perspective. The worries about global urban transformations and the social integration of urban communities reinforce the traditional attention for the loss of community. Mumbai can also easily read in the sense of splintering urbanism. However at the same time you also can see counter tendencies and the development of Mumbai differs from other cities. Questions therefore rise as how can the urban development in Mumbai be characterized. Which are the underlying mechanisms behind this development? And does the urban development of Mumbai result in increased urban disconnection through the emergence of splintering urbanism. The splintering urbanism is often linked to transformations as globalisation, downsizing governments and privatisation. This makes public housing an interesting subject to study. Provision of public housing is declining not only in many European cities, but also in Asian cities. A global trend of a liberal approach to the housing market is visible. However how in the past and nowadays the provision of public housing for the working class and urban poor relates to processes of inclusion and exclusion from privileges and benefits, is not well pointed out. Therefore this research uses the following research question: How can be explained the spatial development of public housing in Mumbai and how does this development fit into the perspective of splintering urbanism? Theoretical framework and research method To analyze the factors underlying the spatial development of public housing in Mumbai, this study uses the Actor-Network Theory (ANT). According to ANT both human actors (humans) and objects (non-humans) have a role in the construction of society and spaces. Thereby actors, institutions and objected are connected in networks of associations. From this perspective the city is a collection of associations. Controversies can make clear which associations have been historically dominant in the spatial development of a city. The struggle between associations shows the dominant associations and shows which actors, institutions and objects are connected to these associations. This gives not only an insight into the power relations in society, but also makes it possible to go into detail on assumptions about a splintering urbanism. This study uses a case study research design. The case studies provide a detailed analysis on several aspects of the spatial development of public housing in Mumbai. There are three
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