Report Inner Pages 2013

Government of Karnataka Evaluation of the Processes in the Implementation of Jawaharlal Nehru National Urban Renewal Mission in Karnataka KARNATAKA EVALUATION AUTHORITY PLANNING, PROGRAMME MONITORING AND STATISTICS DEPARTMENT OCTOBER 2013 EXECUTIVE SUMMARY he Jawharlal Nehru National so in the advanced world where the urban- T Urban Renewal Mission has been rural relationship has been defined for a conceptualized as more than the sum of its century or more. But while India is in the projects. Its strategy is designed to link midst of rapid urbanization we are still in a urban policy interventions to the specific situation where the 2011 Census records that requirements of individual cities. The less than a third of the population lives in exercise begins with the formulation of the urban areas. The process of transformation City Development Plan with the help of from the rural to the urban is thus far from consultants, which identifies projects that are over. And the relationship between villages expected to generate specific outcomes in and cities remains alive, not just because of the city. And the support of the Government migration from the rural to the urban but of India in the financing of this process is also because the old homes in villages linked to the state governments and urban remain a safety net for workers who find local bodies introducing reforms in their the pressures of the city unrelenting. A functioning. An evaluation of JnNURM must meaningful understanding of policy then look at the entire process and not interventions in the urban cannot then begin confine itself to the implementation of the with individual cities. It must go back a step projects. and begin with a glimpse into the process of In evaluating JnNURM in Karnataka, urbanization and its influence on individual as indeed any other Indian state, we are cities. faced, right at the outset, with a fundamental The process of urbanization in question: is the city the ideal starting point Karnataka is not evenly spread across the for an urban policy intervention? It may be state. In terms of trends in urbanization there NATIONAL INSTITUTE OF ADVANCED STUDIES 1 EVALUATION OF JNNURM IN KARNATAKA are at least five distinct categories of process of urbanization may not be as strong districts. The four districts of Bengaluru, in these districts as it is in Dakshina Kannada Mysore, Dakshina Kannada and Udupi are and Udupi, the fact that they are a part of the marked by strong urbanization trends. relatively backward region of northern Dharwad, Bagalkot, Belgaum, Ramnagara Karnataka may be reason enough to develop and Bengaluru Rural have registered them as engines of growth. Taking this larger moderate signs of urbanization. Bidar, Kolar, picture into account would require that the Chikballapur, Haveri, Chitradurga, Hassan, City Development Plans be designed to not Davangere, Tumkur and Chamarajnagar are just cater to the needs of a particular city in districts with weak urbanization. Mandya, isolation but also in a way that helps manage Chikmagalur, Shimoga, Uttar Kannada, the larger process of urbanization as a whole. Kodagu and Gadag raise the possibility of de-urbanization. And Bellary, Gulbarga, CITY DEVELOPMENT PLANS Yadgir, Bijapur, Koppal and Raichur are There are also other reasons why the districts facing population pressure in both current approach to the City Development their rural and urban areas. Plans may need a review. At the outset, even In terms of the dynamic roles they play when seen in isolation, the City Development in the larger process of urbanization it is Plans are not consistent with the task of useful to categorize the districts into three urban renewal highlighted in the name of groups: those that are primarily engines of the Mission. The renewal of the inner city growth; those that are primarily centres of has a very low priority in the CDPs of the skill development for the neighbouring rural two Mission cities, Bengaluru and Mysore. population; and urban centres under The CDPs do relatively better when dealing population pressure and thus in urgent need with heritage, especially in Mysore. But the of basic facilities. While the precise place of heritage in the CDP for Bengaluru, categorization of all of Karnataka's urban as revised in 2009, is minimal and rather centres into these three groups is beyond the superficial. It is thus clear at the very first scope of this evaluation there are a couple of stage of the Mission that the focus is more cases that stand out even in preliminary on urban development rather than on urban analysis. In addition to Bengaluru and renewal. Mysore, Mangalore with its influence over In dealing with urban development the the districts of Dakshina Kannada and Udupi CDPs tended to come up short when faced would be an urban centre that needs to be with four major challenges. First, there was treated as an engine of growth. In addition, a the challenge of the mismatch between the city in the three contiguous districts of administrative area and the economic area Dharwad, Bagalkot and Belgaum can also of a city. The CDP was expected to plan for be treated as an engine of growth. While the the area that came within the administrative 2 NATIONAL INSTITUTE OF ADVANCED STUDIES EXECUTIVE SUMMARY boundaries of the city. Indeed, when A third constraint built into the City Bengaluru transformed it administrative Development Plans is that the poor are boundaries with the creation of the Bruhat believed to live only in slums. Thus projects Bengaluru MahanagaraPalike in 2007, after catering to the Basic Services to the Urban the first CDP was made, it was decided to Poor are entirely confined to slums. A create another plan leading to the revised striking result of the NIAS survey however CDP of 2009. The administrative boundaries is that slums are far from being the only of Bengaluru, however, left out large parts places where the poor reside. Less than 30 of the information technology industry, per cent of the very poor in Bengaluru live including Electronic City. As a result the area in slums, and slums account for the residence that was being planned for in Bengaluru left of less than 14 per cent of the other poor. A out the main engine of growth in the city. In fairly significant number of the poor live in Mysore too there is a mismatch between the villages that have been engulfed by the city. boundaries that emerge by tracing the built And over three-fourths of all of Bengaluru's up areas of the city and the administrative poor live outside slums. The pattern in boundaries of the city. Moreover, the tourism Mysore is equally interesting. The city is well circuit around Mysore, which is an on its way to becoming slum free. But this important economic resource of the city, only means the poor have to live elsewhere. includes Srirangapatna which is beyond not A fourth limitation of the CDPs arises only the city's administrative boundaries but from the fact that when planning for the city also the district boundary. in isolation there is a tendency to ignore the The second major challenge was in pressures that the city places on its terms of managing the growth of the city. surrounding areas. The CDP for Bengaluru The revised CDP for Bengaluru laid shows a lack of sensitivity to the possibility considerable emphasis on the development of a conflict of interests between the city and of townships. It did not however adequately the rural areas. In its SWOT analysis the distinguish between a residential township CDP for Bengaluru lists the water and one that was built around an economic availability in the Cauvery basin as one of activity. Bengaluru's history suggests that the strengths of the city. But the availability townships built around an economic activity, of this water is subject to an inter-state such as the public sector townships, do dispute. It is also not clear that farmers succeed. But residential townships, like the within Karnataka will be willing to allow one built in Kengeri, tend to stagnate until Bengaluru as much water as the city they grow towards areas of the city offering demands from the Cauvery. The city is economic activity. The CDPs however already beginning to feel these pressures in focused primarily on residential townships. poor-monsoon years. NATIONAL INSTITUTE OF ADVANCED STUDIES 3 EVALUATION OF JNNURM IN KARNATAKA These limitations of the City to carry out either through their own funds or Development Plans were compounded by through funds from various lending agencies. erroneous estimates of the growth in the They then try to use the JnNURM funding as populations of Bengaluru and Mysore. The an alternative source of finance. CDP for Bengaluru begins by estimating In making these projects consistent with that if existing trends continue the city (the JnNURM requirements, as well as in later core BMP area and the CMCs together) will stages of the process, consultants play an reach a population of 98.15 lakhs by 2011.1 important role. Their inputs are used both in The CDP however goes on to argue that the formulation of the detailed project report Bengaluru cannot maintain its growth rate and the management of the implementation and hence projected the 2011 population of of projects. Each component under JnNURM Bengaluru to be just 80.15 lakhs. The 2011 has its own panel of consultants and it is rare Census provisional figure of the population to see a consultant working on a range of of BBMP is, at 84.44 lakhs, more than 5 projects under different components. In per cent greater than the estimates used in dealing with consultants both at the level of the CDP.

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