Repair not redevelop VIKAS DILAWARI

TO practice conservation in , ings, which has given me deeper one must be lucky to have the right cli- insights as to how easy and cost effec- ent who understands and sympathizes tive it is to repair as against the ram- with the word ‘conservation’. I was pant unquestioned redevelopment fortunate to have one such client, the mantra being currently practised in Garib Zarthostiona Rehethan Fund, a Mumbai. benevolent trust looking after the low/ Working on this project has re- middle income group, residential hous- inforced for me the age-old conviction ing needs of the Parsi community. that it is usually more economical and Unusually, this trust believed in wiser to repair rather than reconstruct repairing and maintaining a heritage or redevelop. It helps in reviving the lost property rather than in demolition and skills and craftsmanship of various ar- redevelopment, and in doing so, bear- tisans; retains the socio-cultural rela- ing the entire cost of the repair and not tionship and harmony between people burdening the tenants with the costs, and place, and does not burden the this being the ideal professional as well fragile century-old urban infrastruc- as legal position. The trust owns about ture. Such a resource saving approach 50 such unloved, under-appreciated is the need of the hour for Mumbai, but definitely ‘heritage’ buildings in which in the absence of good planning Mumbai city, scattered around Central and development guidelines, is on a and , as part of various rampant path of insensitive redevelop- community housing schemes which ment. were prevalent in the 19th century. A High Court ruling of February Working with this trust for the past five 2014 has removed Grade III and other years, I have been responsible for the buildings in the precincts from seeking 2 conservation of at least a dozen build- redevelopment approval from the

SEMINAR 657 – May 2014 MHCC (Mumbai Heritage Conserva- tenanted buildings, now nearly a cen- external private developer is now in- tion Committee). As a result, we will tury old, are completely neglected and volved in redevelopment. The redevel- see a lot more redevelopment rather ill-maintained. This constitutes the bulk oped buildings are cooperative than repair of old buildings in the herit- of the inner city’s building stock. Many societies, charging market based age precincts. The Lal Chimney Com- of these buildings are in extremely poor maintenance rates and taxes after re- pound conservation is thus an condition with some even having col- development, which the original ten- important case study to demonstrate lapsed, resulting in loss of lives, while ants often cannot afford. Hence, they to the government and citizens of others are in various stages of dilapi- are pushed to areas that are at the pe- Mumbai what effective repairs can do, dation. Not surprisingly, people do not riphery of the city. In the process, they and hope this leads to a policy that want to stay in such buildings. But as lose their moorings and base, which is incentivizes repair of heritage struc- the rents are very low (due to the Rent undesirable, as eventually ‘people tures over their demolition, followed by Control Act), the tenants prefer to lock make places’. The new flats in the re- insensitive redevelopment. their premises, anticipating redevelop- developed buildings are sold to the ment at some later stage. In the proc- more affluent, resulting in an increase ess they block access to these of unaffordable housing stock. The Mumbai faces an acute shortage of affordable houses for others. The gov- builders reap super-profits while urban affordable housing. As an island city, ernment has refrained from altering or density increases significantly, leading land is limited and the monetary value abolishing the Rent Control Act, as it to a poorer quality of life and infra- of available land is amongst the high- fears losing out on popular vote banks. structure that just cannot cope with an est in the world. Rental housing that Consequently, these buildings have increase in loads. was prevalent till the 1960s and ’70s deteriorated with every passing dec- was able to fulfil the demand. How- ade. ever, when the rental system was Let us now look at the conservation stopped and ownership of flats started, of the Lal Chimney Compound. The the affordable housing stock was badly What has worsened the already ex- goal of this project was to make the hit, changing the dynamics of the city isting dismal situation is the recent government consider offering incen- from community to class dominated change of rules that now give unjusti- tives equivalent to the cost of compre- housing. Comparatively speaking, no fiable incentives for demolition and re- hensive repairs as additional FSI or other city in the country has such an development over repairs. With a TDR (Transfer of Development acute shortage of affordable housing, higher FSI (Floor Space Index) avail- Rights) to landlord and tenants. This which is a matter of grave concern for able for redevelopment schemes, an would significantly prolong the life of Mumbai’s future. Historically, in the late 19th cen- tury, affordable housing was provided for cotton mill workers by the mill own- ers. Later, the City Improvement Trust provided similar single room tenements with common service facilities (e.g., the BDD chawls) in areas around the mills, in what is now considered cen- tral Mumbai. This trend continued till the mid-20th century into the suburbs where land was relatively cheaper. With the advent of the cooperative housing society model in the late 1960s, the availability of rental accommoda- tion declined. One of Mumbai’s major draw- backs is its frozen rents since 1944 (af- 3 ter World War II) due to the Rent Control Act. As a result, about 19000 Lal Chimney ariel view post restoration.

SEMINAR 657 – May 2014 the existing building stock in the city Chimney building complex is a modest and a string course runs at some floor until the next development plan of example of good community housing levels, and the common passages have Mumbai is prepared, within two dec- of the late 19th and early 20th century decorative wooden railings and lou- ades. At the insistence of tenants, the in Mumbai. The complex takes one vred ventilators, adding to the architec- repairs and restoration undertaken in back to an era when a simple life took tural character of the buildings. Though the Lal Chimney Compound case precedence over pretence, and where the buildings are not particularly signifi- were of a high standard and quality. beauty was evident in the tiny details cant for their architectural style, they The vacant flats of these repaired as seen in the excellent craftsmanship remain good examples of architecture, buildings were rented out again, thus that was then the established standard urban design, town planning and a pre- creating affordable housing stock of work. These buildings were not cinct that has an overall character with (which is the need of the hour) for the listed as heritage buildings or precincts mass and scale and an interactive com- city from amongst existing resources. when their repair work commenced in munity system. 2009. The complex is located in front The Parsi’s are one of the more af- of Nair Hospital in Bombay Central All five buildings follow the same fluent communities in the country that (East) and is set within a cluster of five construction methodology. The main has shown concern about the housing buildings which are similar in scale, structure consists of brick load bear- needs of its. It has constructed baugs mass and volume. This entire stretch ing external walls that have a thickness (gated colonies with garden) for the on Dr Nair Road had a similar building of 16 to 20 inches and the construction more affluent members of the commu- stock, all for housing, and broadly for of slab is a jack arch with steel joist nity as seen in South Mumbai. Among three communities – the Bohris (Mus- supports. In the kitchen area and some other examples are Cusrow Baug and lim), the and the Christians. The rooms, the slabs have been strength- Rustom Baug. It has also built entire compound has a rear secondary street ened by the addition of steel support colonies like the Parsi Colony which serves as a service alley. This perpendicular to the direction of hid- which was part of the Town Planning area was well laid out, with gardens and den I-sections. However, no recon- Scheme for middle income members open grounds, and remains one of the struction of slab was ever carried out. of the community. This colony is de- better planned areas on the outskirts The balcony or verandah or passage signed with adequate open spaces, i.e., of the inner city. has teak posts and beams. The plinth five gardens. Lastly, several com- is made up of basalt stone and the stair- pounds or cluster of buildings (like a case is wooden. The top floor has teak complex) were built for the less fortu- The ground plus two storey structures trusses below the rafters/purlins and nate members. The former two types are bilaterally symmetrical in planning. on them are the teak boarding, with a of community housing are looked af- The neighbourhood still affords a pic- tiled roof above. ter by the Bombay Parsi Punchayat turesque view in spite of the new resi- In the 1970s when most of the Trust (BPPT), the second largest in- dential towers that have sprung up, tenantable building stock in Mumbai dividual private landowner of proper- thereby completely eroding the urban was approximately 70 years old, and ties in Mumbai after the Mumbai Port design characteristics of this road. A the occupants started to demand re- Trust (MPT). vibrant mix of generations live here: pairs, the government started a hous- This compound is looked after by old couples, families, young kids and ing repair board, Mumbai Housing the Garib Zoroastrian Rehethan Fund middle aged adults form a thriving and Area Development Authority, and in- (GZRF), which was also responsible lively community. A sense of commu- troduced a cess or repair fund to coun- for building the Lal Chimney Housing nity, which is rarely seen in today’s high ter the problems associated with the Complex. The Lal Chimney complex rise buildings, is still prevalent here ow- Rent Act. This fund was to be used to was the second such colony to be re- ing to its architecture and urban design. repair these residential tenanted build- stored in Mumbai, the first being the The buildings are plain functional ings by replacing the decayed or dam- Sethna, Gamadiya, Patel and residential buildings with vernacular, aged area and materials; for example, Dadyseth buildings off Wadia Street, teak perforated parapets and the finer wood which was expensive, was to be demonstrating the commitment of the façade details like a cornice running replaced with steel. The objective of 4 trust towards the well-being of its ten- around decorative mouldings on win- setting up of this fund was good, but ants and colonies. dows, flower motifs, etc. which orna- unfortunately the government did not In Marzban Colony, the Lal ment the old buildings. The roof is tiled insist on adherence to principles of con-

SEMINAR 657 – May 2014 servation while undertaking repair, on retaining as much of its original fab- number are owned by trusts who pro- principles such as minimum interven- ric as possible by using similar materi- vide community housing. Hence, this tion, using materials that were similar als. small step taken by the Garib to the original, etc., as conservation as Zarthostiona Rehethan Fund Trust a discipline and practice had not yet can be a giant one in retaining emerged in . By the turn of the last century, pri- Mumbai’s unloved, under-appreciated As a result it was seen that maxi- vate players were roped in for rede- buildings, thereby saving the city from mum intervention was done, and even velopment and the tenants were the infrastructure pressures and in en- good condition building-fabric was provided larger areas as per minimum hancing the quality of life. shown as waste and removed, start- standards (350 sq ft), and as a result, ing a parallel business of selling good the FSI was increased to meet con- timber material salvaged from old struction costs. An additional area was The methodology followed by the Lal buildings. The steel used did not last given as sale component and present Chimney Compound conservation long, and it was seen that the building by-laws were followed that provided was as follows. For a few buildings deteriorated faster with such repairs. for setbacks, basement and podium which underwent extensive structural However, the only good point of such parking free of FSI. This development repairs, the tenants were shifted into in-situ repairs was that density re- has resulted in eroding the gently wo- other community housing colonies for mained constant, building scale and ven cultural fabric and street life, which a brief period (3-4 months) unlike the mass was maintained and there was was the strength of the inner city. The redevelopment module where people no additional load on the fragile infra- podium-height kept increasing as indi- are shifted for a few years. This is of- structure. vidual towers capitalized on selling flats ten inconvenient to the elders of the offering the best views of the city, community who have an emotional while sadly forgetting that the next old bonding and need to be in the place After a decade or two it became the cessed building to be redevelop would where they have lived long years. trend to reconstruct the entire building also go up to the same height. Soon, all Change is inevitable, but the on the same footprint, and this resulted we will have are dark alleys and left present redevelopment trend only ben- in formalizing the salvage racket where over spaces in between towers instead efits the developer and does no good good wood was sold and replaced with of streets. for the city. Hence, the approach of re- steel that required frequent repairs. Out of approximately 19000 pair followed in the Lal Chimney Com- The buildings were completely de- cessed properties in Mumbai, a large pound can be used until a new prived of their architectural character. However, the positive was that the ten- ants remained and building mass and scale was retained. After another decade, i.e. 1990- 2000, the trend shifted and the MHADA started reconstructing the buildings themselves by following the accepted by-laws of the city. They got a marginally higher FSI to recover the cost of construction. However, with the involvement of government agen- cies, expectedly, the construction qual- ity deteriorated and many of these buildings are once again in a somewhat poor condition within a couple of dec- ades itself, and are awaiting recon- struction again with higher FSI. It is a pity that the government did not in- 5 crease the cess fund (presently Rs 2000/sq mt approx) and never insisted Lal Chimney prior to restoration.

SEMINAR 657 – May 2014 redevelopment scheme with proper 2012 a draft list, initially of additional needs. The symmetry maintained in planning and infrastructure, that will structures, was published, and the the built form is lost when the railing benefit the city first, is initiated. The re- compound has now been listed as becomes a brick parapet on the ground pair philosophy adopted was to retain Grade III. In the recent revisions made floor, wooden railing on the first and MS as much of the original fabric as pos- by the government, cessed properties grill on the second floor. Vegetation sible, thereby saving on resources as in Grade III and in precincts are now growth was noted on the exterior sides well as making it economical. exempted from the purview of the her- of all five buildings. Termite infestation itage legislation. Thus we see the was seen at some places in the build- mushrooming of high rise in heritage ing and was not attended to holistically. The amazing advantage of restoring precincts, despite so-called heritage The roof had not been attended to com- wooden buildings is that they can be protection under the law. The proposed prehensively in the recent past and re- strengthened in-situ by replacing the draft list of 2012 is yet to be finalized quired complete redoing as there was decayed area or by flitching it. In the and its fate will be decided depending considerable leakage from the gutter end it was heartening to see that even on the public hearings. However, in a areas. The Mangalore tiles were simi- the few tenants who were disgruntled recent interim judgment, the Bombay larly broken or even completely miss- at the prospect of repairs, were satis- High Court has opened the floodgates ing at many places. fied and happy when the entire resto- for redevelopment as Grade III build- ration was over, as they got an ings have been removed from purview upgraded colony. Most importantly, of the heritage committee, leaving it to The repairs were carried out follow- they did not have to contribute even monitor only grade I and II buildings. ing accepted conservation philosophy marginally as the trust bore all the ex- and methodology, such as preparing of penses of repairs. fabric status reports, use of like-to-like Such an approach, if used for all Time has taken its toll in some areas materials, which are compatible and cessed properties in Mumbai, can ac- of the Lal Chimney Compound build- traditional to the historic fabric of the tually transform the city heritage or in- ings that underwent piecemeal and ill- building, undertaking minimum inter- ner city, and add to vibrant economical informed repairs in the past. It was also vention only where desirable and es- areas while offering affordable hous- noticed that many tenants had them- sential, removing all insensitive ing to the needy. The work started with selves carried out repairs, additions accretions that had altered the cultural comprehensive structural repairs to and alterations, thereby changing the significance of the fabric, reviving the one such building, i.e. Wadia building uniformity and the look of the building. lost art of decorated ornamentation in the year 2009. After its successful Additions like box grills and projection work, incorporating modern day needs completion, four other buildings in the of areas in the front open space were and functions without compromising on same colony, which had earlier under- seen in some buildings, such as the the heritage character of the structure. gone internal repairs, were also re- Dadachandji building. The emphasis was on educating ordi- stored externally as the tenants/ The lack of regular maintenance, nary civil contractors to respect herit- residents demanded it; thereby one en- ageing of buildings, insensitive exten- age properties and introduce the tire complex got restored, leading to its sions and alterations have resulted in concept of skilled repairs. rejuvenation as well as that of its sur- the rapid deterioration of buildings in The actual work done encom- roundings. For the residents, their ex- the complex. The corrosion in the jack passed a complete replastering of loose isting lifestyle and social interaction arches has resulted in hogging of the plaster area externally, stitching of the continued uninterrupted. No additional floor tiles and cracks appearing in the cracks, recasting worn out slabs in pressure was created on the fragile in- flooring. New interventions in the RCC by retaining good steel joist. The frastructure of the city (water supply, buildings to suit modern lifestyles and rotted wooden posts and beams were sanitation, drainage, electrical load and hasty replacement of the old features repaired and re-strengthened and the cars) due to the repairs and restoration. to suit the purpose at the time, have worn out members replaced. Orna- Mumbai was the first city in In- also deteriorated the fabric of the built mental works like cornices, string dia to enact heritage legislation in 1995 form. The common passages which courses, quoins, archivolts, decorative and has listed about 624 properties and define the character of the buildings floral panels below the window sills 6 14 precincts. The Lal Chimney Com- abutting the street have been modified were added back by reviving the tra- pound property was not listed individu- over the ages and have now become ditional skills of the master mason. The ally or under a precinct. However, in a chaotic mix, suited to individual openings were made by glazing, grill

SEMINAR 657 – May 2014 design and chajjas (weather shades). ‘We are just custodians of the heritage the city. All reconstruction proposals The sealed parapets of the verandahs and our task is to pass this on to next should be discussed by placing the new were replaced with perforated teak generation.’ development or building within a city balustrades. The teak louvres were re- The project demonstrated to the model or by 3-D software as a part of introduced to allow breeze to enter the government and policy makers that it the submission to the corporation. This rooms. Internal replastering was done only requires Rs 775/sq ft to conserve will ensure that redevelopment is where essential, with a groove above a relatively distressed building struc- viewed comprehensively rather than the skirting to arrest rising damp. turally and architecturally, whereas it as piecemeal, which is the current would cost half that amount for build- practice. ings structurally not so distressed. In The original lease deeds are a Replacing the poor portions of floor contrast, it would cost Rs 4500/sq ft for useful tool; the inbuilt covenants of the slab with new time tested durable ma- redevelopment; the present cess re- deed will help in maintaining the prop- terial, i.e., RCC slab; removing the pairs that MHADA carries out amount erties. These should be checked and floor tiles of common areas, where the to Rs 200/sq ft. adhered to before granting permission slab was being recast and re-fixing The way forward is to plan and for redevelopment. All free sops, like new tiles that were uniform in pattern integrate culture as a tool for urban de- extra area for a minimum flat of 350 and complemented the building; pro- velopment. This is possible if conser- sq ft should be discouraged in case of viding completely new plumbing and vation of buildings, with incentives, is development routed through develop- drainage with new toilets for all tenants integrated into the development plan ers since, in order to recover that ad- in Wadia building whereas for others (DP) that is currently being prepared ditional cost, the saleable component only damaged pipes were replaced and (2014-34). The JNNURM also ad- increases and use of common ameni- redundant pipes removed, were dress some of the issues like rent con- ties decreases, thereby affecting the among the measures carried out. So trol reform, property taxes, among quality of life. The government should also complete roof repairs. Right from others, which are the key issues along modify the rules and not grant addi- removal of tar felt, putting new with proper enforcement and imple- tional higher FSI for schools, hospital, wooden planks in gutter and applying mentation of the law. Some of these and religious buildings that are heritage lead flashing and new tar felt with dou- are highlighted below. properties as it only hastens their ble batten and relaying the tiles, com- demolition for redevelopment. No plete external and internal painting was form of transferable development undertaken, including complete rewir- The development plan must acknowl- rights (TDR) can be loaded in heritage ing of the common electricals. edge and integrate cultural resources, sites, precincts or in the buffer area so Conservation is a less travelled which has never happened. This is an as to retain its ambience. road in the city of Mumbai where re- ideal opportunity as the development development has become a craze. The plan is under preparation. Once con- project offers a simple and effective servation is integrated in the DP, her- A wide range of incentives can be example of adhering to basic principles itage becomes an asset. For example, considered to encourage conservation of conservation, i.e., minimum inter- monuments, Grade I buildings with nec- and repairs: vention, as a result of which precious essary protection to their setting, and * Encourage repairs and restoration of resources are conserved, thereby giv- so on, will help revive tourism and im- good building stock, i.e. modify rent ing a new lease of life to the fabric. prove the image of the city. The exist- control in heritage sites to start with, Through refurbishment, the fragile ing and proposed heritage listing needs and commercial and residential prop- century-old infrastructure is not bur- to be carefully reviewed, along with erties subsequently. dened and the housing colony retains the need for balanced growth and con- * State governments should implement its social character – children play in servation. The heritage properties and the model rent control act for residen- the compound, the elders hang out in precincts should be mapped in the de- tial premises (2010) enacted by the balconies and open spaces interacting velopment plan with special by-laws Union Ministry of Housing. with neighbours. In all ongoing rede- that will help in preserving the cultural * The government should grant Repair velopment proposals there is no open significance for which they are listed. TDR to all cessed and heritage prop- space on the ground floor as this area Any large-scale development or rede- erties as a major incentive, pending 7 is used only for parking cars. This velopment should follow good urban modification to the Rent Control Act. project highlights Ruskin’s theory that, design guidelines that will also benefit * All tenants and landlords must give

SEMINAR 657 – May 2014 an undertaking that in lieu of such in- centives, their buildings would be main- tained for a minimum of 20 years. * This TDR (less than 0.20) is marginal as compared to the TDR (of 4 or 5 ) given for reconstruction and can be used in situ as well. This will also en- sure no increase in density nor will it overload the fragile infrastructure. * Rebates or relaxed property taxes and discounted lease rents to be given to encourage conservation and in- crease such initiatives over redevelop- ment. * Adaptive reuse, conversion, mixed use etc., should be encouraged in prin- ciple as it normally does not increase the density, nor does it load the fragile infrastructure . * Quick permission should be given for repairs, reuse or refurbishment, and maintenance. * Introduce a comparatively higher re- development cess for the redevelop- ment of all heritage sites where the funds would be used for conserving the neighbourhood and its infrastructure. * Acknowledge and support the efforts of the owners who want to conserve. A sense of pride should be created for those who choose to conserve and re- pair their buildings as compared to those who prefer to demolish. Some other steps that may be contemplated are the commissioning of studies to determine the impact of the prevailing by-laws on density, load on amenities or infrastructure and quality of life. Also, the incorporation of disaster management plans for all new development as well as for con- servation of cultural sites. Hopefully, this project, which was given the Unesco Asia Pacific Award of Distinction 2013, will help ini- tiate other such restoration projects as also help modify the state government repair policy. 8

SEMINAR 657 – May 2014