SLUMMING INDIA

Nidhi Jamwal

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MRE15.indb 79 04/12/14 11:43 am SECTION 1 However, the future of this ‘mini-city’, which can also be termed an industrial About 27 years back, a 12 years old town, is in limbo. Like Khan, the sword boy Rayees Khan came to the city of of ‘redevelopment’ is hanging on the dreams from his hometown Allahabad heads of lakhs of residents of Dharavi, in Uttar Pradesh. He wanted to make primarily tenants. The government big in life and Mumbai seemed to plans to redevelop Dharavi into an be an ideal city. His maternal Uncle, upmarket locality; hence, those who already working and settled in Mumbai, own a tenement in Dharavi will get a provided him with the initial foothold. free house. “But, what about thousands “Like a typical Amitabh Bachchan of tenant families, like mine, who would movie, I got off the train at Victoria be rendered homeless? In this city of 20 Terminus station in south Mumbai, million people, which boasts of being where my Uncle was already waiting India’s financial capital, there is no for me. From the station, we hired a affordable housing. People are forced cab to reach my Uncle’s house. I still to squat,” laments Khan. remember the excitement on seeing broad roads and tall buildings. These, Khan’s concern is genuine. A 2009 to me, epitomised Mumbai,” reminisces survey conducted by an NGO found Khan, a tailor and father of three, that all tenements in Dharavi were whose thrill of a city life was short-lived. owned by less than a 100 families. “The taxi halted at Dharavi and my Another recent survey carried out by Uncle told me to get down. But, seeing Mumbai-based NGO, Committee for the surroundings of squalor, dingy the Right to Housing, reported 80 per lanes, waterlogged broken roads, filth cent people of Dharavi were living on and dirt, I refused to move an inch. rent.i And it is this segment of Dharavi’s My Uncle somehow managed to bring population, which is at the highest me to his one-room house in Dharavi risk from redevelopment. As per the with an assurance that soon he would proposed Dharavi Redevelopment Plan send me back to Allahabad. I waited. (DRP), slum dwellers having a pre-2000 For days, for months; and then slowly residence proof are entitled for free got used to the life of Dharavi. Now, housing. However, those who live as Dharavi is my home; it is the home of tenants will have to move out as Dharavi my three children,” says Khan. Like transforms into a ‘world class city’. Khan, over a million people, mostly migrants, have made Dharavi their A large section of Dharavi’s urban home. Their generations have grown poor, and so of the other slums in India, up in this slum, which has an annual do not fit into the ‘beautification’ [read turnover of over US $650 million. gentrification] drive that is sweeping

i. http://articles.timesofindia.indiatimes.com/2011-12-17/mumbai/30528167_1_largest-slum-dharavi-slum- structures

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MRE15.indb 80 04/12/14 11:43 am across urban India. We want ultra population between 600,000 and a clean cities, something that would million people. The population density put Manhattan to shame; and to this in Dharavi is as high as 314,887 per end we want urban poor to be either square kilometre (sq km). This is 11 crushed into unhealthy apartment times as dense as Mumbai as a whole buildings or be pushed out of ‘our’ city (the most densely populated city in the limits. But, only till ‘our’ cities expand world with 29,500 people per sq km) and again come in contact with these and more than six times as dense as ‘ghettos’, which then have to be pushed daytime Manhattan (about 50,000 further out. On the one hand, cities like people per sq km).ii Mumbai are plush with vacant luxury apartments; on the other hand, 55 Predictably, lack of sanitation is the per cent of its population lives in slum. most pressing problem of Dharavi. As Dharavi is a living example of all what per a 2006 estimate, 1,440 Dharavi is wrong with our vision of cities. dwellers share one toilet every day and an average of 15 families in every DHARAVI, THE GOLDMINE slum share one tap that supplies them water for two hours per day. During Dharavi, a 216 hectares (ha) triangular each monsoon, houses in Dharavi get stretch of land, was originally a marsh inundated with polluted wastewater, land home to Kolis, a traditional fishing which mixes with the drinking water community. As Mumbai grew and supply and causes outbreak of diseases swamps were filled in, migrants from such as diarrhoea, jaundice, hepatitis, all over India settled in Dharavi. For etc. these migrants, Dharavi offered work and affordable housing; whereas for Dharavi may be burying under its authorities, until recently, Dharavi was own waste, but it is still a goldmine, an illegal settlement away from the as it is the last stretch of huge land centre of the city. However, as the city available in central Mumbai. The first expanded, Dharavi no more remained redevelopment plan for Dharavi was at the outskirts. proposed in 2004 by Mukesh Mehta, an NRI architect. His plan, aiming at Today Dharavi forms the heart of transforming Dharavi into a ‘world- Mumbai, commanding a very high class’ city, was accepted by the state land price. Located in central Mumbai, government. The idea was to offer official estimates claim there are slum dwellers free houses (225 sq ft) in 60,000 tenements (total 77,000 multi-storey buildings, thereby opening if residential and commercial are up Dharavi’s land, which could then clubbed together) in Dharavi with a be developed and sold in the open

ii. http://www.urbantyphoon.com/dharavi.htm

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MRE15.indb 81 04/12/14 11:43 am market for huge profit. However, stiff received 754 suggestions/objections opposition from local residents ensured on its Dharavi Redevelopment Plan termination of Mehta’s plan. “Mukesh (DRP) and is in the process of looking Mehta’s plan was not for the people of into them.v Dharavi, but for the land of Dharavi,” says Raju Korde, convener of Dharavi MHADA’s plan, too, has stirred up a Nagrik Manch.iii hornet’s nest. “As per the new DRP, my present office and tannery will make In March this year, Maharashtra way for a 120 feet broad road. Even Housing and Area Development my house in Balika Nagar has been put Authority (MHADA), an apex public on sale,” said Ahmed M Patel, owner of body of Maharashtra government, Sufiyan Exports.vi released its plan of redeveloping Dharavi titled ‘Draft Planning Proposals Efforts are underway to iron out for Dharavi Notified Area’. As per this differences. “There is some concern plan, more than half of Dharavi’s land about the proposed location of rehab is set aside for free sale, whereas all buildings, but MHADA has assured rehabilitation buildings have been it would make necessary changes,” pushed to the corners, symbolising said Farid Siddiqui, general secretary ghettoisation (see map 1: Dharavi’s of Dharavi Business Men’s Welfare proposed land use map by MHADA Association.vii Siddiqui is also a member and see box 1: Unravelling Dharavi’s of the state chief minister’s committee on redevelopment freebies). MHADA Dharavi’s redevelopment. proposes to redevelop Dharavi into five sectors and is developing sector A section of experts has out rightly no. 5 on its own. The remaining four rejected the DRP. “Almost all the existing sectors might be handed over to dwellers in Dharavi have capacity to private builders. “We have demanded pay for dwelling units provided the MHADA to develop all the five sectors, cost of land is not bundled. In such a as it will ensure supply of at least case, financing the renewal through 50,000 affordable flats in the housing market instruments like FSI is just not market of Mumbai,” said Korde.iv The required. Low cost long-term financing Dharavi Redevelopment Authority has options are very easy - the world is

iii. Raju Korde 2013, convener of Dharavi Nagrik Manch, Mumbai, April 27, personal communication. iv. Raju Korde 2013, convener of Dharavi Nagrik Manch, Mumbai, April 27, personal communication. v. http://www.hindustantimes.com/India-news/Mumbai/Authority-starts-hearing-Dharavi-locals-objections/ Article1-1050513.aspx vi. Ahmed M Patel, owner of Sufiyan Exports, Mumbai, March, personal communication. viii. Farid Siddiqui 2013, general secretary of Dharavi Business Men’s Welfare Association, Mumbai, April 27, personal communication.

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MRE15.indb 82 04/12/14 11:43 am flush with low cost funds,” said Rishi a rehabilitation tenement, he is allowed Aggarwal, a Mumbai-based social and to sell a tenement in open market. environment activist. The ratio of rehab vs sale component “We have raised lot of objections on varies across Mumbai. For instance, in the DRP on both technical and ethical Mumbai City the ratio of rehab and sale grounds. But, government is not ready is 1:0.75, whereas this ratio in Mumbai to address these concerns. Authorities suburbs is 1:1. Simply put, this means do not understand implications of high that if a builder in Mumbai City area population density. Crushing slum constructs a 225 sq ft free tenement for dwellers in high-rise apartment buildings rehabilitation of the slum dweller; he/ will neither solve Dharavi’s problem, she can sell 150 sq ft in free sale market nor that of Mumbai city as a whole,” [calculated as 1:0.75 FSI]. Recognising warns Anirudh Paul, an architect, urban that Dharavi is a “difficult area” and designer and director of Mumbai-based “special case”, the Maharashtra Kamla Raheja Vidyanidhi Institute for government has given an FSI of 1.33 Architecture and Environmental Studies. to the sale element of Dharavi project. Hence, if a builder constructs a 300 sq Box 1: Unravelling Dharavi’s ft free tenement for rehab in Dharavi; he redevelopment freebies will be allowed 400 sq ft of free sale in market [1:1.33 FSI]. Till 1970, it was illegal to provide any basic amenities in slum areas. Residents of Dharavi, who own a In 1971, the Maharashtra Slum tenement and have pre-2000 residence Areas (Improvement, Clearance and proof, are eligible for a free 300 sq ft Redevelopment) Act was passed, which house. The Maharashtra government made provisions for sanitation, power has worked out a telescopic system for and water supply. There are three compensation of commercial properties slum rehabilitation schemes under the in Dharavi. 1971 Act, which are managed by the Slum Rehabilitation Authority (SRA). Less than 225 sq ft commercial property SRA schemes allow private builders will get exact amount of free commercial to redevelop slums by following some area under DRP. basic rules. Incentives are offered to builders in the form of high floor space If the commercial space is between 226 index (FSI). FSI is defined as the ratio sq ft and 250 sq ft, then the owner will of the total floor area of buildings on a get free 225 sq ft under DRP. certain location to the size of the land of that location. Higher the FSI, taller Those who have commercial area the buildings. So, if a builder constructs between 251 sq ft & 1,000 sq ft,

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MRE15.indb 83 04/12/14 11:43 am they will get 900 sq ft area post for the rest owner will have to pay a redevelopment, of which 225 sq ft will development charge. be free and for the rest the owner will have to pay a development charge. Commercial area above 1,501 sq ft will get flat 1,650 sq ft, of which Commercial area between 1,001 225 sq ft will be free and for the sq ft & 1,500 sq ft will get 1300 sq rest owner will have to pay a ft, of which 225 sq ft will be free and development charge.

SLUM REDEVELOPMENT OR AN ECOLOGICAL DISASTER?

Going by the calculation of 1: 1.33 them with basic amenities of health, FSI for Dharavi, for every one structure education, open spaces, etc. DRP will to be redeveloped in Dharavi, 700 sq compromise on all these aspects, as it ft would be constructed [300 sq ft for has no control over population density,” rehab and 400 sq ft for sale]. Since said Paul. Further, the urban form Dharavi has 60,000 structures, this adds composed primarily of towers, spaced up to 42,000,000 sq ft construction in near each other, would fast lead to Dharavi under the DRP. And this does an environment of decay. This would not account for amenities like roads, happen because of the inability of the playgrounds, schools, hospitals, etc. residents to maintain such environments For 42,000,000 sq ft construction in sustainably over a long period of time, Dharavi, the land available is only 103 he added.viii ha. Hence, to accommodate such large scale construction, rehab buildings for Paul has made an important point. slum dwellers will be as tall as 16-17 Mumbai’s infrastructure is already storeys, whereas the sale component bursting at the seams. The city’s skyscrapers would have 25 storeys. sewerage was built during the British time and has not been refurbished. Experts are aghast at the prospect of Flooding during each monsoon, such massive construction in the heart coupled with outbreak of water-borne of Mumbai. “Implementation of DRP will diseases, is a routine feature. The city lead to such crowding in Dharavi that daily generates 2671.30 million litres has never been experienced anywhere of sewage, of which 45 per cent is in the world. Redevelopment is not discharged into the two creeks and about packing people in multi-storey Arabian Sea without any treatment. buildings. It also requires providing No wonder the city’s shoreline is

viii. Anirudh Paul 2013, an architect, an urban designer and director of Mumbai-based Kamla Raheja Vidyanidhi Institute for Architecture and Environmental Studies, June 2, personal communication.

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MRE15.indb 84 04/12/14 11:43 am highly polluted. A joint report by Research Institute found marine species Kochi-based Central Marine Fisheries along Mumbai’s coast were impacted Research Institute and Mumbai-based adversely due to high levels of National Environmental Engineering heavy metals.ix

TRANSITION FROM SLUM DWELLERS TO RENTLORDS

There is one crucial aspect of Dharavi worried lot. Dharavi receives India’s 70 that the DRP has conveniently ignored per cent plastic scrap, which it recycles – loss of livelihood of Dharavi residents. at a minimum cost and supplies back Almost every household in Dharavi is to the market. “We clean entire India’s an industrial unit in itself, manufacturing kachra, but rather than awarding us, a variety of products – belts, jeans, government is hell bent upon killing buckles, papad, farsan, pottery, us,” said an angry worker of a plastic jewellery, etc.x Also, there are large recycling unit in Dharavi. food processing units, plastic recycling godowns, tanneries and garment Authorities, however, feel Dharavi factories. There is no clarity on the residents are receiving more than a fair fate of such activities once Dharavi is deal. “Almost 80 per cent of present transformed into a ‘world class city’. residential tenements in Dharavi are 100 sq ft in area. Under DRP, they will Experts feel a large number of these get 300 sq ft free house, which might businesses will be forced to shut down. even be raised to 400 sq ft. There is “Municipal corporation has a format of also provision for an industrial complex businesses allowed within residential to accommodate clean businesses,” areas. If residents of Dharavi want said an official. to carry out any commercial activity, permission and licence for the same will There are more subverted arguments in have to be sought from the concerned favour of the DRP. “Post redevelopment, government bodies... Plastic recycling people of Dharavi will make more (dana making) is not allowed as per the money per month through renting municipal corporation format, but we out their commercial space than say are trying to get it included in the list of running the plastic recycling unit or allowed activities,” said Siddiqui. garment factory. Why will they work if they can earn more through rent?” No wonder, the workers of the 13 plastic Questions Korde. Paul disagrees. recycling compounds of Dharavi are a “Dharavi has several stakeholders and

ix. http://www.dnaindia.com/mumbai/1838753/report-mumbai-marine-life-on-deathbed-thanks-to-govt-apathy x. http://en.wikipedia.org/wiki/Dharavi

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MRE15.indb 85 04/12/14 11:43 am such arguments voice concern of only recognise informalities that are a part owner residents. What about workers, of any Indian city’s fabric. It does not women who work from home [papad recognise the fact that people live and making, chakli making, etc], tenants? work from the same area. Slums are Their voices do not even get heard,” a collective of industrial estates and he laments. housing. They co-exist. If we try to do away with this informality, it will come According to Paul, the solution to back with vengeance. And it already slums -- crushing slum dwellers in high is,” avers Paul. rise buildings – is flawed. “It does not

SECTION 2: THE UPWARD SWIRL OF URBANISATION

According to the latest report on World Table 1: Population and decadal variation in India Urbanization Prospects prepared by between 1901 and 2011 the United Nations, the total population living in the urban areas in the world is more than those living in rural areas. Out of 6,829 million persons inhabiting this planet as per 2009 estimates, 3,421 million persons lived in urban areas and 3,408 million persons in the rural areas. The share of urban population in the total population is estimated as 50.1 per cent, just above the half-way mark.

India, too, is facing the upward trend of urbanisation. According to Census 2011, the growth of urban population during 2001-11 is significantly higher at 31.8 per cent than in rural population (12.18 per cent) (see table Source: C Chandramouli 2013, Registrar General and Census 1: Population and decadal variation in Commissioner, India, Trends in Growth of Urban Population: India between 1901 and 2011 and Highlights from Census Of India 2011 map 2: Proportion of urban population in Indian states, 2011).xi

xi. C Chandramouli, Registrar General and Census Commissioner, India, Trends in Growth of Urban Population: Highlights from Census Of India 2011.

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MRE15.indb 86 04/12/14 11:43 am 2011

Map 2: Proportion of urban population in Indian states, 2011

% OF URBAN POPULATION 10.00 AND BELOW 10.01 - 20.00 20.01 - 30.00 30.01 - 40.00 40.01 - 50.00 50.01 AND ABOVE

Source: C Chandramouli 2013, Registrar General and Census Commissioner, India, Trends in Growth of Urban Population: Highlights from Census Of India 2011

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MRE15.indb 87 04/12/14 11:43 am In 1951, there were only 5 Indian of the GDP, with 13.3 per cent of the cities with population greater than 1 population and just 0.2 per cent of the million and only 41 cities greater than land area. 0.1 million population. Much of India effectively lived in 0.56 million villages. It is commonly believed that the In 2011, there are three cities with explosive rural to urban migration population greater than 10 million and is the primary cause for the state of 53 cities with population greater than India’s cities. However, there is no 1 million. Over 833 million Indians evidence to prove so. For the last 30 live in 0.64 villages, but 377 million years, migration has contributed about live in about 8,000 urban centres. By a fifth of the population, natural urban 2031, it is projected that there will be 6 population contributed about 60 per cities with a population greater than 10 cent, and the rest about equally split million. Greater Mumbai tops the list of between new town formation because most populated urban agglomeration, of reclassification and urban boundary as per the Census 2011. The top 10 expansion. The major component of cities are estimated to produce about urban population growth is still natural 15 per cent of the GDP, with 8 per cent growth. While approximately 40 million population and just 0.1 per cent of the of the 2001-2011 increase is due to land area. The 53 million-plus cities are natural growth, only about 22 million estimated to produce about 32 per cent is due to net rural to urban migration.

CRUMBLING URBAN INFRASTRUCTURE AND RISING URBAN POVERTY

Whereas urban population is on the No Indian city has 24×7 water supply. rise, urban infrastructure and related Duration of water supply ranges from services are far from satisfactory. 1-6 hours. Access to safe drinking water According to Sulakshna Mahajan varies substantially by city size, with the of the All India Institute of Local Self most significant gaps in smaller cities. Government, a healthy habitat is one The situation is more worrisome on the with minimum space norms of 10 square sanitation and drainage fronts. As of meters per person. Yet, shockingly, in 2010, more than 30 per cent of urban Mumbai, each individual gets a mere households’ only access to latrines was 2.5 square meters.xii through shared or community toilets. Nearly 20 per cent of non-notified

xii. http://orfmumbai.wordpress.com/2010/08/07/orf-discussion-paper-affordable-housing-policies-for- mumbai’s-poor/

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MRE15.indb 88 04/12/14 11:43 am slums and 10 per cent of notified slums the number of rural poor is declining. had no access to latrines. Further, Medium and small cities have a larger nearly 94 per cent of India’s cities share of the poor and a slightly larger do not have even a partial sewerage share of slum population than the network and less than 20 per cent of the million plus cities. According to P G road network is covered by storm water Dhar Chakrabarti’s research paper, drains. Only 13.5 per cent of waste ‘Urban Crisis in India: New initiatives water is treated, claims a report ‘Urban for sustainable cities’, “imperfections India 2011: Evidence’ prepared by in land and housing markets and the Bangalore-based Indian Institute for exorbitant increases in land prices have Human Settlements (IIHS). left the urban poor with virtually no alternative except to seek housing in the Indian cities are also being buried mushrooming slums. About one third of under their own waste. Over 160,000 urban dwellers live below the poverty metric tonnes (MT) of municipal solid line and in subhuman conditions in waste is generated daily in the country. such slums, without access to the This is set to increase to 260 million basic minimum facilities of drinking tonnes per year by 2047. If this waste water, sanitation, medical care, and is not disposed off in a more systematic public hygiene”.xiv manner, more than 1,400 sq km of land, which is equivalent to the size of A recent study has indicated that about city of Delhi, would be required for 30.5 million Disability-Adjusted Life its disposal.xiii Years (DALYs) are lost each year owing to the poor quality of drinking water “The JNNURM has started changing and the absence of sanitation facilities. that for a fraction of the cities in The financial loss in terms of productivity the country, but the investment and has been quantified at Rs 360 billion absorption deficits are so large that is (US$9 billion) annually.xv becoming difficult even to catch-up with the expanding informality and growth It is a known fact now that population in city sizes”, reads the IIHS report. growth and economic development are contributing to several serious What is worrisome is the fact that environmental problems in India, such number of urban poor is rising while as land/soil degradation, chopping

xiii.http://www.ebtc.eu/pdf/111031_SNA_Snapshot_Waste-management-in-India.pdf xiv. http://www.unrisd.org/80256B3C005BCCF9/httpNetITFramePDF?ReadForm&parentunid=CDDA9B7D9 36EC7C3C1256FE900556FFD&parentdoctype=documentauxiliarypage&netitpath=80256B3C005BCCF9/ (httpAuxPages)/CDDA9B7D936EC7C3C1256FE900556FFD/$file/11-Chakra.pdf xv. http://www.unrisd.org/80256B3C005BCCF9/httpNetITFramePDF?ReadForm&parentunid=CDDA9B7D9 36EC7C3C1256FE900556FFD&parentdoctype=documentauxiliarypage&netitpath=80256B3C005BCCF9/ (httpAuxPages)/CDDA9B7D936EC7C3C1256FE900556FFD/$file/11-Chakra.pdf

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MRE15.indb 89 04/12/14 11:43 am off forests, habitat destruction, loss magnitude of air pollution in the country of biodiversity, unsustainable energy also pulls up the number of people demand and air pollution. According suffering from respiratory diseases and to Dayanand Satihal and L D Vaikunte’s many a times leading to deaths and research paper ‘Population Pressure on serious health hazards. The situation Development and Environment in India’: is also similar for water pollution, as “The urban growth leads to an increase both ground water and surface water in the pollution levels and exposed contamination leads to various water population to serious environmental borne diseases.”xvi health hazards... The considerable

AFFORDABLE HOUSING AND SUSTAINABLE CITIES

The Union Ministry for Housing and important to assess the Centre’s role in Urban Poverty Alleviation defines providing affordable housing. “affordable housing” in the context of India as “houses ranging from In 2010, The Maharashtra government about 300 square feet (super built up and MCHI launched a large scale area) for EWS [economically weaker affordable housing scheme called section], 500 square feet for LIG [lower “Homes for All” to construct five lakh income group] and 600 square feet affordable homes in the next five years. to 1200 square feet for MIG [middle But, three years down the line, not income group], at costs that permit much work has happened on this front. repayment of home loans in monthly “Mumbai is flush with high-end housing instalments not exceeding 30 per cent units, of which fifty per cent are right to 40 per cent of the monthly income of now empty having been financed by the buyer.”xvii This definition has been black money and investors. Affordable created with the consideration that housing, which is a crying need, sees the EWS and LIG segments suffer the no champions because the people who most from lack of access to affordable need them don't have deep pockets,” homes. The Government of India’s 10th said Aggarwal. Plan and 11th Plan estimates of 24.7 million and 26.53 million shortages Apart from constructing affordable respectively have shown that 99 per homes, the need of the hour is to build cent of these shortages accrue to the sustainable cities. A sustainable city EWS and LIG sections. Due to the is a city designed with consideration sheer size of this deficit, it is extremely of environmental impact, inhabited

xvii. http://orfmumbai.wordpress.com/2010/08/07/orf-discussion-paper-affordable-housing-policies-for- mumbai’s-poor/

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MRE15.indb 90 04/12/14 11:43 am by people dedicated to minimization The process of city planning must also of required inputs of energy, water be turned upside down and it must take and food, and waste output of heat, into consideration the needs of urban air pollution and water pollution. A poor. It must recognise the informality sustainable city should have the smallest that exists in our cities, and then look possible ecological footprint, should be for ways to formalise it. Cities also need able to feed itself with minimal reliance to think and plan differently to meet the on the surrounding countryside, and growing water and excreta challenge. power itself with renewable sources It is a humungous task. of energy.xviii Yes, it is easier said than done. Yes, the At present, Indian cities are extremely ill road ahead is riddled with potholes. prepared to address the environmental But, a beginning has to be made. Now fallouts of the aggressive building or never. construction that is underway. In India, buildings are responsible for 40 per cent of the energy use, 30 per cent of the raw material use, 20 per cent of water use, and 20 per cent of land use in cities. At the same time, they cause 40 per cent of the carbon emissions, 30 per cent of solid waste generation, and 20 per cent of water effluents. “Nearly 70 per cent of the building stock that will be there in 2030 is yet to be built in India. This will have enormous impact on the quality of urban space; water and energy resources in cities; and waste generation. Unless guided with right principles for location choices, architectural design, appropriate choices of building material, and operational management, the building sector can make cities unliveable,” warns New Delhi-based Centre for Science and Environment.xix

xviii. https://en.wikipedia.org/wiki/Sustainable_city xix. http://www.cseindia.org/content/indias-building-sector-must-stop-resource-guzzling-if-it-wants-be-called- green

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MRE15.indb 91 04/12/14 11:43 am MRE15.indb 92 04/12/14 11:43 am Photo Credit : Nikhat Shaikh 04/12/14 11:43 am MRE15.indb 93 MRE15.indb 94

094 /9 Photo Credit : Nikhat Shaikh DHARAVI REDEVELOPMENT: HORIZONTAL VERSUSVERTICAL? 04/12/14 11:43 am DHARAVI REDEVELOPMENT: HORIZONTAL VERSUS VERTICAL?

PUKAR

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MRE15.indb 95 04/12/14 11:43 am CONTEXT RESEARCH DESIGN

Dharavi and its plans for redevelopment PUKAR’s methodology of community have generated a tornado of talks for based participatory research has the past several years. The present always used research as a tool for day Dharavi looks very different from advocacy and our past experience in the small, 16th century fishing village conducting the interviews and surveys, it once was. The slum, which lies on PUKAR’s mainstay is that the youth from prime property and is in close proximity the communities of Mumbai (also known to transportation lines, the Bandra Kurla as Barefoot Researchers) are trained to Complex and other important new conduct research. From August 2011 business districts, has caught the interest to February 2012, the Mythologies of real estate developers who wish to of Mumbai through Media team and redevelop and vertically expand the Barefoot Researchers conducted one area. Despite significant local opposition focused group discussion, 500 resident to the Dharavi Redevelopment Plan families were surveyed through short (DRP) and the slum's integral role in the personal interviews and six in-depth functioning of Mumbai, the planning interviews in Dharavi. These interviews process is top down, opaque and were conducted in 25 of the 85 severely lacks community participation. communities in Dharavi, communities What will hinder Maharashtra Housing that PUKAR has been researching, Area Development Authority’s (MHADA) archiving and building relationships redevelopment plans from benefitting with since 2007. Dharavi residents and improving quality of life is this lack of community It should be noted that all the respondents opinion and the failure of the media in were informed about the content of the presenting multiple perspectives and research and audio/video consents opinions on the plan? of the respondents were obtained for putting this information in the public In an effort to document Dharavi's past domain. and uncover it present needs, Partners for urban Knowledge Action and Research (PUKAR) conducted a community-based study on redevelopment. This study helps us understand the needs and aspirations of the very people for whom redevelopment will have the largest impact, those who are excluded from the mainstream discussion.

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MRE15.indb 96 04/12/14 11:43 am DEMOGRAPHICS

61% of the respondents surveyed were from Maharashtra, surveys were taken 18-30 years old and 37% were 31-60 from people spanning several origins, years old and 2% were 61 years and including Uttar Pradesh, Karnataka, above. 68% of the respondents were Tamil Nadu and Gujarat. 73% of Hindus. The remaining respondents interviewees were part of joint families. were Muslim (24%), Buddhist (5%) and 45% of interviewees migrated to Christian (3%). 79% of those surveyed Dharavi because of family ties in the make less than 2 lakhs per year. While area, whereas 39% of interviewees 43.8% of the respondents are originally were born in Dharavi.

The following discussion elaborates the questions raised by the Barefoot Researchers and the responses by Dharavi residents.

WHAT IS REDEVELOPMENT?

Although initially announced in 2004, from Dharavi's Bagicha community the Dharavi Redevelopment Plan (DRP) says from her 150 sq. ft. home. The has been marred by delays due to study shows that 94% of those surveyed underlying political and legal tensions. claim they know about redevelopment. The word redevelopment has been Furthermore, 97% respondents claim tossed around for years for many of to want redevelopment. However, the Dharavi's residents. It is treated with little details of the DRP continue to remain significance anymore. People" don't vague, and this has caused many take redevelopment seriously anymore. residents to expect different things from No one has hope that it will ever the plan. happen", Kalpana Jadhav, a woman

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MRE15.indb 97 04/12/14 11:43 am PUBLIC AMENITIES AND SANITATION

According to Rubi Sharma, a 34 year- to improve quality of life of Dharavi's old resident of Rajiv Gandhi Nagar, residents, much of the current plan "Redevelopment means to give us a is contradictory, making this difficult good house, get rid of garbage and to achieve. diseases and give proper toilets". Like her, many residents expect the From this response, we find that the government to address sanitation prominent issue in Dharavi is not issues with redevelopment. When necessarily about living space, but of asked 'what will be the advantage public amenities and sanitation. When of redevelopment?’ 428 respondents asked if residents were satisfied with the expressed that there will be 'no current living space, 74% of Dharavi garbage' and 374 respondents residents said yes. The reasons for this said they will 'get a big home'. 461 response was related to accessibility of respondents aspire for Dharavi to be services (297 respondents), proximity to 'clean and beautiful'. When asked railway stations (255 respondents), and about their concerns regarding their 234 respondents are satisfied because community, 313 respondents said they are homeowners. When asked to there was a 'lack of toilet' and 263 voice their concerns, however, the most respondents said there was 'no open glaring issues pertain to water quality, space'. Will these expectations and waste management and access to concerns be addressed with the current toilets - all serious public health issues. DRP? According to residents, although redevelopment was initially announced "We have to go very far for the toilet," Rubi Sharma says. "Even at night, with fear of getting robbed, and even in the rain". Some families have had to move out of Dharavi because their grandparents were unable to walk so far to use the bathroom. According to Sudhir Sonawane, a leather businessman, "There are very few toilets in Mukund Nagar. We have to walk 500 ft. for the nearest toilet. Water gets logged in the monsoons and contaminated water flows into our homes. Diseases spread", he adds. Community members are concerned with the current state of sanitation

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MRE15.indb 98 04/12/14 11:43 am and expect that this will be improved lines and water supply be implemented post-redevelopment. 428 out of the effectively? Can drainage and water 500 respondents expect that garbage lines follow existing pathways? How can cleanup and access to clean water will we be sure that these basic amenities take place. From the urban planning will be met in vertical housing? perspective, in an area as dense and complex as Dharavi can sanitation VERTICAL PLACEMENT AND ITS IMPLICATIONS

According to Harshali Khandare, a in towers because "We see and admire 21 year-old who was born and raised people living in towers. We aspire to in Dharavi, "redevelopment means live in towers like Nariman Point." These to live in a tower". As per our study, ideas have caused many residents to 82% respondents would like to live in believe that living in a tower will equate a tower. Moreover 439 respondents to better facilities. Lalubhai Compound want to continue to live in the same in Mankhurd is one example of the place post-redevelopment. The media poor maintenance of redeveloped high is largely responsible for perpetuating rises. The people who currently live in an image of wealth, respect and higher this compound, who previously lived class associated with high rise buildings. in slums, experience many problems Kalpana Jadhav, another interviewee, with the upkeep of facilities. Residents says many residents would like to live of the higher floors must carry buckets

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MRE15.indb 99 04/12/14 11:43 am of water up to their homes because here, but in towers or buildings you the water pressure is no longer strong can't expand further." She is worried enough to reach their rooms. Women how the high rise accommodations wash clothes and dishes just outside would house her entire family: "After the building. In essence, living in redevelopment we need at least 700 these poorly designed and maintained sq. ft. of space to accommodate our towers is not an improvement; in fact current family members, because our most residents face more obstacles children are getting married, so new than they previously had. When asked, family members will also arrive." 'what do you feel about living in a tower?’ 320 out of 500 respondents Vertical rehabilitation is not a expressed concerns with increases in sustainable solution for many Dharavi expenditure and cost of living. 179 out communities, due to cultural and of 500 respondents fear that they will livelihood factors. Dharavi is about 214 lose their current livelihood. Shrinivasa hectares in size. It houses about 67,000 Kuchan, a 37 year-old shopkeeper families. According to the existing DRP, living in Muslim Nagar says "I think we the current population will be re-housed are better off than those people. I don't on 43% of their current land area. The think there has been a positive impact remaining 57% of area will be used on the lifestyle of those who have for commercial or other development. already undergone redevelopment and This will make Dharavi three times more shifted into buildings." Another concern dense than anywhere else in the world. expressed has to do with living in joint A space this dense will not allow for families, which means that generations an improved and sustained quality of of the same family live under the same life. Instead, horizontal living needs to roof. According to the study, 73% of be improved but retained with dignity those surveyed live in a joint family and respect.1 Another problem that is pattern, and it would be difficult to yet to be addressed is land acquisition retain this important cultural aspect and as 15% of the land that needs to of the Dharavi community. Sujata be redeveloped is privately owned. This Khonkane, a 45 year- old teacher who adds another dimension to the debate. currently lives in a 500 sq.ft home says "I feel living like this [horizontal slums] is better because when the family gets bigger, there is scope to build and expand space. 3-4 families can live

1. ‘Dharavi – Adjusting to the Urban Poor’, Shirish Patel, Mumbai Reader, 2009

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MRE15.indb 100 04/12/14 11:43 am WHAT THE COMMUNITY NEEDS?

The new plan for Dharavi must also With much of the Dharavi population incorporate community spaces such as living in cramped houses smaller than libraries, schools, open maidans and 200 sq. ft., finding a space to conduct medical centres. Our studies reflect that daily activities like studying, taking a the most urgent amenities requested walk, gathering or simply socializing by Dharavi’s residents include schools is a challenge. When asked where (437 respondents), playgrounds (436 respondents go to take part in such respondents) and hospitals (380 activities, 371 out of 500 respondents respondents). There are no open said the only space they can find for and safe spaces for children to play. such things is the narrow corridor just "Small children trip and fall into the outside their homes."There are no open gutter", says Harshali Khandare. community spaces right now - especially Other residents agree with the concern for women. They usually sit at their door with community spaces and services; to chat with their neighbours. There are "If there is a fire, the fire brigade will no such spaces where women can come never reach in time due to narrow and meet and share their happy and sad lanes. I know so many people who moments with each other", says Sujata have died in fires here". Shrinivasa Khonkane. The study also shows that Kuchan shares the same sentiment: 276 out of the 500 surveyed express "My kids shouldn't have to live like this. that such activities are conducted on They should designate space to build open grounds (maidans). However, a school." "Our days are over but we these grounds are diminishing, and are want our children's lives to be better," not being maintained properly. "There Rubi Sharma adds. is one open space in my community," shares Govind Kasare, 47 year-old. "In the morning, the space is used to wash clothes and dishes. In the afternoon you can see women gossiping and children playing. At night, sometimes different community programmes are organized. At the same time, this space is used as a garbage dumpsite and space for open defecation. It is a nice maidan with potential but it is very badly maintained." These concerns are being heightened with the potential implications redevelopment will have on Dharavi and these spaces.

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MRE15.indb 101 04/12/14 11:43 am The Dharavi Sports Complex, access to the playground where the located near Rajiv Gandhi Nagar, sports complex now stands. This group was constructed by the Mumbai now travels to Mahim everyday to Metropolitan Region Development practice their sport. Will the Bal Mitra Authority (MMRDA). It covers 12, 427 Krida Mandal be able to return to their square feet, an area that was once one playground once the sports complex of the rare open spaces left in Dharavi. becomes functional? Could provisions With rumours of life time memberships be made to accommodate changes and being offered between Rs. 1-5 lakhs, it development in the remaining open would exclusively attract customers only spaces so that they can be accessible from the upper middle class of Mumbai. and used by residents of Dharavi? Will For the past four years, the youth of Bal moving to high rise housing adequately Mitra Krida Mandal, one of the popular meet these needs? football clubs in Dharavi haven't had

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MRE15.indb 102 04/12/14 11:43 am TRANSIT CAMPS & TEMPORARY ACCOMODATION

When asked to define 'redevelopment', (MHADA) has not made any Sujata Khonkane described it as "better specifications. Nonetheless, the Dharavi living space with good facilities", "we community needs to be offered some will get temporary accommodation form of legitimate alternative housing during construction" and "we will live in during the construction process. Our the same place after it is rebuilt". Here, study shows that only 48% respondents Sujata, like many others, is assuming know about transit camps. Temporary that temporary accommodation will housing during redevelopment has be provided, and for free. We do not not yet been discussed and needs to know if transit camps are offered by the be addressed before redevelopment government because the Maharashtra takes place. Housing and Development Authority ECONOMIC IMPLICATIONS

What often seems to be forgotten food products in many confectionaries when considering redevelopment and university mess halls across plans is how they will affect Dharavi's Mumbai, as you will find leather goods booming informal economy. Dharavi in many stores across the city. Dharavi's consists of an accumulation of small GDP is at least 30% higher than the scale businesses and workshops - a national average, and this is due to the web of successful entrepreneurs who many industries and workers it houses, produce goods that the city of Mumbai including the leather industry and the - and even the world market - is highly industry for processing recyclable waste dependent on. You will find Dharavi's for the city. 80% of Mumbai's waste is recycled by approximately 10,000 workers2. The total annual turnover of Dharavi is somewhere between $650 million to $1 billion US dollars3.

Residents who use their home as their workplace struggle to see how they will conduct their businesses like pottery or leather in such tiny high rise rooms. When asked 'what will happen to your job after redevelopment?’ 237 respondents expressed their fear of losing current livelihood. Those who have small scale businesses might face

2. Dharavi’s Future’ – A talk by Parag Sanghani 3. http://news.bbc.co.uk/2/shared/spl/hi/world/06/dharavi_slum/html/dharavi_slum_intro.stm 9 / 103

MRE15.indb 103 04/12/14 11:43 am many problems after redevelopment. into towers, everything will have to They might not be able to operate their be moved into one space. There may small scale businesses in the same not be enough room to operate their manner as they do now. "Right now businesses. How will they access their there are many businesses in Dharavi, customers? How will I retain the same including leather, garment and women customers I have now once residential who make papad. These people have and commercial areas separate?” their store and home downstairs and Shrinivasa Kuchan asks. their factory upstairs. If they are moved WHO SHOULD REDEVELOP DHARAVI AND WHY?

Many community members (229 out of homes themselves, but at the same 500 respondents) want MHADA to carry time fear it will be a waste of their out the redevelopment process because money if the redevelopment process they believe the government can be does start." Limitations with self held accountable for their actions more development, however, must also be so than a private builder, should any taken into account. Self redevelopment problems occur in the future. "MHADA will not accommodate needs to improve should redevelop the area because they community spaces, including roads, do everything systematically", insists sewage lines, garbage, toilet blocks, Harshali Khandare. Sujata agrees, and the development and maintenance saying "we can go to them if anything of schools, libraries and public spaces. goes wrong". Other Dharavi residents In other words, self redevelopment is not believe that moving into MHADA a sufficient answer to meet the needs housing will be stripping the Dharavi of Dharavi. community of their self sufficiency. "I don't want to be dependent on MHADA", Shrinivasa heatedly says. "If we leave redevelopment in the government's hands, we'll only see it when we get old. Maybe we will never see it happen."

Most families have refrained from sprucing up their homes themselves for several years and are waiting for MHADA start redeveloping. Some others, according to Shrinivasa "are taking loans and redeveloping their

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MRE15.indb 104 04/12/14 11:43 am REDEVELOPMENT: IMPROVEMENT OR DETERIORATION?

The prospect of losing the very basis of sleep outside the house every night", your livelihood is a terrifying thought. he says. His family does not have their "Development should happen, but not own toilet and face difficulties using by displacing us", exclaims Govind one room for all activities, including Kasare. Almost all interviewees shared cooking, changing, sleeping, working, this same sentiment; "The government studying, and watching TV. Despite has not shared a proper plan with us. this, he refused the hypothetical offer if We know Sector 5 will be redeveloped better facilities and chooses to remain in by MHADA, but what about the other Dharavi as he is now. "We will not leave four? What would be the alternative Dharavi. This is our home", declares accommodation? There is no clarity and Rubi. "We were born here and we will therefore there is fear. It might turn into die here." Sujata Khonkane agrees. a disaster", Kalpana Jadhav adds. As "We will not leave. We would like to go part of our study, residents were asked in towers, but at least those who have 'if you were offered 10 better facilities 500 sq. ft. homes should get 700 sq. ft. but are required to leave Dharavi, or Dharavi is a central place, everything receive very limited facilities but are is so accessible.", he explains. "All the allowed to stay in their current living businesses work in the city. If people space, 81% chose to stay in Dharavi and have to shift to the suburbs, a lot of refuse the facilities offered. Shrinivasa, time will go into travel. There will be no 37, has been living in Muslim Nagar his communication in families; people will entire life. He shared a 9x10 ft. room get tired the moment they reach home." with 4 other members of his family. "We are so cramped that some of us Additional contestation resulting from existing redevelopment plans in regards to square footage includes a visible increase in illegal activities over land. Such activities include increases in rent prices, the forging of official documents, and fights between community members. Many families would build additional doors on their small houses in order to make their property size seem larger for the surveyors who came on behalf of MHADA to note down the square footage of every family. This way, they might be compensated for more square footage than they currently have, after redevelopment. When

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MRE15.indb 105 04/12/14 11:43 am asked if they were familiar with this job because everyone knows I live in increase in illegal activities involving Dharavi." Harshali continued to explain square footage, 42% of respondents the difficulties her family of four faced agreed and shared stories in which when living in a 4x10 ft. slum for 7 they were eyewitness to such activities. years; "It became difficult to breathe It is widely known that Dharavi is because the smell of atta was in the air stereotyped to be a place for gangs every day, water would leak from the and criminal activity, and this is causing cracks in the roof, the house would fall, some younger people in Dharavi, like the still water in the sewage just outside Harshali Khandare, to want to leave. our home would collect mosquitoes..." "Me and my siblings would get teased at school and now at college for living in Dharavi. It is hard for me to find a

AWARENESS AND PARTICIPATION

From March 8th to April 8th, 2013, on redevelopment. Dharavi residents MHADA posted maps of the DRP have lost hope with regards to MHADA along Dharavi's periphery. Residents of redevelopment. Dharavi were provided an opportunity to speak up and voice their concerns or ask questions during this one month period. Very few people were aware of this opportunity - the DRP itself was not easily accessible or comprehensive to Dharavi residents - resulting in only 765 people who voiced their opinions, many of whom weren't even residents of Dharavi. Furthermore, PUKAR's study shows that many women do not participate in the redevelopment discussion. 58% of respondents agreed that this was a problem; "The problem is that we don't get enough information about redevelopment meetings, but if women got information we would go and attend.” Kalpana says. There is currently very minimal discussion happening in communities

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MRE15.indb 106 04/12/14 11:43 am LIMITATIONS OF THE STUDY

Some limitations presented in the contribute. Other limitations include study include the sample size and resistance by residents to talk on the socio-cultural hindrances. It must be topic of redevelopment and hesitation kept in mind that only 500 Dharavi from the community to openly talk families were interviewed, belonging about caste and religion during data to 25 communities, and may not collection. Some respondents were be representative of every opinion. also apprehensive about speaking into Additionally, 72.5% of all respondents a tape recorder. PUKAR's researchers were male and 27.5% were female. also faced difficulties in defining the Most females were not willing to organization's role in the community. speak up as they felt they did not When analyzing this study, these know enough about redevelopment to limitations need to be paid heed.

COMMUNITY’S APPROACH TO REDEVELOPMENT

This study reveals three prominent in their current homes (retrofitting) as findings related to the community’s opposed to them having to move into aspiration about their future tied to the a tower. Since the current living form redevelopment plans. allows them the flexibility to make room for the additions in the family, First, the residents definitely want they prefer this form over that of the redevelopment although there was tower since that form gives no flexibility diversity of opinion about the urban for expansion. form it would take. The majority of people would be happiest if they Third, they are willing to live in a high- would be allowed to stay where they rise apartment (tower) in the hope and were since both their living and their only hope that this arrangement would livelihoods are located in one place. give them quicker and efficient access They prefer this arrangement to living in to the amenities so that the quality of a tower where the quality of their daily their lives would improve. living might improve but they would not have livelihood opportunities. They feel that the media is also not projecting their aspirations or their Second, their most urgent focus remains demands properly. sanitation, water and other public amenities. And they would prefer that these amenities be provided to them

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MRE15.indb 107 04/12/14 11:43 am The residents feel very offended in the redevelopment. If profit making about their exclusion in the process of is their true motive then it needs to planning related to redevelopment, a clearly stated. process that would have a long term impact on their lives, livelihoods and From this study, the PUKAR researchers future. They lament about the fact have the following suggestions for the that the plans exhibited at few places policy makers who are planning the in Dharavi by the policy makers are redevelopment process in Dharavi: so very complicated and difficult to comprehend for ordinary citizens. This The policy makers need to make every fact prevents them for giving their own effort to seek inputs from the residents inputs to the policy-makers. That their related to redevelopment plans. perspectives are neither taken into consideration, not debated about in the The residents of Dharavi need to be public domain. They protest the fact that made stakeholders in the actual process Dharavi is called a slum. In their view of development by allowing them to they have invested incredible amount of contribute in kind to the process. efforts, energies and funds in building Dharavi, brick by brick, without any The idea of retrofitting the current form help from governments, banks etc. They in term of better delivery of water, have successfully built their homes and sanitation and roads is an idea whose their businesses but their contributions time has come and that option needs to Dharavi and to the city are neither to be explored in Dharavi at least on a acknowledged nor appreciated by pilot basis. anyone. They take strong objection to considering Dharavi as one Improvements in sanitation and water homogenized slum community. They supply, encouraging the documentation know that Dharavi is an amalgamation of property rights and encouraging low of many diverse communities with their rise development that retains community own rich cultural and social heritage, character should be considered by and their own aspirations for the future MHADA as a priority. shaped by their livelihood options. They understand the complexities of Communities are collections of stories their neighbourhoods and hence their that cannot be left untold. We need the resolve that they are the best judges government and the media to encourage for giving inputs in developmental the re-examination of citizens' rights, plans. They also commented about the which is the very essence of community, fact that the government is not being and the future of our city. transparent about their true motives

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