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Towards Decentralised Urban Governance TOWARDS DECENTRALISED URBAN GOVERNANCE THE CASE OF BHUJ CITY, KACHCHH, INDIA Shrishtee Bajpai and Ashish Kothari Kalpavriksh, Pune January 2020 Published by: Kalpavriksh, Apt. 5 Shree Dutta Krupa, 908 Deccan Gymkhana, Pune 411004 http://www.kalpavriksh.org/ http://www.vikalpsangam.org/ Study core team: Shrishtee Bajpai and Ashish Kothari Text: Shrishtee Bajpai and Ashish Kothari Photographs: Ashish Kothari Cover photo: Meeting of corporators and HIC workers with authors, Bhuj by Ashish Kothari Design and layout: Hannah Marsden & Toby Lloyd This work is licensed under Creative Commons license Attribution Commercial-ShareAlike 4.0 International (cc BY-NC-SA 4.0), http://creativecommons.org/licenses/by-nc-sa/4.0 You are free to copy, redistribute and adapt materials for non-commercial purposes and with attributions to the original authors and photographers/illustrators, clearly indicating the changed portions and under an identical license. Project: This case study is part of the project ‘Alternative Practice and Visions in India: Documentation, Networking and Advocacy’, undertaken by Kalpavriksh and sponsored by Heinrich Boll Foundation (HBF). Citation: Bajpai, Shrishtee and Kothari, Ashish. 2020. Towards decentralised urban governance: the case of Bhuj city, Kachchh (India). Kalpavriksh. Pune. Acknowledgements We would like to thank all the organisation’s representatives and community members for giving us time and space to know about their work (see Annexure 1). We would like to especially thank Aseem Misra and Sandeep Virmani for guiding us through all the discussions and also giving us comments on the draft report. Heinrich Boll Foundation’s financial assistance to a project on ‘Alternative Practices and Visions in India’, within which this case study was carried out, is also gratefully acknowledged. Contents Summary 1 Main Report 2 1. Background: Alternative Transformations and Democracy 2 1.1 Alternative transformations 2 1.2 Democracy 3 2. Introduction to the case 4 3. Objectives, Methodology, and Limitations 5 3.1 Objectives 5 3.2 Methodology 5 3.3 Limitations 5 4. Bhuj, Kachchh, Gujarat 5 5. Homes in the City Programme 6 6. Moving Towards Direct Democracy 7 7. A More Holistic Democracy: Transformation in Other Spheres 10 7.1 Gender 10 7.2 Housing 11 7.3 Water 12 7.4 Environment 14 8. Other Collectives Supporting the Process 15 9. Analysis: Dimensions of Democracy 17 10. Conclusion: Overcoming Weaknesses in the Future 19 References 21 Annexure 1: Respondents in the Case Study 21 Endnotes 22 Summary This case study describes and analyses the This study examines a transformative process decentralisation process by five civil society unfolding in the city of Bhuj that aims to challenge organisations along with citizens of Bhuj city in the mainstream model of urban planning and Kachchh in the state of Gujarat. It is set to the governance. Under the Homes in the City (HIC) backdrop of the 74th Constitutional Amendment program initiated by five civil society organisations Act, 1992 that sought to empower urban local bodies (Hunnarshala, Kutch Mahila Vikas Sangathan, Arid (ULBs) to enable them to function as “institutions of Communities and Technologies, Sahjeevan, and self-government”. Though, after more than 25 years SETU Abhiyan), along with issue-based collectives of passing of the act, the institutions and powers and citizens, a decentralised ward level planning and mandated under it are yet to take their full shape in decision making process, along with strengthening of most cities in India. Urban governance is marked Municipalities and a holistic and integrated approach by centralised, highly bureaucratic and exclusionary is being attempted. The study details the work of planning that eventually fails to provide for basic these actors, describes the decentralised governance amenities like food, shelter, clothing, and safe/clean being attempted, and indicates the strengths and environment for a large number of people. The poor, weaknesses in integrating varied aspects into the minorities, women, children and other marginalised planning. Based on an analysis of four crucial sections of population are usually found in the aspects of a successful democracy – rights, capacity, fringes of such urban planning and governance. India forums, and maturity – as relevant to the Bhuj is one of the fastest urbanising countries in the world decentralisation process, this study concludes with with plans of expanding cities exponentially (both in some suggestions and indications of steps that could numbers and investments) in the next decade. In this help in strengthening the process. scenario, there is a little hope that Indian cities will be able to provide for its most vulnerable sections of the population. Bhuj Setu office for citizens’ information and support (2012) 1 Main Report term does not imply these are always ‘marginal’ or new, but that they are in contrast to the mainstream 1.Background: Alternative Transformations or dominant system. and Democracy It is proposed that alternatives are built on the 1.1 Alternative transformations following spheres (or overlapping spheres) seen as an integrated whole; in this or other forms these Across the world there are a number of processes have been expressed by many in the past, but are by communities, organisations, government bodies, re-emerging in the new contexts of the 21st century: movements, and business that are trying to tackle radical and delegated democracy, social well-being various dimensions of unsustainability, inequity, and and justice, economic democracy, cultural diversity injustice. Many of these processes are challenging and knowledge democracy, and ecological integrity structural forces such as capitalism, statism, and resilience (these are explained further in the note patriarchy, racism, casteism, and anthropocentrism. referred to below). In this sense they can be seen as alternatives to the currently dominant system. The above approach is part of (and detailed further in), an evolving note ‘In Search of Radical Alternatives can be practical activities, policies, Alternatives’, laying out a framework to imagine processes, technologies, and concepts/frameworks pathways and visions that are fundamental that lead us to equity, justice, sustainability. alternatives to today’s dominant economic and They can be practiced or proposed/propagated political system, taking us towards equity, justice, by communities, government, civil society and ecological sustainability.1 This document organizations, individuals, and social enterprises, has emerged from an ongoing process called the amongst others. They can simply be continuations Vikalp Sangam2 that aims at bringing together from the past, re-asserted in or modified for current practitioners, thinkers, researchers, and others times, or new ones; it is important to note that the working on alternatives to currently dominant forms Figure 1: Spheres of alternatives transformation (Note: the topics mentioned in the overlapping areas are only indicative, not exhaustive) 2 of economic development and political governance. ‘development’ paradigm, but provide viable pathways It aims to create a cross-sectoral platform on for human wellbeing that are ecologically sustainable alternatives (or constructive work) to share, learn, and socio-economically equitable. and build hope, collaboration and to dream and deliberate towards an alternative future. Some of these case studies attempt to dig deeper into one of the above-mentioned five spheres of One of the issues faced by movements working alternatives, i.e. direct and delegated democracy. towards radical transformation, is that many actions The attempt is to document processes, initiatives being claimed as alternatives are actually dealing and pathways towards more democratic functioning only with the symptoms (e.g. recycling waste rather (which we explain below). In addition, the idea is to than challenging its generation and the economic analyse how the attempts to establish radical forms forces that create it), rather than bringing in radical of democracy establish or enhance links to the other or transformative changes. In addition, they might spheres of Alternatives Transformation Format, be fundamentally challenging one dimension of explained above, which we do briefly or in detail, transformation but might be negatively impacting depending on the specific case.6 other dimensions of transformations. In order to understand these and other complex issues, a tool 1.2 Democracy called the Alternatives Transformation Format (ATF)3 has been developed as part of ACKnowl-EJ,4 Democracy (demos=people + cracy=rule) is the Academic-Activist Co-generation of Knowledge supposed to mean the rule of, by, and for people. on Environmental Justice Project.5 This lists multiple In its original meaning this would imply that all elements of alternative transformations in the above of us, wherever we are, have the power to govern mentioned five spheres. As the ATF notes: “across our lives. However, across the world its dominant the world there are initiatives by communities, civil meaning has been constrained by the form of society organisations, government agencies, and ‘liberal’ governance in which representatives businesses to tackle the challenges of unsustainability, elected by people have power at varying degrees inequity, and injustice. Many of them confront the of centralisation. It is necessary to understand basic structural reasons for these challenges, such this crucial difference
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