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New Towns in India a Report on a Study of Selected New Towns in the Eastern Region

New Towns in India a Report on a Study of Selected New Towns in the Eastern Region

FOR RESTRICTED CIRCULATION

NEW IN A REPORT ON A STUDY OF SELECTED NEW TOWNS IN THE EASTERN

BY

K.C. SIVARAMAKRISHNAN

A HOMI BHABHA FELLOWSHIP AWARD PROJECT WITH SUPPORT FROM THE INDIAN INSTITUTE OF MANAGEMENT CALCUTTA

1976-77 C O N T E N T S Page 1. PREFACE … … (i) 1.1 Map on Class I and New Towns in India. 1.2 Annexure to Map

2. CHAPTER ONE – Introduction 1 2.1 Map No. 1 - Location of the New Towns under 7 Study

3. CHAPTER TWO - The Six Towns 13 3.1 Map of … 15 3.2 Map of BHILAI … 21 3.3 Map of … 27 3.4 Map of BOKARO … 37 3.5 Map of … 41 3.6 Map of JAMSHEDPUR … 45

4. CHAPTER THREE - The Physical Issues 54

5. CHAPTER FOUR - Social & Common Issues 96

6. CHAPTER FIVE - The Governance of the 134 New Towns

7. APPENDIX - List of Items and Tables 167

*** P R E F A C E

It was a winter afternoon some eighteen years ago and we were in Durgapur - a group of youngmen on a pilgrimage to India's new temples as part of our training to serve the government. The sal leaves were brown with the dust of construction. Chimneys were rising skywards. Vast stretches of space were being drawn into canopies of steel. In the evening lights went up in the neat row of houses nestling in a small clearing of the jungle. One more , one more dream for the nation, was taking shape. The romance of that moment lingered and when I returned to Durgapur eight years later to serve its Development Authority the interest grew. A six year spell of struggle with the travails of Calcutta has only reinforced that interest and faith in the New Towns. The award of a Homi Bhabha Fellowship and a grant from the Indian Institute of Management Calcutta have made this study possible. I am grateful to the Fellowship Council and in particular to its Honorary Executive Director, Dr. V.K. Narayana Menon. His patience with the ways of a civil servant has been consistent; his understanding, unfailing. Dr. Kamla Chowdhry Dr. Asok Mitra, Dr. S.C. Dube and Shri J.B. DeSouza had commended this study to the Council. I trust the report merits their faith. Shri Hiten Bhaya, formerly Chairman, Steel and now Director, IIMC, has been a constant source of guidance and help. I believe the tale of the New Towns (ii) is a strong interest which we share. In the conduct of the study I have learnt much from my colleagues at the I.I.M.C. Prof. Satyesh Chakrabarty has been the mentor of the project and I shall remember his support at every step of this study. I am also thankful to Prof. R.P. Aiyar, previously Acting Director -IIMC, Prof. Sanat Bose and Prof. Suren Munshi for their valuable assistance. A great many people have contributed in many ways to this project. I should acknowledge my gratitude - – to Shri K.J.M. Shetty and Shri R.S. Bhatnagar in the Ministry of Steel, Shri Saxena of Hindustan Steel, Shri S.K. Nanda, SAIL; Shri S.K. Sinha, Deputy Director, Census, ; and the Census authorities of Bihar, Orissa and M.P. for valuable assistance in compilation of data; – to Shri P.K. Paul, Manager; Shri J.N. Gaur, Administrator and Shri Sarbadhikari of Durgapur Steel; Shri S.R. Jain, General Manager and Shri T.D. Bhatia, Town Administrator of Bhilai Steel; Dr. P.L. Agarwal, General Manager and Shri P.C. Hota, Town Administrator of Rourkela Steel; Shri S. Samarapungavan, General Manager; Shri K.D. Jha, Town Administrator and Shri B.K. Gupta, Dy. Chief Planner of Bokaro Steel; for their assistance and the generous time given to the project-team during its many visits to these towns; – to Shri Bodhanwalla, General Manager and Shri Jankinath, Director of Town Services, Jamshedpur, for their abiding interest and abundant support for the study from the beginning; – to Shri A.L. Nair, Commissioner, Urban Development and Shri D.R.K. Pattanayak, Chief Town Planner, Orissa; Shri R.L. Bawa, Director of Town Planning, Bihar; Shri M.N. Buch, Commissioner, Housing & Urban Development, M.P.; Shri H.P. Roy, Chief Executive Officer, Durgapur Development Authority, and other officers in the concerned State Governments for assistance in the compilation of data; and

(iii) - to Dr. Barun De and his colleagues in the Centre for Studies in Social Sciences, Calcutta, for their valuable suggestions in the initial stages of this study. A study of this kind cannot be an individual's effort. The study team comprising Sm. Meena Subramaniam, Arun Kumar Sinha, Devananda Chatterjee, P.C. Kumar and Pradip Kumar Moitra, has worked with great devotion. It has been a pleasure working together with this team. As the target date for submission of the report drew near, concern shifted from contents to size. Shri G.C. Das surpassed all his past records in typing the entire manuscript with speed and diligence Shri Haridas Saha has typed the appendices. Mohd. Ilias, Shri Patras Singh, Shri Bhattacharjee, Shri Swapan Kumar Saha and Shri Sonilal have been responsible for cyclostyling and getting the paper ready for circulation. I am thankful to them.

I.I.M.C. Calcutta 30th June, 1977 (K.C. Sivaramakrishnan)

Annexure to the Map on Class-I and New Towns in India. Part I : List of towns with population one lakh and above Jammu and Kashmir 1. Jammu Punjab 1. Amritsar 2. Jullundur 3. Ludhiana 4. Patiala 5. Ambala Cantt. U.P. 1. Dehra Dun 11. Allahabad 2. Saharanpur 12. Varanasi 3. Moradabad 13. Mirzapur 4. Rampur 14. Jhansi 5. Bareilly 15. Meerut 6. Aligarh 16. Shahjahanpur 7. Mathura 17. Ferozabad 8. Agra 18. Ghaziabad 9. Gorakhpur 19. Muzaffarnagar 10. Kanpur 20. Fategarh-Farukhabad 21. Faizabad Rajasthan 1. Bikaner 4. Kota 2. Jodhpur 5. Udaipur 3. Ajmer 6. Alwar Madhya Pradesh 1. Gwalior 6. 2. Sagar 7. Bilaspur 3. Ujjain 8. Burhampur 4. Jabalpur 9. Ratlam 5. Indore (ii) Gujarat 1. Jamnagar 5. Surat 2. Rajkot 6. Nadiad 3. Baroda 7. Porbandar 4. Bhavnagar Bihar 1. Muzaffarpur 5. Ranchi 2. Darbhanga 6. Monghyr 3. Bhagalpur 4. Gaya Assam 1. Gauhati Orissa 1. 2. 3. Maharashtra 1. Nagpur 10. Ulhasnagar 2. Amaravati 11. Thana 3. Akola 12. Sangli 4. Malegaon 13. Aurangabad 5. Nasik 14. Dhulia 6. Ahmednagar 15. Nanded 7. Poona 16. Jalgaon 8. Sholapur 17. Bhusawal 9. Kolhapur 1. Warangal 7. Guntur 2. Vishakhapatnam 8. Machilipatnam 3. Rajahmundhry 9. Nellore 4. Kakinada 10. Nizamabad 5. Eluru 11. Tenali 6. Vijayawada (iii) Karnataka 1. Belgaum 6. Gulbarga 2. Hubli 7. Bellary 3. Kolar 8. Davangere 4. Mangalore 9. Bijapur 5. Mysore 10. Shimoga Tamilnadu 1. Vellore 9. Tirunelveli 2. Salem 10. Erode 3. Coimbatore 11. Tiruppur 4. Tiruchirapalli 12. Dindigul 5. Thanjavur 13. Kanchipuram 6. Madurai 14. Kumbakonam 7. Tuticorin 15. Cuddalore 8. Nagercoil Kerala 1. Calicut 2. Alleppey 3. Quilon West Bengal 1. 2. Kharagpur 3. Burdwan (iv) Part II - List of Urban Agglomerations comprising New Towns. 1. Bangalore Urban Agglomeration - a) H.A.L. Sanitary Board b) Devarajeevanhalli c) H.A.L. d) Jalahalli e) H.M.T. Township f) I.T.I. N.A.C. (Dooravaninagar) g) B.E.L. Township h) Kadugodanahalli 2. U.A. — a) Bhuli b) Kerkend c) d) Jorupokhara e) f) g) h) i) 3. Jamshedpur U.A. — a) Adityapur b) Bagbera c) Kalimati d) Railway 4. Madras U.A. - a) Avadi (Caruthipatti) b) Ambattur CHAPTER I : INTRODUCTION What are New Towns ? 1.1. It is necessary to define at the outset what is meant by a New Town. In the usage of the census the definition adopted for an is as follows:-1 (a) All places with a , corporation, cantonment or notified town area; (b) All other places which satisfy the following criteria : (i) a minimum population of 5000; (ii) at least 75% of the male working population being non-agricultural and (iii) a density of population of at least 400 per sq. km., i.e. 1000 per sq. mile. In the parlance of the census, New Towns is a label conferred on an area when it fulfils for the first time these criteria and can be identified as urban. Similarly, when an area which earlier had satisfied the criteria for being classified as urban, changes its characteristics the census de-classifies such an area as well. Thus in 1971 census 593 New Towns were added and 110 areas were de-classified as urban.2 1.2: For the purpose of this study, however, a New Town is taken as a town newly built. While in most cases this would mean a town constructed on a green field site or on a site practically uninhabited before, in some cases this would also include New Towns built in places of small settlements. In this sense of the term New Towns are not an unknown feature in this . The seven different capital built in including the of Edwin Lutyons are perhaps the oldest and continuous exercise in New Towns building. Fatehpur Sikri of Akbar and Jaipur of Sawai Mansingh are some of the historical examples. These cities, however, were all designed

: 2 : and built for the privileged - the rulers or the army. In each the layout and the pattern of settlement were exclusive and not for copy. Today they are built mainly to serve as bases for industry, homes for displaced persons, campuses for learning and seats of government. 2. The origins of India's New Towns: 2.1: The Railway towns of British India can be regarded as the beginning of India's New Towns as the term is usually understood, "There are two " Digby had observed in 1901 "the Anglosthan of the Presidency and chief provincial cities, of the land where investments have been made, the land within fifty miles of the railway lines and the rest of the country is Hindostan".3 Within the Anglosthan and the fifty mile belt grew the railway . In some cases they were only a collection of employees quarters and station buildings but several of them became sizeable settlements with bazaars, temples, churches, schools, playgrounds, cinemas, clubs and all other paraphernalia. In many parts of the country then railway settlements formed the nuclei of though the Railway companies were themselves not aware of it. Kharagpur or Asansol in eastern India, Tundla or Itarsi in the north, Manmad or Bhusaval in the west and Arkonam or Waltair in the south are now familiar names of cities which originated as railway towns. By 1941, there were over thirty such settlements with population well above 10,000 in each (see table in Appendix). Though one might have wished the contrary these Railway Towns have been the precursors of New Town development in India after independence. The form and sustenance of many post- independent New Towns are much the same as the railway towns built several decades earlier. Jamshedpur and Bhadravati, the two steel towns founded in 1908 and 1921 respectively have in some ways been the exception. : 3 : 2.2: The partition of the country followed by the influx of refugees and their resettlement marked the beginning of New Towns in post-independent India. Faridabad near Delhi, Nilokheri in Punjab, Gandhidham in Gujerat and Asokenagar in West Bengal are some of these refugee resettlement towns. There were also a dozen or so "model towns" mainly in the Punjab area that came up in the forties, as planned extensions to existing cities. Most of these were suburbs which were incorporated into the main city in due course and in that sense cannot be regarded as New Towns of significance. Chandigarh, Bhubaneswar and much later Gandhinagar are the capital cities built after independence. The building of New Towns as a major urban phenomenon in India, however, commences with the construction of several industrial all over the country. The setting up of the Damodar Valley Corporation and the construction of a series of power stations provided a generous stimulus for new industrial centres in the valley. Similar multipurpose projects like Bhakra Nangal, Tungabhadra and were launched elsewhere in the country, which offered new locations for industry. It was also part of the Plan strategy to locate new industries away from large cities. The Third Five Year Plan, in particular, emphasized the preference for backward areas in the location of public sector projects. It was felt the lack of facilities in such places was not irremediable. There was also a latent hope that the effects of such berge projects would trickle down to the surrounding areas.4 This was the general background in which over a hundred New Towns were set up in the country after independence. A list of these with population changes where data is available may be seen in the appendix. 3. Types of New Towns : 3.1: The categorisation of these towns is not easy. A functionwise classification will need to note that the functional objectives thought of earlier have changed considerably in later

: 4 : years. For instance, Faridabad built for refugee resettlement is now regarded mainly as an industrial area. Chandigarh built as a State capital is now a major focus of industry and higher education. Towns built for specific industry are also showing significant occupational changes as in Rourkela or Durgapur. Golany5 offers an exhaustive classification of New Towns dividing them broadly as (a) settlements with economic self-containment and (b) settlements without economic self-containment. Company towns, development towns and regional growth centres which are free standing and with an economic base of their own would be in the first category. Company towns, in turn, might be of many types, such as, natural resources town, single product town,project construction town, military town, resort town, etc. In the second category, i.e., settlements without economic self-containment would be satellite towns, metro towns or suburbs, or New Town in town (usually large renewal areas within an established city). The difficulty with such a classification is to determine what is economic self-containment. Jalahalli near Bangalore where the Hindustan Machine Tools have an industrial complex has an economic base of its own but for several city level services is a part of the Bangalore metropolitan area. So is Kalyani within the Calcutta metropolitan area. 3.2: In the circumstances, a size-cum-location based classification has been adopted for the purpose of this study. Accordingly the New Towns have been classified into three categories. In the first category are the New Towns which have more than 100,000 people and as per Census ranks as Class I cities. In some cases, these New Towns have encompassed some of the adjuncts which existed before and are now treated as urban agglomerations. For example, the Durg-Bhilainagar urban agglomeration covers the Bhilai New Town as also Drug. Bokaro Steel City, Chandigarh and Rourkela are the other cases where the New Towns between 1961 and

: 5 : 1971 have emerged as urban agglomerations. Durgapur and Bhilai are Class I towns though they are not treated as urban agglomerations as such. In all we have 5 New Towns in the first category built up after independence. In the second category are 52 New Towns which form part of other larger cities. In such cases, the New Towns have come up as a suburb, adjunct or other type of extension to the existing city. The townships like Bhuli or Sindri within Dhanbad urban agglomeration, Jagannathnagar within Ranchi, the Hindustan Aeronautics, H.M.T., Bharat Earth Movers, or Indian Telephone Industry's townships within Bangalore, Khadak-vasla or Pimpri in the case of Poona or Kalyani and New Barrackpore in the case of Calcutta are some examples in this category. In the third category may be placed another 50 New Towns which have less than 100,000 people and which also do not form part of any other city or urban agglomeration. These are more or less free standing New Towns. Some examples are Chittaranjan in West Bengal, Neyveli in Tamil Nadu, Nangal in Punjab, Paradip in Orissa, etc. The list in the appendix identifies the New Towns in the different categories along with particulars of their location, area, population, etc. It may be noted these New Towns have come up in all parts of the country. If settlements above 5000 people alone are considered Bihar has 22 of them, Karnataka 14, Madhya Pradesh 11, Gujerat 10, and Orissa has 9 while Maharashtra, Tamilnadu and West Bengal have 7 each and so on. It will also be seen that most of the industrial townships are company towns (about 60 of the 100). 4. Scope of the Study: 4.1: Within the time and resources available for the study it has not been possible to undertake any comprehensive review of all the New Towns. Such a review, a broad-brush one at that perforce, is unlikely to serve any purpose. It was, therefore, felt that it would be more useful to select a few towns which

: 6 : because of their size, pattern of growth, functional mix, socio-economic characteristics, etc., would enable a more focussed study and analysis of some important issues of policy significance. The coverage in this study is, therefore, limited to 5 major New Towns, viz., Rourkela, Bhilai, Durgapur, Bokaro Steel City and Bhubaneswar. For certain points of comparison, the town of Jamshedpur, though built mainly before independence has been included since it is the longest and possibly the most significant experience the country has in the setting up and running of an industrial New Town. Chandigarh, though falling within the category of New Town agglomerations and Class-I cities that have been identified, has been excluded mainly because it has been extensively studied and a number of monographs and publications have been brought out on different aspects of Chandigarh's planning and development. Furthermore, the New Towns covered in the study are all located in the eastern region sharing some physical and socio- economic characteristics as also some political and administrative traditions. These, it was hoped, would make a comparative assessment more realistic. Some other points that weighed in the choice of these towns are as follows: 4.2: Though set up only after independence, these towns have grown considerably in their sizes. Their rate of growth is very much above the State average. Rourkela has nearly doubled from about 90,000 people in 1961 to 1,73,000 in 1971. The Bhilai agglomeration has expanded from 1,33,000 to 2,45,000. Durgapur has grown nearly 5 times from about 42,000 in 1961 to 2,07,000 in 1971. Bhubaneswar has increased from about 38,000 to 1,05,000. Such a rapid expansion indicates a significant volume of economic activity and movement of people which permits useful study.

: 7 : 4.3: Whatever their initial objectives the functional mix of these towns has also undergone some significant change. About 60% of the employment in Rourkela for instance, about 41% in Bhilai and about 32% in Durgapur are in the tertiary sector. The change in the functional mix contain important implications for the pattern of growth in these towns and merit careful study. 4.4: Of the 6 towns covered in the study, barring Bhubaneswar, the others are mainly based on steel industry. The question may then be asked whether it is valid to restrict a New Towns study to the steel towns only. While steel is a basic industry a town based on that need not be any different from another based on, let us say, heavy engineering. The size of investment, the number employed and the time span of course determine several aspects of a New Town. For precisely the same reason there is merit in focussing the study on these towns because they have commanded physical and financial resources as also considerable political and executive attention to a degree not witnessed in other New Towns. In that sense the so-called steel towns are the largest and more determined efforts in the establishment of New Towns. The experience here has directly influenced the formulation and subsequent modifications of the norms and standards adopted by the Government for public sector industrial townships. Since the majority of India's New Towns fall in this category it is appropriate to study the largest among these. 5. Why this study ? 5.1: In undertaking the study the main purpose has been to identify and highlight issues of policy- significance in the planning, building and running of New Towns. With over 100 settlements to-date, New Towns of India are a major Indian experience. Though the initial planning for a few, such as Chandigarh or Bhubaneswar were inspired by foreigners by and large the design, construction and upkeep of India's New Towns

: 8 : has involved a whole generation of Indian Planners and Architects, Indian Engineers and Indian Administrators. As in other fields the experience has been characterised by many hopes and fears, weaknesses, successes and failures, but together the experience is of sufficient importance to merit study and documentation. However, the subject has received little attention so far. Apart from reports of some committees like the Committee on Plan Projects and some working groups of officials, the author has come across only one comparative assessment of India's New Towns (Ved Prakash) limited to physical aspects and constructional costs as surveyed in 1963-64. 5.2: Several points emerge from even a preliminary assessment about the New Towns. One is that the premises or basic objectives for their creation do not seem very clear. In most cases the building of an industry has been taken to be the main objective and the settlement itself has been treated as an adjunct rather than as a core activity. Search for the basic premises which would determine the size and nature of the town building effort has been little. Where some goals were indicated these appear to have emerged from the highly personalized views of the handful of persons in charge of building the plant or the township at the time. Density, house types and location of community facilities were often determined in this manner. Neither the physical nor the socio-economic issues of raising and nurturing a town seem to have been recognised. The confusions resulting from this serious lack of comprehension have persisted. The setting up of vast labour campus carefully removed from the township sites on the facile hope that being temporary they would vanish on a designated date is one such confusion. In town after town the so-called temporary camps have endured and expanded. Large sums of money invested by the construction agencies have gone to waste and failed to elicit investment response from the dwellers in the absence of

: 9 : tenure and prospect for the future. Attempts to view a townscape in artificially segregated portions like employees and non-employees, insiders and outsiders, project town and civil town etc. persist. For instance, the plans for a forthcoming steel city Vijaynagar have been drawn in three fragments - the labour colonies close to the plant, the so-called steel town and then a civil town in another location. 5.3: The norms and standards adopted for the New Towns have emerged through a halting pattern rather than a conscious evolutionary process. Initially the standards adopted for physical and social facilities were just lifted from the planning manuals of western . For instance, in determining the sizes of a and the facilities to be provided there, there was very little attempt to assess the actual requirements of an Indian community. In the case of utilities, the standards adopted had no relation to the affordability of the services by the citizens. Since the initial costs were treated as part of the industry's capital cost there was no compulsion either to critically review the norms and standards from an economic point of view. Much later the high capital and consequently high running costs prompted enquiries, such as, the one by the Committee on Plan Projects and then at successive stages by the Bureau of Public Enterprises. Arising from these exercises ceiling costs were fixed for several items which, in turn, led to some rigidity. While the first costs were sizeably reduced there was still no attempt to match them with resources to be raised from the citizens for the upkeep of the services. The maintenance of these Towns has thus become very expensive, and the subsidies on this account are increasing. While finances of most cities in the developing countries are in a bad way, the position in a New Town despite the newness seems worse. : 10 : 5.4: Despite the scale of effort and investment that went into the building of the New Towns they are regarded as dull and unexciting places. There is nothing in the New Town of the hum and excitement that an older though unplanned town in India possesses. The poor comprehension of the social issues in an urban community have been further complicated by the rapid growth of the New Towns and the inability to cope with the heterogeneity brought in by migration from different parts of the country. The hand of the industry continues to be dominant and omnipresent often to the detriment of the industry itself. The Indian New Town is often described as an "employee town" rather than a "citizen town". One should add, the question has also been asked whether the employees want to be citizens at all. 5.5: Most New Towns have been built on greenfield situations where little existed before. The land-scale and the environment have been reshaped almost totally. Streams of migrants have come into the town from within as also outside the state. Patterns of livelihood have changed and major shifts have been occasioned in the life of the people in the surrounding areas. All these changes have also brought in their wake, major problems of administration as well. One would expect that these are matters which would have merited some consistent attention from the respective State Governments. Unfortunately, the evidence available indicates more of an ambivalence than a genuine appreciation of the problems involved on the part of the state governments. In many issues the interest of the central and the state governments have been shown quite wrongly to be at variance. In the process the New Town managements are quite often caught between the people and the governments. To illustrate, a major fear, that has characterised the New Towns managements stems from a lack of confidence in local self-government institutions. A false sense of property or ownership on the part of the project often held : 11 : up by the Centre has led industrial managements to confuse their roles in building the industry which is its basic responsibility and nurturing the human settlement that the plant has occasioned. Though an opportunity was available in the New Town to cut free of past prejudices and archaic forms of urban administration the opportunity was not seized. These among others are some of the issues considered in this report. It is our belief that in each, valuable lessons are to be learnt from the past and alternative options exist for the future. As yet, all of India's New Towns account for a population of about 3.6 million which is about 8% of the increase in the country's urban population from 62 million in 1961 to 109 in 1971. The bulk of this increase has come from metropolitan and other large cities. Anguish about city size has been a recurring feature in many societies and ours is no exception. New Towns for old, has been one of the desires professed in establishing India's new settlements. The performance of these settlements in the past decade is the major concern of this report. 6. Methodology and Arrangement of the Report: 6.1: The study is based mainly on secondary data, such as, planning and project reports prepared at the commencement of the townships and various official and other subsequent documents. To assess the role of voluntary organizations in the New Town communities a limited survey of social/cultural organizations numbering about 180 in Jamshedpur and about 140 in Durgapur has been done. Apart from the study of the documents the study team consisting of a Sociologist, an Economist, a Geographer and an Architect also visited the towns for discussions with the planners, engineers and officials concerned with the development and maintenance of these New Towns. The Project Director has also had extensive discussions with the managements of the major : 12 : industries located in these New Towns, the officials in the HSL, SAIL and TISCO, the officials in the Ministries and organizations of the and Departments of the State Governments concerned as also the municipal authorities. The issues identified during the study were outlined in an Issues Paper which was discussed at a meeting in April 1977 in which a wide cross-section of New Town planners, administrators, economists, representatives of national planning and development organizations, etc., participated. A full list of the participants is given in the annexure. The issues presented in the paper were refined to a considerable extent during the discussions and the present report incorporates their outcome. 6.2: The issues considered in this report are presented in three major parts, viz., physical, social and administrative. Certain issues have been left out, such as, the economic impact of the New Towns on the surrounding . Though it was intended to include this aspect in the study a number of methodological and organizational difficulties were encountered such as, identification of an impact region, types of economic activities to be studied, indices to be developed for measuring impact, requirements of large-scale field surveys, etc. Some earlier studies undertaken in this regard, such as, the study by the A.N. Sinha Institute of Economics in the Patna University, for Rourkela revealed highly diffused impact patterns in a much wider area beyond what is contiguous to the New Town. Within the limitations of time and resources it was not found possible to consider this aspect within the present study. 6.3: The origin and growth of the six major towns considered in the study i.e. Rourkela, Bhilai, Durgapur, Bokaro, Bhubaneswar and Jamshedpur are described in the next chapter in that order. Chapter III deals with the physical issues, Chapter IV with the social issues and Chapter V with the administrative aspects. The conclusions of the study and possible options for the future are presented within each chapter. Chapter VI contains a general summary of the report. CHAPTER - II : THE SIX TOWNS 1. Rourkela : 1.1: In the grand design for economic growth and modernization of India the steel industry was a major element. The establishment of a steel plant in the public sector was a favoured item with the late Prime Minister, Nehru. In 1948 Sir Padamsee Ginwala reported that a base seven years hence, the country's steel demand would be close to 3 million tons. T.T. Krishnamachari, then Industry Minister forecast in 1954 that by 1960 the demand would exceed 6 million tons. An urgent search for steel plant locations and the technical support for building them followed. Two German firms renowned for iron and steel technology, M/s. Fried Krupp of Essen and M/s. Demag A.G. of Duisburg, came forward to assist. Following an agreement signed with the two firms, a new company, M/s. Indien Gemeinschaft Krupp Demag GmbH was floated as consultants for the design and construction of India's first steel plant after independence. In 1955, the consultants submitted a report identifying Rourkela, a small by the side of the below the confluence of Koel and Sanko as suitable for setting up of a plant that could make a million tons of steel. 1.2: Located 480 km. west of Calcutta on the railway line to Bombay, Rourkela was one of the ideal locations in Chhotanagpur for a major steel industry. Iron, coal, manganese, and limestone were all to be found in close vicinity, and access by rail was assured. The consulting firm, IGKD was also designated to plan the township. Commencing with the premise that the township should provide 15,000 dwellings for the workers of the steel plant plus space for the shelter of others who would come to serve this city, the Consultants estimated its size at about 100,000. Claiming the application of the latest standards in : 14 : township planning and practice, the consultants observed "It is demanded that the families be given exclusively detached one family houses each, with at least two dwelling rooms and the requisite courtyard". An area of about 20 sq. miles was earmarked for building the town north of a series of hills that would separate the steel plant from the township and thus provide some protection against the smoke and soot. Through two cuttings in the hill range, a ringroad was to be laid connecting the steel-works and the township. Another premise that guided the layout was that people "Who have grown up under rural conditions have the understandable desire to live in a kind of community which helps them to avoid a feeling of forlornness and uprootedness. This and the wish to obtain a clear organic arrangement of the town as well as a necessity to de-centralize certain cultural and other public facilities makes it advisable to sub- divide the township into separate quarters or satellites." Later these came to be known as sectors, each intended for 5,000 to 6,000 people with one or two schools, a public hall, a number of shops and some handicraft workshops. In all 20 sectors were planned, each connected to the ringroad, which was to be the main artery "With the capacity to assimilate the whole of the traffic even with increased modernization. At the same time, its course was such as to compel all traffic to use it". A great part of the population was expected to use bicycles or move on foot; hence pedestrian and bicycle paths were to be provided alongside the ringroad and also in the sectors. The conception of a city centre was unclear. The Consultants had considered three alternative plans - one for a city with a geographic focus on the ringroad, another for a twin-city with the ringroad for bilateral communications and the third for a linear city based on the ringroad itself. It was the third alternative that came to be chosen and, as such,

: 15 : a city centre was not given much prominence in the initial plans. There was, however, a general identification of the site where the road to the old Hamirpur mission intersected the ringroad where such a centre could come up. Subsequent experience indicated that such a centre would indeed be a compelling requirement, though it has been slow in taking shape. 1.3: As town plans went, the efforts of the Consultants seemed good. The object of their planning work had been "to consider all the factors, technical, economical and sociological, which determined the layout of a modern town, to define the importance of each of these factors with a view to providing the most economical and most suitable pattern of a township. The present plan should not be altered in its fundamentals as otherwise an inorganic and amorphous structure might result". A few detailed plans of different scales and elevations were also provided by the Consultants to facilitate detailed planning in the sectors. Hindustan Steel, which had been set up in 1954 by the Government of India as the public sector undertaking to build and run the steel plant decided to commence development on 11 out of the 20 sectors. Unfortunately, in the desire to expedite matter the detailed planning for these sectors were farmed out to as many as 5 different Architectural Firms in the country. The HSL Design Office also participated in the planning exercises. Leaving aside the disparities that cropped up inevitably in matters like density, neighbourhood layout, housing standards, etc., since many parties were involved, HSL's decisions also caused two important deviations from the basic plan of the consultants. The first related to the location of a township for the fertilizer plant. While the fertilizer unit was conceived during the project stage itself, as a needed facility to utilise the by-products, the decision to locate a separate township for it, south of the factory, was against the basic concept of locating : 16 : the residential settlements only north of the steel plant and the hills, on environmental considerations. Though the township for the fertilizer factory is a small one its location has prompted some reflexes of growth which it has not been possible to integrate in the main townscape. The second major deviation has been in respect of the crucial landspace located between the railway line and the hills. In the plan of the Consultants this area was to be utilised for setting light industries, small trades, handicrafts, supply services, etc., as are concomitant of the contemplated township. Unfortunately again, neither the IGKD nor the other consulting firms engaged, paid any attention to the detailing of the plans for developing this landspace. Given its proximity to the steel plant itself the site was prone to the pressures of growths and, in fact, when the work on the steel plant commenced in 1955 it is this area which came to be occupied by contractors, their labour as also other service populations. In six years the area was packed with more than 35,000 people and squatter settlements of all kinds were completed. A few years later an elaborate planning exercise had to be initiated to somehow prevent the area from getting worse, but more of this later. 1.4: The construction of the township commenced in 1956. Out of about 50 sq. miles proposed for acquisition for both the plant and the township nearly half was for the township alone. Acquisition was initiated under Orissa (Development of Industries, Irrigation, Agricultural, Capital Construction and the Resettlement of Displaced Persons) Act, 1948. This itself was a major departure from the usual practice of acquiring land under the time-honoured though slow provisions of the 1894 Land Acquisition Act. The Orissa Act had been tried earlier in Bhubaneswar as also for the Hirakud Dam construction. But upon being applied : 17 : in Rourkela several complications arose, such as, the rights of subsequent disposal by the HSL, the compensation payable, etc. Later the acquisition had to be substantially revalidated under the 1894 Act. Still the complications and the resistance to acquisition were such as to prompt the State Government to decide against all further acquisition of land after 1959. By then about 3,000 out of the proposed 7,500 houses had been built. The beginnings of a hospital, four schools, the water-supply system, a waste disposal plant and the network of roads had also come into existence. While the first immigrants had been a wayside restaurant operator, a carpenter to make benches, tables and bedsteads and a milkman with a herd of buffalos, the flow picked up rapidly. By 1961, the steel township alone had a population of 37,830. With the surrounding areas, Rourkela's overall population was 90,287. One more Class I city was going to be added shortly in the census list. 1.5: The 1-million-ton stage was reached in 1962. By then plans had been initiated for an expansion of the plant's capacity. By 1969, the enlarged capacity of 1.8 million was available and with that had come a sizeable increase in the employees. The township witnessed further investments and by 1971 the figure had come close to Rs. 20 crores which still was less than 10% of the investment of the plant. The details of the houses constructed and the cost of various components of the township at the 1-million-ton stage and beyond may be seen in the appendix. 1.6: Part of the original idea had been to set up an elected body like a municipality for each of the township sectors which could administer the neighbourhood amenities like the health centre, the school or the market. This was "to give the steel worker an interest outside his own field of work". Yet subsequent : 18 : events were far different. In 1955, a Notified Area Authority was set up for all of Rourkela covering an area of about 37 sq. miles under the Orissa Municipal Act (Act XXIII of 1950). But by 1961, the contradictions between steel town and the rest of Rourkela, that is, between the 'pucca' and 'not so pucca' of the emerging city had begun to build up. The steel plant management in its keenness to preserve the exclusiveness of its township as also to avoid the pressures coming from other parts to extend to them the township services proposed a bifurcation of the Notified area. After some debate the state government agreed to this. The axe fell in 1963 and the Notified Area was bifurcated into two parts : one being the steel township comprising that as also the steel plant, the fertiliser plant and the fertiliser colony. The Civil Townships 7 sq. miles are enveloped on all sides by the steel townships 30 odd sq. miles. The Civil Township has all the problem areas, the congested strip bazaar, the squatter settlements, the bustees on the southern slope of the hills and other badly organized developments. As of 1971, the Civil Townships population was 47,076 compared to 125,426 in the Steel Township. Obviously, at the services provided for the two areas there is sharp contrast. In the steel township most services are provided by the management under a Town Administrator, and the employee resident there, bears an annual tax burden of about 39 paise only since most services are provided by the steel management. If a steel employee is not so fortunate and happens to live in the Civil Township area his tax incidence would be Rs. 4.39. In composition the two N.A.C.'s are quite different. The steel N.A.C. has the company Town Administrator as the Chairman with eight other H.S.L. officials as members. The Civil N.A.C. has the Additional Magistrate of Rourkela as Chairman, 5 state : 19 : officials, 8 non-officials and oddly, 3 officials from HSL. Quite often the two NAC's have shared a health officer, an engineer and occasionally an executive officer as well but never a common chairman. A Special Planning Authority created in 1961 under the Orissa Town Planning and Improvement Trust Act (1956) commenced a master plan exercise confined to the Civil Township area only without any of the advantages of the land space and openness available in the steel township. The I.I.T. Kharagpur published in 1964 a master plan for the limited area which the N.A.C. is struggling along to implement in stages. In the meantime the strange phenomenon of two cities in one, continues. 2. Bhilai: 2.1: Heralded "as a significant symbol of a new age in India embedded in the national consciousness" Bhilai is the second of the three public sector steel plants to be launched by the Government after independence. In view of its proximity to iron ore resources Bhilai has been considered as a possible location even before the Indo- Soviet Agreement in 1955 confirmed the site. Located about 1100 km. from Bombay and 866 km from Howrah, Bhilai is in the Chattisgarh region of Madhya Pradesh comprising the of Raigarh, Bilaspur, Raipur, Durg and northern Bastar. Despite its claim as the rice bowl of the state the region was characterised by its low agricultural yield due to poor irrigation, poor cultivation and inadequacy of market and transport. But the region had also a vast reserve in minerals. With coal at Korba, Anuppur and Bargaon, limestone at Nandini and iron ore at northern Bastar, the proposed steel plant at Bhilai was conceived as the catalyst that would change the region. In fact, M.P. Government had wanted a steel plant to be located here : 20 : for long and in its eagerness had notified nearly 8000 acres comprised in 11 as early as 1949 to be acquired for the proposed steel plant. When the decision to locate the plant did come, these 8000 acres were transferred free of cost by the State Government and became the nucleus for commencing construction. 2.2: Unlike Rourkela, the Soviet collaboration was limited to the plant while the design of the township was left to Hindustan Steel. D.S. Bajpai and Piloo Mody of Bombay were engaged as consultants. The plan that emerged was a kind of rectilinear grid, strung between Durg on the west and the steel plant to the east. Three roads running east to west in parallel were to be the main arteries of the township. These arteries were broken by north-south roads at intervals and in all, the town plan provided for 12 sectors out of which 10 were to be residential, one was for the hospital and one for the city centre which was located at a mid-point at the southern extreme of the township. Unlike Rourkela, Bhilai had a medium-sized town in Durg in its proximity. By 1951, Durg was a municipal town and district headquarters of over 20,000 people. The so-called civil lines constituted the more open part of the town which also adjoined the site chosen for the township. In fact, the first residential support for the steel complex was the Durg Circuit House and the tents pitched in its compound, when according to the chronicles of the time, a firm basis for Indo-Soviet collaboration was forged amidst scorpions, centipedes and storms that regularly uprooted the tents. Later a Bhilai House as a large dormitory and 32 bungalows took shape nearby. Still, despite beginnings in such close proximity, the plan for the Bhilai township did not provide for

: 21 : any strong links with the Durg town. Such undeveloped space as available to the east of the Durg town was not incorporated in the plans for Bhilainagar. 2.3: Bhilainagar was planned to be built on the south of the Howrah-Bombay railway line. This was obviously dictated by the location of the steel plant itself being on the southern side. Yet in actual event, sizeable developments were commenced, by the steel plant construction agencies and others on the northern side of the railway line. Several labour camps were set up adjoining the railway line and the highway to Raipur for the construction labour. In fact, Bhilaigaon from which the name is derived is itself located on the north of the line. Between 1956 and 1959, 5 large camps were set up in Khursipar, Supela and Bhilaigaon. By 1960-61, 6300 quarters had been constructed in these camps by the steel plant, its contractors had built another 10,000 and for 5000 more the steel authorities had helped with construction materials. Compared to this, on the south of the railway line, in Bhilainagar proper, there were 12,500 quarters. The 1961 census noted that the population in these camps was about 25,000. By 1971, this had increased to 67,000. In fact, as of 1971 out of about 174,000 population in the Bhilainagar part of the agglomeration, the people living north of the railway line and in the semi-pucca or squatter settlements abatting the earlier camps are more in number than those living in the township as such. 2.4. The major reason for the rapid growth of the area north of the railway line has been its proximity to the steel plant and the railways marshalling yard which are major work centres. The civic and commercial centres planned for the township was also at

: 22 : its southern extreme and was quite slow in developing. Retail commercial activities and later on some wholesale support for them started first in Kursipar/Supela and have steadily grown in area and volume of business. The road to Nandini limestone quarries as also the ACC Cement Plant at Jamul has been a further impetus to this area. A host of cinemas also sprang up in the vicinity and at one time Kursipar was known as the Hollywood of Bhilai. Even now with 12 permanent cinema halls in the area it can still claim that distinction. As a result of all these the commercial focus of Bhilainagar has come to be north of the railway line and not south of it as envisaged by the planners. 2.5: As for the construction of the plant and the township, in addition to the 8000 acres acquired and transferred by the State Government another 20,000 acres were acquired afresh. About Rs. 1.5 crores were paid as compensation and a number of villages which fell within acquisition were shifted in masses to the townships periphery. The initial plan for the township had been for 7500 houses; with supporting facilities in keeping with plans drawn up for the million-tons stage as in other plants. By 1961, all the units in the one-million- tons stage were completed. The expenditure incurred on the township till this stage as also the various components of the township construction may be seen in the appendix. By then plans for expansion of the steel plant to 2.5 million capacity had been initiated which was achieved by 1967. A further expansion to 4 million tons is now under way. At the time of this report Bhilai remains the largest of the steel plants in operation in the country. : 23 : 2.6: Though excluded lay design, in the plans for the township, Durg and other surrounding areas have drawn much support from the townships growth. From a mere 20,000 in 1951, Durg's population rose rapidly to 47,000 in 1961 and to about 68,000 in 1971. Trade and commerce, transport and other services accounts for 13,000 jobs in 1971 compared to about 9,000, 10 years earlier. New residential areas have come up and the bazaar in Durg has become the principal focus for the whole agglomeration despite earlier hopes that the Bhilainagar civic centre would assume this function. The municipal limits of Durg were enlarged from 5.3 sq. miles to 8 sq. miles in 1971. A polytechnic and a Government's Arts and Science College have been added in which nearly half the students are from Bhilai. North of the railway line apart from the labour camps and the ever-spreading squatter settlements new residential areas have come up, such as, Rajendranagar while on the road to Jamul the space between the cement works and Bhilai is being filled by light industry. East of the steel plant at Kumhari a major foundry has given rise to a small industrial complex. Taking the outgrowths of Durg as also Bhilai into account the urban agglomeration today accounts for nearly 55 sq. miles and 2,45,124 people compared to 1,33,230 in 1961. 2.7: Despite this vast change in the landscape, on the administrative side matters have remained still. Apart from the marginal enlargement of Durg municipal limits the major part of the agglomeration, i.e., the Bhilainagar township itself as also its outgrowths have not been incorporated into any municipality. Within Bhilainagar the Chief Town Administrator of the Steel Plant is responsible for the township's maintenance : 24 : as also most of its construction aspects. In 1966, the IIT, Kharagpur, at the instance of the Steel Plant prepared a master plan for the urban area as a whole for the first time. The plan conceded that development had become disparate already and felt the railway line had been a major barrier to the integration of the city. Proposing a circulation system using four over bridges to connect Bhilainagar with the north and recognising the Kursipar area had already acquired the characteristics of a Central Business District, the IIT plan called for a Development Corporation to be set up preferably by the state government with participation of the Centre, the steel plant and local interests which could implement an integrated programme of control and development. The time, however, was not ripe for such a body seven years later. 2.8: In 1973, the Madhya Pradesh Government, under the M.P. Nagar Tatha Gram Nibesh Adhiniyam (Act XXV of 1973) constituted a Special Area Development Authority (SADA) for Bhilai-Durg, with the Commissioner, Raipur Division, as Chairman and representatives of Bhilai Steel Plant, private industry, Durg Municipality, etc., as members. The SADA has jurisdiction over the entire urban agglomeration. Its mandate covers plan preparation and enforcement, formulation and execution of development schemes as also the usual municipal functions of upkeep of city facilities and taxation thereof. A general development plan under the provision of the M.P. Town Planning Act is under preparation. Pending this SADA has taken the initiative of developing some housing and commercial areas in Durg. Negotiations have also progressed with the steel plant for the surrender of some land north of the railway line to SADA where similar housing and

: 25 : commercial activities are proposed. As yet SADA has no direct responsibility for any of the municipal type functions within Bhilainagar though in law SADA's writ covers the township as well. In the absence of an overall plan of action for the urban agglomeration there is a tendency to divide responsibilities between the SADA and the steel plant management on the basis of north and south of the railway line respectively. The steel authorities also intend to add four more sectors to the township to support the plant's expansion and make additions to its civic centre. SADA has its own plans for renewing and enlarging Kursipar and Supela. As yet, there are opportunities to achieve a functional balance between the different parts of the Durg-Bhilai urban agglomeration. But it is an open question whether the instrumentalities for bringing about these changes would be settled first between SADA and the Steel Plant. If not, Bhilai's future would continue to be undermined in the conflicts between the fragments of the city. 3. Durgapur: 3.1: People are usually not aware that Durgapur is more than a steel plant and its township. With an investment exceeding Rs. 600 crores Durgapur is the home of a dozen large and medium industries and nearly a hundred small industries. It is probably the largest concentration of heavy industry to be set up anew in the country. With a population of about 2,06,000 Durgapur is also a new town in the Class I category. 3.2: Durgapur was opened up when the plans for the Damodar Valley region took shape. The taming of the and its tributaries and the creation of large capacities of thermal : 26 : power gave a generous stimulus to the region. As part of the project a 2,271 ft, barrage across the Damodar river was commenced at Durgapur in 1952 and completed in 1955. The main purpose of the barrage was to divert the water received from the and Mython dams upstream and divert the flow to Bankura, Burdwan and Hooghly districts for irrigation purposes. The left bank irrigation canal was also to serve as a navigation facility down to the river Hooghly. Located as it was at the fringe of the famed Ranigunj coalfields Durgapur was also one of the good locations for a steel plant. The Eric Coates Mission in August 1955, after seeing two sites at Bokaro and two at Sindri, finally chose Durgapur as the location for the third steel plant in the public sector which was to be built on a turn-key basis by a consortium of British steel-making and engineering firm. The high capacity transport facility available through a four-track railway line, the Grand Trunk Road as also the navigation canal, the availability of land close to coal but not coal-bearing itself and the proximity to Calcutta as a major point of consumption for the plant's products, were the reasons which prompted the decision. A package deal with the British was concluded by the Government of India in October 1956 and construction on the steel plant at a site between the Grand Trunk Road and the eastern railway line was commenced soon thereafter. 3.3: By then, some other major investment decisions had been taken for Durgapur. One was the Damodar Valley Corporation's own plans to locate a thermal power plant. Another was Dr. B.C. Roy's long-cherished design for an industrial complex comprising a thermal power plant, a coke oven plant to supply the much needed metallurgical coke for Bengal's engineering industry,

: 27 : a chemicals plant to utilise the by-products from the coke oven and a gas-grid that would feed 5 million cft. of gas to Calcutta. Dr. B.C. Roy's plans went far beyond just industrial investments. To accomplish his dream he established a Durgapur Industries Board as a semi- autonomous unit of the State Government and charged it with the task of setting up the coke oven and thermal power plants as also acquiring and developing land on a large scale to attract more industries. The Durgapur Industries Board is probably the first multi-purpose industrial promotion venture in the country, launched by a State Government when industrial development corporations or similar promotional bodies were unknown in the state sector. By 1959, decisions had also been taken to locate an Alloy Steels Plant, a large plant for manufacturing of coal mining machinery (subsequently Mining and Allied Machinery Corporation) and an ophthalmic glass plant in the public sector of the Government of India. The Associated Cement Companies in collaboration with some British firms also decided to set up another heavy engineering plant in the private sector for manufacturing pressure vessels and equipment for thermal power plants, and cement manufacture. Other engineering units to produce automobile wheels, electrical wire, heavy castings, etc., followed. By 1961, nearly 50 large, medium and small industries had made Durgapur their home. The Central Mechanical Engineering Research Institute and the Regional Engineering College were two other major institutions were also to be located in Durgapur. 3.4: Despite such an encouraging start the dream of an integrated industrial city did not materialise. A major reason for this was the decision of the larger industries in locating their respective plants and townships. Having chosen a 10 sq. mile : 28 : chunk of land on an east-west axis for the plant, between the Eastern Railway line and the G.T. Road, authorities had considered two alternative locations for the township. One was to set it up south of the river Damodar with a bridge to connect and the other was a site north of the G.T. Road. Eventually, a 17 sq. mile site north of the Grand Trunk Road between mileposts 113 and 117 was chosen because of "the high ground, east of drainage, good soil and absence of any serious rehabilitation problems". Since the steel township is by far the largest in the Durgapur settlement we may consider briefly the salient features of its plant. As in Bhilai the responsibility for planning and designing, the township was assumed by the Hindustan Steel and farmed out to the consulting firm of Stein, Polk and Chatterjee. In preparing the plan, the consultants stated they took special care "to avoid certain omissions present in some town plans, such as, (i) urban monotony and unimaginative rows of housing, (ii) low standards of environment that tend to depress and limit personnel and family life, (iii) the omission of community facilities which would be simple in character in the form of space designed for multiple purposes and (iv) the provision for health and recreation facilities". In planning for the township the consultants also took note of "the joys of a modest family garden or the pleasant evening stroll". "The new population they felt would largely be composed of young people who usually are idealistic and flexible and who seek better ways and often have the disposition and energy to pursue them". The marked contrast between these professed intentions and what actually emerged as the township would be considered in detail later, but at this stage we may point out briefly some important developments that took place. : 29 : The layout initially prepared by the planners covered about 9,000 of the 10,000 acres leaving the rest as a green along the G.T. Road. The road system was based on a north-south Central Avenue to collect traffic and bring it nearer the eastern entrance of the steel plant but the main works gate came to be located in the western corner 6 miles away. Housing for higher-income employees not depending on public transport came to be built first and, therefore, nearer the plant while the bulk of the employees depending on public transport had to be housed farther away. The average travel distance between the steel plant and the township was about 8 to 9 miles and so from the beginning the steel plant authorities had to make arrangements to transport its workers in all three shifts in its own fleet of buses, an arrangement that has proved to be most vulnerable as subsequent experience has shown. 3.5: Adjoining the steel plant township the Mining and Allied Machinery Corporation decided to set up another self-contained township. Neither the steel nor the MAMC township plans provided for any linkages between the two and, though next to each other, did not even consider the possibility of some common services. The colony of the private undertaking ACC-Vickers- Babcock which was located farther east of the MAMC township, by far the most pleasing of the other townships, again became an exercise in isolation and containment. While these townships had come up in the north of the G.T. Road, to its south the Durgapur Industries Board took over the construction camp of the DVC which had been put up for the barrage, expanded it and made it into another so-called self- contained township. For its thermal power plant the DVC added one more township. The Durgapur Development Authority which had been set up in 1958 itself to

: 30 : ensure the planned and co-ordinated development of the Durgapur complex did not regard these disparate developments as serious. On the contrary it confirmed the trend by deciding to set up another township of its own, farther east of AVB to provide residential support to medium and small industries. Thus by 1961, Durgapur had already begun to sprawl for a length of some 11 miles along the G.T. Road from mileposts 110 to 120 with a mixture of industry and residential settlements to the south and some large townships to the north each separated from the other by a buffer zone, usually a stretch of Sal forest that succumbed to predatory wood- cutting in later years. While the 1961 census identified two distinct settlements, viz., the steel town and the coke oven colony each 9 miles from the other and returned for both a population of 41,696 in 1971, the Census took note of the whole connurbation since constituted into a Notified Area with a population of 2,06,638. Still, one common notified area notwithstanding, Durgapur has remained, as so aptly described, a collection of half-a-dozen townships in search of a city. 3.6: A major reason for this sprawling pattern of growth has been the absence of an overall plan to begin with. Though the State Government had set up the Durgapur Development Authority under a special Act, i.e. the Durgapur Development and Control and Building Operations Act, 1958 with the avowed purposes of promoting planned development, either due to the reluctance of major projects to submit to any coordination of the Authority or due to the failure of the Authority itself to perceive clearly its statutory obligations, the first exercise in evolving a development plan for the complex began only in 1961. By then the more important locational decisions had been taken. With an : 31 : increasing number of job-seekers coming into Durgapur everyday the problem of finding shelter for them became more urgent and planning with all its time-consuming implications was kept in abeyance. Each undertaking proceeded to build its housing in haste and on poorly prepared layout plans. Each of the township layout was planned on a mandate that it would be self-contained though in reality it could not be so. The most severe consequences of this isolated planning has been on traffic and transportation within the complex. In the absence of alternate road systems linking the different townships and industries the burden of local traffic also was thrown on the G.T. Road which was a national highway and which deteriorated rapidly in the process. The conflicts .between local and regional traffic also the nature of the local traffic having to cross the G.T. Road frequently rendered the stretch of this highway passing through Durgapur one of the most accident-prone spots with deaths averaging one every month between 1962 and 1965. The scattered location of the residential and workers' settlements also increased the non-paying or "dead" distance for transport and other services and rendered them more expensive. In the buffer zones left between the townships squatter settlements and commercial slums were established quickly since none of the project townships would accept the service population or non-employees. The most striking example of this is Benachiti which has mushroomed into Durgapur's largest commercial centre, thanks to its location midway between the steel plant and the township. The growth and its pattern in Benachiti contain a printed lesson in the dynamics of trading support for a New Town. This will be examined in detail later. 3.7: The region around Durgapur has also witnessed considerable change. Ranigunge and Asansol 12 and 20 miles west of Durgapur were earlier regarded as mining and commercial centres. Initially much of Durgapur's commercial needs especially wholesale, were : 32 : made by these two centres. Durgapur's general administration was also conducted from Asansol. As facilities have expanded in Durgapur some of the reliance has been reduced though Ranigunge continues to maintain its traditional position as a supply basis especially for food items. To the east of Durgapur the group of villages adjoining each other, i.e., Panagarh, Debipur and Kanksa have grown sizeably from about 7400 people in 1951 to about 14,600 in 1971. Immediately west of Durgapur one of Asia's largest marshalling yards has come up in Ondal which in turn has prompted some linear developments alongside the G.T. Road, such as, Dignala with over 6000 people. South of Durgapur and the river Damodar, Bankura has continued to maintain its predominantly rural character. 3.8: The belated start the D.D.A. made in planning commenced with an exercise for the region. As in Rourkela and Bhilai, here again IIT Kharagpur was invited to make a plan in 1960 and three years later the Institute presented the Durgapur Regional Master Plan. The plan dealt with a large region of 1214 sq. miles comprising 10 thanas in the three districts of Burdwan, Bankura and Birbhum with 7 lakhs population. The plan envisaged a regional structure with Durgapur as the principal centre. It sought to identify the types of industries that should come up in Durgapur and what its linkages would be. Control of development in the entire region was advocated to encourage and stimulate urban support activities. The D.D.A. was advised to convert itself into a regional planning authority. In 1964 the Institute came up with first detailed component of the Regional Plan i.e. the Durgapur urban plan. Since the different townships had taken shape by then, the plan merely confirmed their existence and : 33 : suggested a further northward expansion of the residential zone. Obviously the DDA was in no position to implement any of these proposals. Though conceived as a statutory body in practice it functioned only as an adjunct to the Durgapur Industries Board, in practice. When that Board was converted into a company i.e. Durgapur Projects Limited, DDA's dependence on the DPL for all its planning and engineering services continued. In 1966 the DDA and the Asansol Planning Organization collaborated to publish an Interim Development Plan for Durgapur. Projecting a population of 5.18 lakhs by 1981 the plan's main feature was a system of arterial and link roads to tie up the desperate elements of the complex. The plan recognised and confirmed the broad zoning of the complex into predominantly industrial area south of the G.T. Road and predominantly residential area north of it. To provide focus for the complex through city level facilities the plan suggested limited enlargement and renewal of Benachiti for commercial activities and the setting up of a new civic centre for administrative functions in the DDA township on the eastern extreme. In April 1968, this interim plan was revised through a Perspective Structure document. This envisaged the community of one million in Durgapur by the turn of the century, and suggested the phasing of the road system which would provide the needed integration. Instead of two centres, the 1968 plan also advocated the establishment of a major City Centre which would integrate Government and business offices with commercial, recreational and other city level facilities in a planned manner. Thanks to a change of attitude on the part of the steel plant authorities to make available the requisite land, it was possible to commence work on the city centre in the central portion of Durgapur by 1970. : 34 : 3.9: Apart from this major development and the construction of some of the roads to link up the different townships, efforts to shape Durgapur into a city have not progressed much. The recession of 1966 hit the industries in Durgapur hard. New industries did not come in and extension plans for the existing ones did not fructify. The most serious among these was the decision not to expand the . Employment in the registered factories which had risen rapidly to about 34,000, by 1961, has remained there since then. In 1960, the idea of setting up some kind of local self-government institution for Durgapur was mooted. Initially, it was felt that the DDA itself could be suitably expanded and modified to perform municipal functions but this idea was later given up. In 1961, the West Bengal Government declared its intention to constitute a Notified Area Authority. The major industrial projects in the area, especially Durgapur Steel objected to the proposal initially and suggested that if a Notified Area Authority was at all necessary the steel plant and its township could be constituted into a separate Notified Area. The West Bengal Government did not agree to this suggestion and proceeded to establish the Notified Area Authority early in 1962 for a jurisdiction of about 60 sq. miles comprising all the industrial projects and their townships. The major industries of the townships were identified as separate holdings e.g. steel plant as one holding, the steel township as another holding, etc. The projects were made liable to the holding tax only but not to other rates, such as, water rate, conservancy rate and lighting, since the townships were providing such services themselves. This decision to sustain a single Notified Area Authority for the entire industrial complex is : 35 : in marked contrast to the decision in Rourkela to bifurcate one Notified Area into two and the decision in Bhilai not to set up any such authority. After a hesitant start and some retrogade decisions on taxation, the Notified Area Authority now operates an annual budget of Rs. 35 lakhs and is one of the more important urban local bodies in the State. 3.10: In 1969, Durgapur and its surrounding areas were also constituted into a separate sub-division. Several other State and Central Government offices were also set up in the city. A Government college and a State Hospital were added. By 1975, some of these offices had begun to move into the newly-constructed city centre. The 1971 census returned a population of 206,638 for the Notified Area as a whole out of which the Steel township accounts for 76,921, the various other industrial townships for 44,432 and the non-township areas 85,285. Here again, as in other towns, the 'kutcha' is more numerous than the 'pucca'. 4. Bokaro Steel City: 4.1. We now move to Bokaro, the home of the fourth and the largest steel complex in the country under creation. While coal mining in the region of Bokaro i.e., has been a major activity for over 100 years, Bokaro itself began to acquire industrial importance since the DVC began its work. A thermal power plant was set up by the DVC at Bokaro on the northern banks of the Damodar river in 1956. Chandrapura, another major thermal power plant, followed a few years later in the vicinity. Bokaro had been a favoured location for establishing a steel plant for a long time and, as mentioned earlier, when the Erik Coates Mission was considering alternative locations for the third steel plant to be set up with British assistance Bokaro also

: 36 : had been one of the sites considered. In 1959, the Government of India decided to locate the fourth steel plant at Bokaro. Initially American assistance was sought for the project, but the request got mixed up with the shifting stance of aid politics in USA. The request was then withdrawn and the project lay in cold storage for a while. On 25th January, 1965, an agreement was concluded with the USSR Government for establishing a steel plant of 1.7 million tons capacity in the first stage. The earlier project report prepared by the Indian consultants, Messrs Dastur & Company, was revised by Gipromez in its detailed project report of 1966. Construction commenced in 1968, and as the work progressed, in February 1970, another agreement was signed with the Soviet Union for expanding the plant to 4 million tons. When this capacity is achieved Bokaro will be the largest steel complex in India and one of the largest in Asia. The massive Soviet assistance notwithstanding Bokaro is also claimed to be a "swadeshi" steel plant with nearly 60% of the machinery and components made from indigenous sources. 4.2: The site chosen for the steel complex is about 44 km. south-west of Dhanbad town and is close to the National Highway No. 32 linking Dhanbad and Tatanagar. The plant and the city are bounded by river Damodar in the north and one of its tributaries, the Ganga to the east and the south and the Muri-Chandrapura broadgauge line on the west. The State highway known as Ramgarh-Chas Road connects the steel city with the National Highway No. 33 to the east and National Highway No. 33 to the west which joins Delhi-Calcutta National Highway No. 2. 4.3: In the case of Bokaro the planning for the steel city had been a thoughtful exercise right from the beginning. Pending details of the plant's dimensions a general sketch plan for the steel city had been prepared in 1962 which was scrutinised and endorsed by an all- India panel of 4 distinguished planners.

: 37 : After the detailed project report was received from Gipromez the city's plans were finalised in 1966. The objective again was a single industry-based town but to be built on the neighbourhood and sector pattern which could facilitate suitable staging. Neighbourhood and sector sizes were identified on the basis of community facilities and access to them rather than the number of dwelling units or the extent of the area. Thus, a primary school to be supported by 3500/4000 population was taken as the focus of a neighbourhood and a secondary school required by a population of 8000 to 10,000 was identified as the sector focus. The housing standards were taken from the Bureau of Public Enterprises categorised in six types. The sector density was fixed at 30 to 40 dwelling units per acre way above the other steel towns. Shopping and recreation facilities were also conceived at the neighbourhood and sector levels. A city centre on a linear form was proposed to be developed east-west along the central avenue to accommodate uses, such as, commercial, light industry, trading, business office, cinemas, theatres, etc. The plan also envisaged housing to be constructed by co-operative societies and private developers and earmarked some sites at the periphery of the town for such development. In the first stage the township was expected to provide about 15,000 dwelling units in 5/6 out of a total of 12 sectors planned. In many respects, the plan for Bokaro Steel City sets it apart from new town plans made earlier, and it could be regarded as a MARK-II or second generation planning exercise in the country. 4.4: An area of nearly 33,000 acres had been proposed for acquisition for the steel complex and ancillary facilities out of which about 27,000 acres have been acquired and transferred so far. Out of this, the township including the airstrip accounts for 10,200 acres. So far about 16,750 houses have : 38 : been constructed in 5 sectors of the steel city. In addition, about 4,200 semi-permanent dwelling units have been constructed for the plant's employees in its vicinity. A few large labour camps have also come up close to the plant, such as, Azadnagar Bustee, Duggalnagar, etc., each of which accommodates 7 to 10 thousand people. In some of these camps the construction agencies have provided some basic amenities like water supply, roads, street lighting, etc. In another site the steel authorities have themselves provided sites and services where its employees could put up about a thousand huts. About 300 huts, mostly in mud, have actually been constructed by the employees. Outwardly this little settlement has the pleasant features of an urban village but unfortunately the site itself is affected by the proposed 2nd stage plant expansion. 4.5: The thoughtfulness and attention given to the townships' planning is in sharp contrast to the lack of awareness or effort in the region to deal with what the steel plant planners have described as 'growth reflexes'. One such reflex backed by a lot of financial muscle is Chas which until recently was a wayside village on N.H. 32. In 1971, its population was 13,000 while current estimates places it at over 15,000. Functionally Chas has transformed its character from agriculture to trade and commerce. It provides most of the daily supplies and other consumer goods for the Bokaro steel city. Its area is less than 12 sq. km. It is packed with shops of every kind selling a variety of products and the whole market scene appears full of vigour and money. As it happened in other towns the city centre in the township has been slow to come up and it is now considered that Chas is well on its way to consolidating its position as the unplanned : 39 : commercial centre for the planned township. In the absence of a municipal institutions like a Notified Area Committee the rich tax base available in Chas is not being exploited either. 4.6: Another major reflex growth in the township's vicinity is derived from the so-called rehabilitation villages. In the process of acquisition 43 villages comprising about 5800 families were affected. Out of these, rehabilitation was provided in 19 villages for about 23,000 families. Unlike Durgapur where a number of families were rehabilitated in clusters, in the case of Bokaro the State Government, which handled the job, decided to provide rehabilitation plots in several scattered locations usually adjoining existing villages. None of these villages were large enough to be developed into a viable unit nor was the location guided by any economic considerations. Together these rehabilitation villages account for about 13,000 people. 4.7: A third major development in the vicinity has been the industrial estate developed for ancillary industries by the Bihar Industrial Area Development Authority. Located on the west of the steel plant boundary at a distance of more than 10 km. from the township the BIADA area of 640 acres has been parcelled out to over 200 small scale units so far, employing about 4000 people. When fully developed this ancillary industry area is expected to offer about 16,000 jobs. About 80,000 people will need to live in its vicinity but at this point of time there are hardly any plans for their shelter. The Bihar State Housing Board has built a small estate of about 800 flats. Close to this industrial area is the Bokaro Steel City railway settlement which has another 2000 people. : 40 : 4.8: Taken together as of 1971 the Bokaro Steel City urban agglomeration which includes Chas and the outgrowths described above has about 1,07,000 people. A 1975 estimate places the figure at 1,25,000. Given the plans for Bokaro Steel's expansion and the progress and the pattern of growth observed in the vicinity Bokaro Steel City is likely to emerge as the largest new town in eastern India. The Steel Plants planners estimate by 1981, the complex will have 3.6 lakhs and by 1991 twice that many people. The present administrative apparatus, however, seems primitive compared to the requirement. The steel township is administered directly by the steel plant through a Chief Town Administrator. A Chief Town Planner and his office provide planning and architectural services. Chas continues to be a Panchayat and so are the other semi-urban parts of the complex. Proposals to set up a Notified Area Authority as in certain other parts of Bihar like Adityapur, Jamshedpur, etc., have not materialised. Bihar has a statute providing for establishment of a Regional Planning and Development Authority in such areas, but no such body has been set up so far. Recently some moves were made to constitute municipal corporations in large industrial areas, such as, Jamshedpur and Ranchi. Unfortunately, in all such attempts some adverse comparisons are drawn from the experience of the Patna Corporation and the moves are resisted. So far as administration is concerned the structure in and around Bokaro continues to be the same as it was 100 years ago.

: 41 : 5. Bhubaneswar: 5.1. Heralded as the cathedral city of India with over hundred medieval temples dating from the third to sixteenth century and famed for the battle of Kalinga that Emperor Ashoka fought nearby, it is difficult to picture Bhubaneswar as a New Town. It is only the extension that befits the label and is the subject of our study. The idea of a new for Orissa had been mooted soon after Orissa had become a separate state in 1936. Cuttack was already a congested town by then, helmed in by the and the Khuakhai lacking any scope for expansion. The idea at that time was at least some other major educational institutions should be shifted or established anew in the vast tracts of Government-owned khas mahal upland near the Lingaraj temple of Bhubaneswar. Slowly the concept of a new capital gathered shape, but the Second World War precluded any major investments. In 1947, Otto Koneigsberger was invited to prepare the initial plan. Koneigsberger envisaged a limited settlement of about 15,000 to 20,000 people with the State Government's headquarters as the only major activity. He envisaged a simple layout of about 10 sq. km. formed by three arterial roads dividing the city into office, commercial and residential blocks. It was expected the town would grow as an extension to the older parts of the city. Construction began in 1948. 5.2: Within three or four years, however, some major locational decisions were taken which considerably altered, and affected the earlier objectives. In the earlier plan, the capital city was located close to the Bhubaneswar railway station, and mostly south of the proposed alignment of the National Highway No. 5 to Madras. In 1951, a decision was taken to set up the Utkal : 42 : University in a large campus north of the National Highway alignment. Decisions to locate other big institutions like the Regional Research Laboratory, Sainik School, a major printing press, an Agricultural University and a Regional College of Education followed. Many of these were sited north of the National Highway alignment. The employment was not confined to the State Government either. By 1961, the capital city accounted for nearly 15,000 jobs. Taking into account the older settlement the total population increased from about 16,500 in 1951 to 38,000 in 1961. Some small-scale industrial activity was also seeking a place in the city. 5.3: All these circumstances prompted the initiation of a master plan exercise for Bhubaneswar. The Orissa Town Planning and Improvement Trust Act of 1956 provided the basis for such an exercise. A master plan area of about 81 sq. km. comprising the capital city as also the areas developing north of the National Highway was identified. This exercise, commenced in 1964 was completed in 1968 when the master plan for Bhubaneswar was published. The plan gave an evaluation of the requirements of the urban area in a 25-year span. The population for the master plan area was projected from about 24,000 in 1961 to about 2,00,000 by 1986. Employment was projected to about 60,000 jobs of which the tertiary sector would account for about 64% though the secondary sector including construction was to increase from 12% to 29%. The master plan identified a circulation system which was mainly an extension of the arterial roads outlined earlier in the Koneigsberger plan. The system consisted of four : 43 : categories of roads, viz., 200 ft. wide arterial roads, such, as, Rajpath, Janpath, Gandhi Marg, etc., on which the State Secretariat, Assembly, High Court and other buildings are located, the 150 ft. wide major unit roads, the 100 ft. wide major housing streets to collect internal traffic and fourthly, minor housing streets of 30 to 40 ft. The capital market complex identified in the first plan was retained. 5.4: As with a capital city, the focus in Bhubaneswar development has been on government office buildings. The Secretariat, Raj Bhawan, Legislative Assembly, State Government offices, etc., were completed in the first ten years. A museum, the Rabindra Mandap and other facilities were added later on. While no firm estimates were prepared for all the components of the capital city, expenditure incurred till the end of the IVth Five-Year Plan amounted to Rs. 10.14 crores. Another 4 crores were spent till 1973-74. A significant feature of Bhubaneswar has been that the government had not wished to be the sole landlord in the city. Private housing and commercial construction had been encouraged right from the beginning and developed plots were made available, initially on application and later through auction. Residential plots range from 1/8th to 1/25th of an acre for a price of Rs. 25,000 per acre for economically weaker sections and Rs. 50,000 for others. Till 1973-74 over 4000 residential plots had been given as compared to about 6400 dwelling units constructed by the government itself. About 400 shopping units or plots have also been made available. This private ownership of residence or shop sets the Bhubaneswar town well apart from the company towns. 5.5: A Notified Area Council was set up in Bhubaneswar covering initially about 50 sq. km. which, in 1971, was enlarged to about

: 44 : 65 sq. km., the same as the area of Bhubaneswar city identified in the census. The Council's jurisdiction covers both old and new Bhubaneswar. In the composition of the Council the Orissa Government have introduced a very innovative feature by providing for both elected and nominated members. The old town elects its members while the new capital area has nominated members. The nominees, in turn, are chosen by the Government to represent a cross-section of its employees with residence in the capital area. Another major feature of the NAC is that the properties of the Government are not exempt from taxation. For instance, out of about Rs. 16 lakhs which is the annual tax income of the Council nearly 60% is derived from Government properties. This arrangement is in sharp contrast to the position obtaining in many other states where properties of the State Government are carefully/ substantially kept out of local taxation by various means. The master plan area goes beyond the MAC limits (about 81 sq. km.) and is co- terminus with the Bhubaneswar standard urban area identified in 1971 census. As of 1971 this master plan area had about 135,000 people of which 1,05,491 were in the NAC limits. 5.6: Recently a greater Bhubaneswar Improvement Trust has been established under the Orissa Town Planning and Improvement Trust Act, 1956. The jurisdiction of the Trust, extends to the whole of the master plan area. The capital project construction, however, has continued to remain under the Estates department of the State Government. The Town Planning Directorate of the State provides planning services to both the Estates Department and the Improvement Trust. As yet, the allocation of functions between the two bodies have not been settled. The Trust has recently taken up some housing schemes in the fringes of the capital project area.

: 45 : 6. Jamshedpur: 6.1. The origins of Jamshedpur, by far the most important experience in the country in industrial towns were humble indeed. The 1910 Gazetteer of Singhbhum District refers to village "Kalimati where 25 pucca houses were being built for the proposed factory of the Tatas which, when completed, was expected to give employment to about 3,000 labourers". The struggle for India's first steel industry, however, had begun several years earlier in the travels of Jamshedji Nasserwanji Tata in Europe and America and his plea with the Secretary of State for India over 20 years to give a fair deal to those prospecting for iron ore in the country. The investigations which Tata organised were initially confined to Central until his attention was drawn to the iron ore concentrations at Gorumahisani in Mayurbhanj, 40 miles south of Jamshedpur's location. Finally by 1907, the site was determined and a company floated to set up an iron and steel plant. Three years earlier Jamshedji had passed away, but not without admonishing his son, Dorabji Tata "to be sure to lay wide streets planted with shady trees, every other of a quick growing variety. Be sure that there is plenty of space for lawns and gardens. Reserve large areas for football, hockey and parks. Earmark areas for Hindu temples, Mohammedan mosques and Christian churches". 6.2: Equipped with this commanding message of vision the Tatas proceeded to erect the steel works and "build a city, not just rows of workmen's huts". M/s. Julian Kennedy Sahlin of Pittsburgh, U.S.A., were appointed the consulting : 46 : engineers for planning the site and erecting the works. The site which was then known as Sakchi was originally laid out to accommodate about 8,000 to 10,000 employees. Communication with the rest of the world was through the small wayside station on the railway line to Calcutta, i.e., Kalimati, three miles away. Initially, an area of about 3600 acres was acquired. The plant was completed in 1911 and proved its usefulness during the First World War through the supply of steel in the eastern theatre. Recognition came in 1919 when Lord Chelmsford, the Viceroy, visited the iron and steel works and renamed Sakchi as Jamshedpur "in honour of the Founder to whose prescience, imagination and genius the great enterprise was due". Soon after, the Kalimati station was renamed Tatanagar. By 1921, Jamshedpur needed more than mere official recognition. Compared to 5700 in 1911 its population was recorded in the 1921 census as 57,360. Shelter had already become scarce and developments had become irregular and haphazard. Additional land of about 12,220 acres was urgently needed, but that apart the Tatas had also initiated efforts to formulate a policy for the welfare and benefits of workers. "And so it came about in 1916, when much of industrial England was a slum that Sydney Webb was writing a memorandum on 'Medical Service in the welfare work at Sakchi', while his wife Beatrice contributed another on "Cooperative Stores, Benefit Funds and Thrift Agencies". Many amenities that are taken for granted today were introduced in Jamshedpur, far ahead of legislation in this country as also : 47 : elsewhere in the world. As 8-hour day was introduced as far back as 1912 long before it had been accepted in Europe and America. Leave with pay was introduced in 1920, 25 years ahead of legislation in this country. Following up on the report of the Webbs, Dr. Harold Mann and A.V. Thakkar (later known as Thakkar Baba) submitted a comprehensive report on the needs of Jamshedpur and the amenities required like water supply, drainage, housing, etc. 6.3: In 1919, Mr. F.C. Temple, Sanitary Engineer to the Government of Bihar and Orissa and himself a Town Planner, was appointed as Chief Town Engineer. The Temple plan followed in six months which broadly demarcated the residential, business and open areas of the city, identified the road alignments and proposed the removal and re-planning of bustees within the first acquired area. Temple's plan held good for nearly 20 years. During that time the eastern part of Jamshedpur began to grow. Other factories like the Indian Cable Company, the Tinplate Company of India, Indian Steel and Wire Products commenced their activities. In 1938, when population had crossed 100,000 the company invited Mr. P.G.W. Stopes, fresh from his success in reconstructing Quetta after the earthquake, to advise on further steps. Stopes advised that a detailed stocktaking was essential as "the complex had grown out of its clothes". It was in this background that in 1944 Dr. Otto Koneigsberger, the then State Architect of Mysore, was commissioned by the Tatas to prepare the first master plan. : 48 : 6.4: Dr. Koneigsberger diagnosed overcrowding and lack of housing on the one hand and the jumble of houses and industries compressed between road and rail on the other as the two basic maladies in Jamshedpur. Envisaging a plan "which leaves scope for theoretically unlimited growth but which at the same time is not dependent on the attainment of any given size and provides a suitable town organization at any moment", Koneigsberger's plan clearly separated areas for industries, housing, recreation, education and marketing. Incorporating the existing developments the plan proposed that lands to the north of the factory area should be reserved for housing to be developed on neighbourhood unit basis. An arterial road system was outlined running east to west along the northern half of the city providing salients southwest towards the factories. Koneigsberger preferred medium density lowrise buildings to vertical construction. He also advocated a TISCO Housing Agency to be set up by the steel company with loan capital and subsidised interest, a Jamshedpur Public Services Administration to look after the utilities and a Regional Planning Board to deal with the outgrowths in Jamshedpur's environment. While many of the organizational recommendations of Koneigsberger have not been accepted the basic physical layout provided by him has been set in position and remains so till today. 6.5: In 1941, Jamshedpur's population was 1.65 lakhs which increased by 1951 to 2.18 lakhs. In 1955, the Tatas set upon a major expansion of the steel plant, the third to be launched, in collaboration with Kaiser of the . : 49 : This expansion brought the plant's capacity in 1958 to 2 million tons. Several of the other factories in the Jamshedpur area had also began to expand by then. The most important was the Tata Engineering & Locomotive Company (TELCO), which had been set up in 1945 after taking over the old Peninsular Railway Workshop. By 1961, TELCO was turning out more than 100 locomotives and 10,000 commercial trucks per year. With 6000 houses, TELCO added the second largest company town to Jamshedpur. 6.6: When the population of Jamshedpur had crossed 300,000 around 1955, there was a scramble both for working and living space. The pressures were first felt in Jugsalai south of the railway line and Mango to the north across the Subarnarekha river. The highlands of Adityapur across the Kharkai river were then proposed for development. Earlier the State Government had mooted the idea of having a small township as part of its low-income group housing schemes. A bridge across Kharkai was constructed in 1960 which enabled access to this housing estate. The TISCO decided to locate a major maintenance shop for the steel works as also a new subsidiary company, i.e., Tata Yadagowa in Adityapur. A Regional Institute of Technology followed. By 1962, Adityapur was recognised as an important extension of Jamshedpur and three years later an industrial development authority was established under executive instructions (later to become a statutory body in 1972) to provide the infrastructure for Adityapur. A large area of about 2,700 acres has been taken over by the Government where facilities for industry and residence have been

: 50 : provided. A still larger area of about 53 sq. miles has been brought under development control. As of 1974-75, in Adityapur Industrial Area Development Authority reported 182 medium and small units under production and another 144 under construction. The 1971 census notes the population of Adityapur to be 28,226. 6.7: The Jamshedpur Urban Agglomeration now comprises three distinct administrative entities, i.e., Jamshedpur town, Jugsalai, and Adityapur, covering an area of about 145 sq. kms. and a population of 4.56 lakhs. With about 132,000 of workers of whom 74,046 are in manufacture, 16,323 in trade and commerce and 28,661 in transport and other services Jamshedpur has a significant occupational variety. It also has, by far, the largest range of community facilities among Indian New Towns. There are 6 hospitals (5 of TISCO and 1 of State Government), 4 colleges (including one for women and another for workers), a medical college, an engineering college, 44 higher secondary schools and about 230 primary and middle schools. The number apart, the fact that many of these institutions have been founded by the Jamshedpur community itself, of course aided by TISCO and other industries, distinguishes the Jamshedpur experience. This aspect will be discussed in greater detail in the chapter on Social Issues. 6.8: In its governance Jamshedpur tried some experiments and showed much concern in the initial years but later on the situation lapsed into conventionality. Initially the town was managed entirely as a department of the Steel Plant under the control of the General Manager. There

: 51 : was a small Town Office under an Assistant Engineer, later called the Town Superintendent. In 1919, the then Government of Bihar and Orissa appointed a committee under the chairmanship of Mr. W. Maude, Member of Viceroy's Executive Council to examine and suggest the future administration of the town, Mr. Maude favoured a municipal form but the report was not acted upon on the plea of lack of funds. In 1923 the steel company and the other companies that had come into the area entered into an agreement for the formation of a body to administer the town. This body was to consist of a committee of companies and a Board of Works. The revenue of the Board was to be derived from taxes, license fees, income from bazaars, etc. As a first effort in the administration of an industrial town through a voluntary body, the attempt was unique but shortlived. In 1924 the provincial Government under the Bihar and Orissa Municipal Act, 1922, constituted. Jamshedpur into a 'Notified Area' covering about 22 sq. miles i.e., mainly the acquired area and appointed a committee of 11 members. In 1945, the jurisdiction was enlarged to about 31 sq. miles to cover Mango and areas north of the river and the jurisdiction remains so until now. The present membership of the committee is 22 with the chairman continuing to be the Executive of the town division of TISCO i.e. the Director of Town Services, with seven other members from TISCO, four from other companies and ten from the public. The income of the NAC has remained around Rs. 7 lakhs for many years, mainly derived from cycle tax, animal tax and cart registration fees and government grants. The Town Division under the Director of Services

: 52 : continues to perform all important functions in the town with an annual expenditure of about Rs. 2 crores on town maintenance alone excluding capital charges. In effect the Jamshedpur NAC is a department of the Town Division with the officers of the Division exercising certain statutory powers under the Municipal Act regarding food adulteration, cattle licensing, etc. 6.9: This pattern of a weak and dependent NAC was repeated for Jugsalai, the thickly built up area south of the railway line and adjoining Jamshedpur. Created in 1924, the Jugsalai NAC does not include the Railway colony but covers mainly the shopping area and the slums of Nayabasti and Puranabasti. The Jugsalai NAC operates a budget of about Rs. 4 lakhs supported mainly through rates and taxes. In 1964, another NAC was created for Adityapur and the adjoining villages. Thus, the Jamshedpur Urban Agglomeration consists of 3 separate NACs, each as weak as the other, existing more in name than in effect, with the real responsibilities for the running of the town left in the hands of the company. 6.10: Attempts to provide a stronger and participative structure for Jamshedpur's governance have not succeeded. In 1954, the Nayak Committee under the chairmanship of a Municipal Commissioner of Bombay, examined the Town Division's work. Commending the level of services but concerned at the high cost, the committee urged the formation of a Jamshedpur Corporation with adequate powers of taxation which could provide the services on payment. The proposal did not find favour with TISCO. In 1966-68 Bihar Town Planning

: 53 : Organization formulated a master plan for the Jamshedpur region. Here again it was proposed to retain the 3 different NACs with some adjustment of boundaries, with a Metropolitan Authority ensuring planning, coordination and development control for the complex. In 1974 the Bihar Regional Development Authority Ordinance was promulgated under which a regional body could have been set up for the Jamshedpur-Adityapur region but this has not happened so far. 6.11. In all efforts to reorganize Jamshedpur's administration the rights of TISCO to the lands in Jamshedpur has been a vexed issue. Between 1966 and 1973 in a series of developments, TISCO's position came to be regarded as an intermediary in respect of the lands, which, would therefore vest in the State Government. An injunction obtained in 1973 by TISCO has frozen the situation since then but neither the State nor the TISCO have been able to take any decisions on the planning, development or disposal of the lands. The situation has been slowly drifting towards a non-governance so far as lands are concerned. The pattern of the city growth has been significantly affected in the process, in many cases adversely. These aspects are discussed in detail, later on. Chapter III : THE PHYSICAL ISSUES 3.1: The Concepts 3.1.1: In any search for the basic premises that guided the planning and building of India's New Towns two concepts appear to stand out - one is self-containment and the other, particularly for industrial townships, is the image of a model employer. For all its widespread use in town plans self-containment is a concept vaguely defined and rarely understood. Ebenezer Howrard, regarded world-wide as the father of the New Town philosophy, never used the term himself though he wanted most of the employment and other facilities to be located within the town. Britain has been witness to an extended debate on self-containment in the New Towns. Quite often the terms 'self-sufficient' and 'self- contained' have been employed to convey the notion that New Towns should not be dependent on some other city. The English New Towns Committee in its final report in 1946 urged "where possible..... business and industries established in a New Town should include not only factories and shops but businesses and services meeting local needs as well.. ...it is most desirable that proprietors, directors, executives and other leading workers in the local industries and business should live in the town and take part in its life". Reviewing British New Towns policy Ogilvy observed "from the start self-containment had a dual meaning. The first meaning refers simply to the facilities that exists in a town. A self-contained area can be defined as one which has a complete range of urban facilities, i.e., sufficient employment, shopping, health, education and other facilities adequate for the number of residents; but in general usage this definition has been : 55 : overlaid by the second meaning, i.e. a social purpose. A self-contained town is seen as one in which the town's people can live full lives satisfying all their daily needs within the boundaries. The town provides the environment for the life of a complete community: it is an experiment in social living". While most of the British New Towns have achieved reasonable self- sufficiency in the sense they contained relatively even number of jobs and working people, the debate on their social purpose and successes continues. 3.1.2: When New Towns came to be built in India we had gone through much the same debate. While the industrial employers stressed self-sufficiency in respect of employment and facilities there were several distinguished voices among the community of town planners who felt that "a New Town was 'new' not on account of its location, size or form but because of its new approach to urban planning and architectural design. A new town is not merely an exercise in building houses, factories, schools and shops; it is a deliberate and planned effort to create the best possible physical and human environment conducive to a healthy and satisfying life for the individual, the family and the community and its successes should be assessed in terms of improved life and living" (Vagale). Nehru expressed much the same thought in different terms when he wanted Chandigarh to become "a symbol of a free country, unfettered by the past". 3.1.3: The industrial managements which built most of India's New Towns were no doubt influenced by these sentiments.

: 56 : Since many new town locations were on greenfield sites and quite distant from existing towns they felt self- containment was an essential prerequisite in the plans for the New Town. As things happened even in employment commuting could not be avoided while in facilities New Town residents always found a gap that could be satisfied only in some other town. Self-containment has often been carried to extremes as an exercise in isolation. The most severe example in this regard is perhaps Durgapur. As mentioned earlier, a number of industries came to be located in Durgapur at about the sometime and their townships also had adjoining sites. Nevertheless, the standards adopted varied considerably from one to the other. Oddly, even the two leading public sector industries under the. Centre i.e., the Steel and the Mining Machinery Plant which were headquartered in Ranchi did not consider it necessary to integrate or relate each other town plans though they were to be built next to each other. 3.1.4: The notion of self-containment also precluded any serious attempt to link the New Towns with the adjoining settlements. Mention has been made of Durg- Bhilai and Chas-Bokaro in this regard already. Of course, it is to be recognised that the scale of requirements in the New Towns was so vast that they could not have depended at all on the Durg or Chas. It has been urged that Bhilai would not have come up even in 20 years if one had depended on Durg. For instance, while Bhilai's most urgent need was housing, rents went up enormously in Durg for what little housing it possessed or was able to build. There was, therefore, no option for Bhilai but to go ahead and build its own housing on a massive scale. Yet, a New Town is not just housing. There is a variety of other : 57 : needs like retail shopping, wholesale commercial, private office space, recreation and so on. No town, much less a new one could hope to be self-sufficient in all these respects. In fact, these activities thrive in proportion to the linkages developed within and beyond the New Town. The point urged here is, that self- containment somehow came to be interpreted as exclusiveness. It was not necessary then, for the planner in Bhilai or Bokaro to look beyond the limits of the so-called township, such limits determined more often by the extent of land acquired, rather than through any conscious search to establish the perimeters of growth or the feasible reach of activities and services. 3.1.5: A major reason for this exclusiveness is to be sought in the colonial traditions of the country. Cantonments and railway towns have been a major influence in layout planning. Townscape, in British India and even now, is viewed mainly in three segments, the Civil Lines or the Cantonment, with detached bungalows, wide roads, rows of trees with their trunks whitewashed, with Courts and some government offices nearby, is the first or the premier segment. The bazaar with its crooked lanes and bye-lanes and the honky-tonk of assorted vehicles is the second and the third segment is the native quarter, a congested motley of houses and hovels, narrow winding streets, street taps and open drains. The numerous railway colonies built in the country repeated this pattern. Even latter day extensions to some of the cities in the 1920s and 1930s the so-called model towns, as in Punjab or in the south, were closer to this seggregated

: 58 : style of planning. Even Jamshedpur, despite all the exhortations of the founder and the concern of his successors, has its pucca and kutcha parts, its northern town for the chosen and Sonari for others. Whatever be the inspiration of the Indian planners and engineers drew from the 'garden city' concepts of Britain, the practice they had known was different. In Chittaranjan, where a locomotive plant and a township were set up by the Railways soon after independence, the gardens were there alright, as also the houses, neatly set in income- based rows, all held safe and secure within a vast compound wall and sentry posts encircling the township. Many of the senior managers and engineers in the steel industry had been drawn from the Railways or the State Governments. Railway towns and Civil Lines were the only settlements they had built before and thus Rourkela or Durgapur also came to be cast in that mould. 3.1.6: Yet there was another strong influence, a constant overtone, that characterised the planning and building of these new towns. This was the concept of a model employer, valid especially for the public sector. Given the liberal and socialistic traditions of the leadership that guided India's struggle for independence, the public sector was regarded not only as the dominant segment of industry but also the catalyst to achieve socio-economic change. To be an ideal employer was thus a cardinal point in their creation. The colonial, elitist background in physical planning, interacting with idealism in the sphere of labour welfare and amenities, tended to cause several distortions. : 59 : 3.1.7: The planning process adopted in the New Towns tended to reinforce the contradictions, because there was no scope in it to assess critically the validity and feasibility of the concepts of self-containment and model employer. Usually the procedure was for the industrial management to engage a consulting firm, and give them a brief, limited to informations on likely working force, landspace and money available, housing types, quantum of services to be provided etc. In some of the items like density, floor area, etc., quite often the parameters given in the form of the "clients instructions" were quite arbitrary. For instance, in Rourkela, the consultants, i.e. IGKD noted "the demand for exclusively detached, one family house, each with at least two dwelling rooms and their requisite courtyard". Similarly in Durgapur "the joys of a modest family garden possible in a detached house" were assumed to indicate the right choice. There was no effort to ascertain whether such a dwelling unit was indeed the most suitable choice from the dweller's or the town's point of view. The personal views of the projects bosses also appear to have weighed considerably in matters like housing type, density, location of facilities, etc. While there was some conscious experimentation in determining house types especially for the low income categories, the choice of housing for senior managers seemed to be quite arbitrary. That there was a measure of extravagance has been admitted before the Lok Sabha's Committee on Public Undertakings (8th Report, May 1965). A special review of township construction in Rourkela, Bhilai and Durgapur made by HSL in 1971 indicated that even at the 1 million ton stage when for each of the 3 towns, the target was

: 60 : 7500 houses, there had been considerable imbalance in the types of housing chosen, their costs as also the scale and expenditure in providing the related facilities. 3.1.8: Urban planning in India has relied heavily on the concepts and techniques of planning evolved in the 19th and 20th centuries in North America and notably Britain. Standards as developed historically have been transplants rather than adaptations, reflecting the interest or preferences of the professionals rather than what could be sustained by socio-economic criteria and evaluation. Yet the magnitude of the urban problem is such that within the scant resources maximum spread of the facilities has to be achieved. Standards have, therefore, to be reviewed constantly and curtailed if need be though it defies everything that planners have hitherto been taught to believe as the absolute minimum. The process needs consistent interaction between the industrial management and the planner, between the planner and the builder and among the community of planner itself. Unfortunately the dialogue in this regard has been scanty. Fred Adams of M.I.T., invited by HSL in 1958 to review its towns felt constrained to advise "planners should not be ignored or smothered". : 61 : 3.2. Norms and Standards : In determining the norms and standards, for the use of land, for housing, for utilities and for the provision of community facilities the image of the model employer has been the most important determining factor. As observed earlier, the process of planning and building has also caused some distortion or imbalances within the same township as also one township to another. The capital costs involved have been quite high. In the absence of any pricing exercise to assess whether the residents could afford to pay for the proposed services the cost of maintaining them could not be foreseen ahead. Inevitably the running charges have risen and these are a major item of deficit for the industrial managements. In many cases, it is also seen that the technology adopted has not been appropriate. 3.2.1: While there is no virtue in uniformity, the degree of variance in standards encountered indicates, prima facie, poor planning and poorer coordination during implementation. As regards use of land in Rourkela residential use accounts for 42% of the landspace circulation is 16% and open space 29%. In Bhilai residence takes 33%, circulation 20% and open space 17%. In Durgapur about 48% of the land is assigned to residential use while circulation and open space take 20% and 14% respectively. Extravagant use of land, especially in the initial stage, when land acquisition did not seem too difficult or expensive has resulted in very low densities. The density has been around 2 to 5 dwellings or even less per acre in Durgapur, Bhilai and Rourkela. Though some : 62 : efforts were made to increase density by subsequent construction on an average these three towns have a gross density of 25 to 30 persons per acre compared to nearly ten times more in metropolitan cities like Calcutta or Bombay or 2 to 4 times in other medium-sized cities of the country. Even within the same township housing norms are varied. For instance, within Bhilai residential density ranges from 2 to 12 dwelling units per acre in different sectors. Similar is the case of Rourkela. One reason for this is that detailed planning for different parts of a township were often farmed out to several consultants. As mentioned in the previous chapter, in Rourkela as many as eight different Consulting Firms worked on the layout and housing plan for the different residential sectors. In Bhilai and Durgapur individual house-types and plans were often determined by the steel plant's own design office. Inevitably there has been a variance in approach which has produced in turn, a variance at the site. 3.2.2: The degree of variance stands out in rather sharp contrast when townships adjoin each other, as in Durgapur. Minimum floor areas have varied from 200 to 500 sq. ft. and maximum from 2000 to 3000 sq. ft. in the different public sector townships of Durgapur. As for amenities steel town provides 80 gallons of water per capita per day, in the adjoining Mining and Allied Machinery town it is 40, in the AVB town it is 100 and in the Coke Oven township it is even more. Since water is not paid for wastage is recurrent and actual consumption far exceeds intended supply. 3.2.3: A wide variety of housing types exist. In Durgapur and Rourkela there were 9 different basic types while Bhilai had 6. Several permutations of the basic types were

: 63 : then worked out leading to a bewildering variety of house types linked to income-groups. Despite so many house types utilisation of land for housing has been generally low. There was considerable hesitation towards double-storied construction. In a discussion at the HSL Board in 1959, bungalows were still being favoured and double-storied dwellings were left to be considered for lower-income types only at future stages of expansion. In 1963, the Committee on Plan Projects laid down a sector density of 14 to 20 dwelling units (65/95 persons per acre) and a township density of 9 to 12 dwelling units (45/55 persons per acre). The Bureau of Public Enterprises thereafter began to standardise housing types and density norms. Currently 4 basic housing types ranging from 385 to 1700 sq. ft. of plinth area have been evolved with densities going up to 30/35 dwelling units (150/170 persons per acre). Four and five-storeyed walkups is the preferred norm at present. However, there has been very little experimentation in achieving medium densities with low rise dwelling units. 3.2.4: Considerable disparity exists in the norms and standards adopted for the New Towns compared to those prevailing in other cities. The point regarding residential density has been mentioned already. In the provision of amenities the disparity is pronounced. For example, water supply standards are extremely high with 70 gallons per capita per day in Bhilai, and 80 in Rourkela (specially mentioning a break-up of 30 G.P.C.P.D for domestic consumption and 45 for gardening). Jamshedpur provides 80% in the northern town but less than 20 in the bustee layouts. It : 64 : may be argued that in a town planned and built anew, standards should not be related only to the past. But if they are excessively high the cost will go beyond the city's and the country's fiscal ability as indeed has happened. 3.2.5: It may be argued that these disparities are not very serious and at any rate, in building India's first New Towns after independence some experimentation was not only inevitable but also welcome. This is a valid point and as mentioned earlier the norms and standards need not be faulted merely because there is no uniformity. But whatever the variance, the price element of the services to be provided and their affordability by the citizens were not examined at all. The township was regarded only as an adjunct to the industry and so long as the investment on the township was kept within a given percentage of the overall project cost, it was not subjected to any separate financial justification. In 1963 the Lok Sabha Committee on Public Projects reviewed the norms and standards in industrial townships for the first time. Undoubtedly this was a major event in history of India's New Towns planning. But the concern was on physical and landuse aspects. "The excessive capital outlay on the townships and its adverse effect on the cost of production" was a major item of study by the committee but its report does not refer to what the costs have been : or what should be the criteria for investment planning in municipal services: or what should be the method of financing the initial improvements and the maintenance and operating costs in the long run. Of course,

: 65 : there is a chapter in the Report on "Avenues of Cost Reduction" but this deals with 'specifications', 'prefabrication', 'payment to contractors' etc. The standards suggested in the Report are little different from those recommended in planning textbooks in the U.S. or U.K. (Ved Prakash). 3.2.6: A subsequent Lok Sabha Committee on Public Undertakings (1965) referred in greater detail to the cost aspects of the township. Analysing the capital cost figures for townships put up by 42 public sector undertakings, the Committee observed "a majority of public sector projects are located in out of the way places and it may be necessary to provide housing and other facilities on a somewhat larger scale. It is also desirable that public undertakings should aim at being model employers. Nevertheless the Committee are equally anxious that public undertakings follow a balanced approach in incurring expenditure on productive and non- productive activities….. Our examination has revealed that much avoidable expenditure has been incurred……. utility services and other facilities have been lavish... Layouts are sprawling resulting in high expenditure on water, power, sewerage, roads and maintenance…………. The Committee are constrained to observe that the public undertakings have not been adequately cost conscious". In a major recommendation the Committee also observed "the present practice of meeting the entire cost of townships from out of the capital of the project is neither sound nor in consonance with prudent commercial practice... the outlay on the townships should normally be met from loans, : 66 : internal resources and subsidies". Noting that the entire cost of maintaining the township was being borne by the undertaking, the Committee heard during evidence of "a proposal to set up a separate body to look after the townships of public undertakings. The Committee trust that Government would examine the matter in all its aspects and arrive at a suitable decision at an early date". 3.2.7: Unfortunately such an examination never progressed. Since 1966 the Bureau of Public Enterprises, has studied several aspects in the construction of public sector projects and townships. A few hundred guidelines have been issued on project planning, site investigations, consultancy assignments, tenders, contracts, progress reports, and of course norms and standards for civil works and economy in the cost of construction. But there is not a single guideline or even an investigative study on the possible ways in which the services in a township can be priced or paid for by the users. This is because the financial viability of a township has never been an issue for decision. Right from the beginning it has been assumed that services like water, power, sewerage, etc., are in the nature of amenities provided to labour and need not be charged for, separately. House rents are the only revenue of some significance but here again the rents are highly subsidised under one or other of the government regulations or wage agreements. Service charges for water and electricity are nominal, if any. The 1965 Committee on Public Undertakings noted, in most townships, subsidy ranged from Rs. 25 to Rs. 124 and often in excess of the ceiling limits prescribed. : 67 : 3.2.8: To give an idea of the capital and running costs in the townships, on land development and services only, such as, water supply, drainage, sewerage and roads per capita expenditure is about Rs. 990/- in the case of Bhilai, Rs. 1190/- in the case of Rourkela and Rs. 1470/- in the case of Durgapur. If the cost of residential and other buildings for community facilities are included per capita cost works out to Rs. 3119/- in Rourkela, Rs. 3810/- in Bhilai and Rs. 3912/- in Durgapur (Ved Prakash). This is more than twice as high as the per capita cost for suburban developments that have come up in metropolitan cities. Arising from the high capital costs per capita running costs have also been very high. According to 1971-72 figures, per capita annual expenditure on maintenance of the townships excluding expenditure on buildings as also items like education and health is, Rs. 138/- in Bhilai, Rs. 129/- in Rourkela and Rs. 82/- in Durgapur steel town compared to Rs. 60/- in a reasonably well-maintained city like Bombay. It is not so much the quality or scale of service that has determined the high cost as the wage component. The Nayak Committee which examined the position in Jamshedpur in detail indicated that wages alone constituted more than 60% of the maintenance cost. Since wage levels are usually very high in the steel industry the wages of persons engaged in the township activities also tend to be higher than those engaged for identical work in other cities. Subsequent wage agreements have tended to increase these : 68 : costs further. The rising trend of township expenditure, can be gauged from the table below. The figures exclude expenditure on Education, Health, Social and Cultural activities, staff welfare and transport. Table (Figures in lakhs of rupees) Town/Item 68-69 69-70 73-74 74-75 1. Rourkela Expenditure (including depreciation and interest) 94.11 188.91 205.87 268.59 Income 73.99 77.67 91.43 94.19 Net Deficit 20.12 111.24 114.44 174.40 2. Bhilai Expenditure (including depreciation and interest) 249.66 254.08 246.66 303.90 Income 91.75 97.03 128.30 136.16 Net Deficit 157.91 157.05 118.36 167.74 3. Durgapur Expenditure (including depreciation and interest) 35.53 38.13 93.53 118.41 Income 3.37 3.74 3.08 3.35 Net Deficit 32.16 34.39 90.45 115.06 3.2.9. The technology adopted has also been high cost and inappropriate. Sewage treatment can be cited as an example. In Bhilai after considerable debate it was decided to set up an oxidization pond which has been functioning efficiently and cheaply. The soil and weather conditions in Rourkela and Durgapur are not very different but here expensive sewage treatment plans have been set up. The Mining and : 69 : Allied Machinery township, in Durgapur, however, preferred the oxidization method. It should, therefore, be apparent then, that investments have been made not so much on considerations of cost or technology but on individual and ad-hoc preferences. The very elaborate rights of way adopted in the circulation system, based more on heavy automobile use is another instance. If pedestrian and bicycle use had been accepted as the principal mode of travel, as subsequent experience showed, the space for circulation and the pattern itself could have been rendered less expensive and providing easier access. 3.3. Land and shelter: 3.3.1: Though the townships in all cases had the advantage of publicly-owned land, policies with regard to land ownership and utilization of land for shelter have not been clear. Initially the managements had the desire to provide housing to most of their employees. In fact, this was to be an important component of the so- called self-contained township. There was also the feeling, though not openly expressed, that provision of housing within the industry's own township would lead to better industrial relations and hopefully, better control of the workforce. In effect, however, this has not been possible due to the increasing cost of housing and its increasing proportion to the total township costs (53% to 55%). The following table indicates the 1974 : 70 : position of housing: Town Staff Houses % % in strength available 1966 Rourkela 33,528 22,721 67.76 69 Bhilai 52,347 26,659 50.92 40 Durgapur 39,258 18,944 48.25 64 (including Alloy Steel) Bokaro 30,815 19,706 63.94 - Jamshedpur 36,000 17,500 48.61 43 (TISCO) 3.3.2: The managements now recognise it will not be possible to give full housing satisfaction. The Bureau of Public Enterprises has laid down that in the case of projects located within 10 miles of large towns housing should be provided only for about 40% of the employees. Where medium-sized towns and a number of villages are nearby housing may be provided for 55% and only in difficult and remote locations can housing be provided for 70% of the employees. While the norm has been set forth mainly because of resource constraints the policy has not been matched by adequate thought and action to promote non-company or private housing. The quantum of housing provided by state government organizations like Housing Boards under schemes such as low-income and middle-income group housing, housing for industrial workers and economically weaker sections, etc., continues to be small. For the entire Durgapur area it is less than 4000 while in Bhilai, Rourkela and Bokaro it is less than 1000. Even in Jamshedpur, over several years the number of units put up by the Housing Board is about 5000 only. : 71 : 3.3.3: The policies with regard to land-ownership and the measures to be taken to promote non-company housing have been a matter of much trauma for the HSL. At a Board meeting in 1958 when the item was discussed, one of the General Managers suggested positive steps to provide developed land for both the steel plant's employees and others. A second General Manager felt that only those "outsiders who would be useful to the plant or the development of the township" should be offered plots. Preference was to be given to employees and ex- employees. A third General Manager suggested creation of separate sectors in the township where non-company housing could be set up. Six months later a Sub- Committee of the Board came to the conclusion that allotment of sites for non-company and private housing was premature at that time but plots could be reserved to facilitate future development. Eight years later, the same issue of 'insiders and outsiders' was still being debated by the project management before the Nakhra Committee, another sub-committee set up by HSL to consider "the increasing shortage of accommodation and the prospects of selling land and houses in the township so that the fund realised could be used for additional houses and the capital investment on townships is reduced". For the first time in the history of HSL the Nakhra Committee clearly set forth the bounds of realism in the statement below: : 72 : "Fundamentally, our committee is of the view that if our objective of generating resources for the planned and healthy (i.e. slumless) expansion of our townships and of minimising our subsidy on provision of houses is to be achieved, the following basic principles of policy must be accepted :- 1) that our employees by themselves do not and cannot constitute the total civic life of our townships - no group of society, howsoever privileged, can be completely self-contained - and therefore, those working for the townships, viz., traders, taxi drivers, rickshaw pullers, barbers, cobblers and others no less than the local representatives and agents of large and small commercial and manufacturing firms - must be recognised as an integral part of our civic life - and made to feel that they are not unwanted elements allowed to exist on sufference. 2) that although it is possible to maintain the identity and special character of our townships their complete exclusiveness will have to be given up in the interests of their integrated growth and development. 3) that the terms of lease of land to our employees and to private parties and institutions will have to be suitably liberalised so as to make them definitely attractive. . " : 73 : 3.3.4: But acceptance of these views were slow to come. One of the General Managers, in the words of the committee, "was of the emphatic view that the exclusive character of our townships should not be disturbed by induction into them of packets of private housing". Nor was he in favour of sale of houses. However, other general managers seemed to agree and the HSL management accepted the committee's views in principle, but wanted implications for each project to be separately worked out. Five years later when thinking finally veered round in each of the townships and schemes were prepared to develop and allot land for private housing, the state governments threw a spanner in the works. Since land had been acquired for setting up a steel plant and its township, they stated, it was not open to a steel plant management to alienate the acquired land to an outsider. The issue is still unsolved and debate continues on who is an insider and who is an outsider, and who should be his protector and benefactor. 3.3.5: There has been some limited success in Bokaro in private housing where an Employees' Cooperative Society has been formed whose numbers have put up about 1200 dwelling units in 500 plots, laid out in one of sectors of the township. In Jamshedpur the TISCO management appears to have recognised the impracticability of providing housing for all categories of its employees as also the services population, in the beginning itself. Hence, a system of providing housing to employees and non-employees on a monthly tenancy system that came to be known subsequently as bustee layouts, was developed. About 6500 such plots have been made available by TISCO in 21 locations and so far about 9000 dwelling units : 74 : have come up here. This example has been picked up in Bokaro as well, where for construction labour as also the steel plant employees a 'sites and services' programme has been launched in a few locations. In these sites the people themselves are encouraged to put up their own housing, which is usually semi-pucca. Minimum amenities have also been extended to labour camps and bustees which have come up near the steel plant where a number of employees or construction labour reside. However, both in Jamshedpur and Bokaro the tenure of the site given for such purposes is limited. In Jamshedpur the management now concede that monthly tenancy is an anachronism in the bustee layouts which have existed for several years. A more enduring arrangement of 30 years' lease used to be available in Jamshedpur for middle and upper income housing under which about 1500 plots were given by TISCO in which about 2500 dwelling units have been constructed. The scheme has not been pursued since the land dispute and the court injunction referred to earlier. 3.4. Slums and Marginal Settlements: 3.4.1: Though the new towns under this study have been in existence for just about 20 years the growth of slums in and around them has been a pronounced feature. These marginal settlements constitute a significant portion of the New Towns population as will be evident from the figures below: Town Population People in Percentage (1971) Marginal Settlements Rourkela 1,72,502 53,363 31 Bhilai 2,45,124 64,685 29 Durgapur 2,06,638 40,004 20 Bokaro 1,07,159 17,565 17 : 75 : 3.4.2: These marginal settlements consist not only of slums and squatter settlements that have come up afresh but they also cover the villages, howsoever small, existing in the vicinity of the New Town which over a period of time have degenerated into slums. To a large extent this phenomenon has been due to ignorance of the urbanisation process and defective land and development policies. 3.4.3: As mentioned earlier, in the planning of the townships the industry itself has been taken as the dominant force. But this has not been the position throughout the history of the town. In terms of employment, tertiary sector activities has accounted for an increasing share of total employment in the towns. While it is conceded that the dominant industry has been the main force and instrument in creating the township, it has also to be recognized, in course of time, as other economic activities are generated in the area, this dominance becomes less and less. The 1971 census figures on occupational pattern brings out the change, as indicated below: Name of Town with total Percentage in Percentage in number of workers in manufacturing tertiary sector brackets 1. Rourkela 51,327 (1961) 34.09 50.89 57,849 (1971) 34.00 60.97 2. Bhilai 48,772 (1961) 51.19 26.35 50,346 (1971) 59.41 40.64 3. Durgapur 26,051 (1961) 58.98 16.87 63,870 (1971) 56.01 31.30 4. Bokaro 45,812 (1971) 24.86 20.79 5. Jamshedpur 99,584 (1961) 54.38 35.39 1,31,599 (1971) 57.43 34.18 6. Bhubaneswar 14,386 (1961) 3.20 80.29 33,818 (1971) 6.78 72.93 : 76 : It may be noted in the case of Jamshedpur the expansion in manufacturing has been due mainly to an increasing number of medium and small industries. In Bhubaneswar tertiary sector is dominant because it includes employment in government as well. But here again there is increase in manufacturing activity. The main point sought to be emphasized is, that diversification of employment structure is increasingly noticeable in the New Towns. The concept of single industry or dominant industry is, therefore, not valid in assessing a town's picture requirements of housing and other urban facilities. Nevertheless, in the context of the policies discussed earlier, persons engaged in tertiary activities were regarded as 'outsiders' by the township management who had to fend for themselves for residence and working space. The employees who were not fortunate to be housed in the company's quarters were also in a similar position. The only accommodation they could find was either in the villages which were pockets in the township area left out of acquisition or located at the periphery or alternatively, in the huts of paper and board, tin or straw which mushroomed on the towns fringes. 3.4.4. The village pockets which were the only 'neutral' cushion so to say, to absorb the migrant industrial or other worker, rapidly lost their earlier identity and character. Limited facilities like the village pond or well that existed before were quickly overrun by increasing population. Demand for rented accommodation prompted new construction but usually in a haphazard way. Improvements like electricity, drainage, paved roads, etc., were not extended to these villages as they were outside the township. Still, people denied of space in the township proper, continued to move into these villages : 77 : which became in the process the semi-pucca or kutcha components of the New Town's growth. This is particularly evident in Durgapur where the villages which accounted for 75% of the Notified Areas population of 41,700 in 1961 degenerated into slums ten years later. The position in the other towns is not very different. Sagarbhanga and Mamra in Durgapur, Bisra or Mahulpali in Rourkela, Chaoni or Bhilaigaon in Bhilai and the villages around Bokaro city are pointers to the phenomenon. 3.4.5: The failure to grasp the position and dynamics of villages existing in the vicinity and incorporate their future in the town plan is not understandable. Given the restrictive land policies followed by the township managements, these villages provided the only cushion for absorbing people who could not be housed in the township. It was apparent that in due course, the character of these villages would change substantially. It was also clear that if the minimum facilities like water and drainage were not extended to these villages their environment would rapidly deteriorate. Yet, while preparing the plans for developing the township these villages were left out as pockets. Lack of expertise does not seem to be the reason since some techniques for dealing with such villages had been devised by the industrial managements themselves, in other circumstances. In the case of villages acquired while setting up the plants or the townships, elaborate arrangements were made for rehabilitation of the displaced families. Fresh layout plans were made, plots were earmarked and facilities like water supply, roads, lighting, : 78 : etc., were also extended to the rehabilitation sites. Though the State Governments participated in such rehabilitation arrangements, undeniably the initiative and much of the expertise came from the project authorities. Gopalmath in Durgapur is a good example where over 1200 families, shifted from several villages at the Steel Plant site, were brought together in one location. A system of roads, water-supply and electricity was extended. Primary and Secondary Schools as also a Health Centre were constructed under the State Government programmes with assistance from the Steel Projects. Today Gopalmath with a population of 8000 is regarded as one of the more homogenous and reasonably serviced components of Durgapur, Luakera, Jhirpani and Jalda in Rourkela witnessed similar rehabilitation efforts. Of course, the advantage of designing a layout afresh was there in Gopalmath but the concept of providing services and amenities to villages, thereby enhancing their livability could have been followed in the case of other existing villages as well, though these were not covered under acquisition. The financial outlay would not have been much. The only reason why this has not happened appears to be the lack of a decision as to who should pay for these services and whose responsibility it would be to look after their maintenance. Models were not wanting either. By 1958, TISCO had launched a Community Development Programme in the bustees of Jamshedpur. TELCO followed suit with an enlarged programme seven years later. Some ten years thereafter the Steel Authority of India also declared its faith in community development and social : 79 : responsibility of industry. Some modest efforts have commenced in some villages near Rourkela and Bokaro since then. It is not that the township managements have had nothing to do with the unacquired village pockets. Since then villages are also the homes for many of their employees, the managements have had to fork out, willy nilly, grants of one kind or another to secure some improvements. Timely recognition of the role of these villages and the potential they had for shelter would have helped prevent much of the decay that has set in the New Town. The Committee on Public Undertakings (1965) had much the same view when it commended the proposal of satellite villages for industrial townships. 3.4.4: The labour camps set up at the time of the projects construction have been the surest progenitors of slums in the New Towns. There has always been an assumption, facile though, that these labour camps would be temporary. The norms and standards for amenities in these camps were, therefore, markedly different from what were adopted for the township proper. The type and scale of accommodation was also much less. On an average, each camp accommodated 3000 to 5000 workers and their families. Invariably the location of these camps was the most attractive due to there proximity to the main work centre. A considerable amount was invested by the construction agencies in developing the land and providing the minimum amenities. Usually construction ranged over a period of 5 to 7 years. In Bokaro, for instance about 14,000 construction workers have stayed on for nearly ten years and many are absorbed in the plant itself, though in slow stages. A substantial part : 80 : of the labour in the camps was thus not of the fluctuating variety and most stayed on to take jobs in the running of the plant. Some private settlements also grew alongside the labour colonies mainly to service them and by the time the plant itself was ready for production the labour camps with their outgrowths had emerged into sizeable settlements. The industrial managements, however, continued to treat them rather obdurately as temporary settlement to be removed at some future date. That date has never arrived and these settlements in the absence of amenities and prone to further influx, degenerated into large slums. In town after town, the temporary labour colonies have endured. Kursipar and Supela in Bhilai and the Waria camps in Durgapur are eloquent testimony to this phenomenon. Yet the fallacy and arbitrariness in setting up these labour camps persist. In Vijaynagar, for instance, where a new steel plant is proposed to be built near Bellary in Karnataka, the consultants have been asked to develop the plan for the town in three segments - one for a labour colony close to the plant, another as a pucca and proper 'steel town' for the plants' employees and the third as a 'Civil town'. Only a total lack of understanding about the dynamics of urban growth could lead to such an illogical view of the town as steel and civil. Besides, far from being tucked away somewhere behind a factory's chimneys as something unsightly, the labour camps, by the sheer weight of their population and the advantage in time gained from an early start, tend to pull subsequent growth towards them. In town after town, the 'semi-pucca' or : 81 : the 'kutchha' has endured and also prevailed over the 'pucca'. It is also not realised that by failing to incorporate these camps in the townscape, there is also a failure to capitalise on the incomes derived by the construction workers, usually much better than what they had before, and their propensity and willingness to invest part of it in finding, building and improving their own shelter. That New Towns, in less than a decade have sprouted slums, is not a tragedy : nor is slum growth on affliction. It may be unsightly but all the same it is a manifestation of private initiative in finding shelter. It is the failure of the organizations and the policymakers to comprehend this investment potential that is a matter for concern. 3.5 : Shopping: The city begins at its centre, among the multitudes of people, meeting and trading, buying and selling, creating and relating. The centre in a city is often its expression, the place where people can be people. Yet, India's New Towns have sadly lacked such a centre. Most plans have marked a spot on the drawings for a town or a civic centre, but these have rarely come up. Somehow, in the reckoning of the new town builders trading has been viewed as not terribly important in a city's existence : certainly not as much as the plant or the houses for the workers to live in. There were plans no doubt, for shops in the neighbourhood, in the sector and the so-called town centre: but these were just a part of the check-list of items that a planning textbook provided. There was little or no study to assess the scale of commerce likely to be transacted in the city or its needs of space and functional location. In the result shopping in the New Town : 82 : is split in two parts : one consists of the neighbourhood and sector shops, very pucca, few and far between, built and let out by the township management. The other is the bazaar, by the fringe of the township, bustling with shops and merchandise of every variety, where the pucca and the kutcha, the wholesale and retail, the vegetable markets, the textile emporia, the bookshops and the sweet meat vendors, the buses, cycle rickshaws and scooters all mix and mingle in merry confusion. For the planned townships this unplanned bazaar is the true meeting ground where ties of employment are shed, where the general manager and the lowly workmen are just people buying their needs. Benachity in Durgapur, Chas in Bokaro, Supela in Bhilai and the Station Bazaar in Rourkela are the great levellers. 3.5.1: In the design for shopping at the neighbourhood and sector levels, the New Town plans have focussed more on the architectural than the functional aspect. The rents for the built-up shops have been quite high and the locations unattractive. The number of shops built in a sector market have also been somewhat inadequate. In almost all cases, the design has been somewhat inflexible and sufficient regard was not given to the native characteristics of shopping. In most Indian cities daily supplies like vegetables, eggs, etc., are sold by hawkers and petty stall keepers who operate on very low overheads and cannot afford built-up shops. The profile of retail trading for daily supplies in the Indian city is not upper income oriented : by and large it is an activity of low margins sustained by low overheads. These type of activities have invariably been 'priced out' of the pucca sector market : Nevertheless the need for this trading was there and so instead : 83 : of pucca shops, the activity moved into wayside shacks and lean-to sheds put up in the vicinity of the pucca market. Depending on the township managements' mood and disposition, these "unauthorised commercial encroachments" as they are called have stayed on or have been pulled down, only to be re-erected, from time to time. None of the sector markets in any of the towns under the study is free of this phenomenon. In Bokaro, there is a refreshing exception. A bi-weekly 'hat' is held in a specious ground of the township, where all the trading is done in the open air or in partly covered stalls. Vegetables and some daily supplies find their way into this 'hat' from the nearly villages. A measure of wholesale trading too goes on. A smaller hat is operated in one of the sectors as well. No detailed study has been made to contrast these 'hats' with the sector markets but it is generally conceded that prices are cheaper in the hats and the variety is more. 3.5.2: At the city level, the town plans did not reflect adequate understanding of the volume of trading activity and the interactions between wholesale and retail business. Usually a town plan provided for a City or a Civic Centre, which was mainly a complex of office buildings with some provision for banks and shops. The plans did not include residential support for the trading activity nor were they integrated with recreation and other city level activities that needed a central location. Commenting on this, the Committee on Plan Projects (1963) observed "the trends in shoppers' behaviour show that they combine shopping with entertainment, recreation and other leisure time parsuits. : 84 : The Town Centre should therefore be planned as a single complex" incorporating functions like business and commercial, cinemas, theatres, libraries, museum, town hall, central post office, central fire station and so on. There has been increasing awareness of this integrated nature of a town centre among the planners but the problem in the New Towns have been one of phasing and finding the investment for building the centre. Restrictive land policies have not helped mobilise private investment in this regard. It is generally assumed that commercial users can pay very high rents or premium for space. This may well be true, but in a New Town demand and business pick up slowly and there is a distinct need to begin with to help commercial activities promotionally. Unfortunately, any facility or concession in this regard is not favoured, on the assumption mentioned above that business can pay and pay well. HSL's efforts in this regard will illustrate the point. 3.5.3: In a meeting in August 1959, the HSL Board had proposed that for Banks and similar commercial use, land be allotted on a 30-year lease, the annual rent being calculated as a function of the land cost divided by 15 years, plus a 6¼% in addition as economic rent. After 15 years the economic rent could go upto 25%. Land cost including development having been fixed at Rs. 50,000 per acre, the annual rent under this formula works out to 50,000 ÷ 15 = 3,333 + 3125 being 6¼% i.e. Rs. 6,458/- per year. The formula would have given the township management a steady income and also recover the investment in a limited period. The Government of India, however, did not agree to HSL's proposal and wanted, quite

: 85 : unrealistically, for the Delhi practice of Auction and premium to be adopted. In 1966 the Nakhra Committee, departing very much from the high sensitivity it showed in allotment of land for residential use, suggested commercial plots should fetch a premium of Rs. 1 to 2 lakhs per acre plus a ground rent of 2%. Since 1975, for allotment of commercial plots, land cost has been taken at about Rs. 50,000 and apart from the premium a ground rent of 8% is charged. In Bokaro the premium is even higher at Rs. 60 per sq. yard or about Rs. 3 lakhs an acre. Out of about 300 plots in the city centre and sector markets, it is reported over 200 commercial plots have been allotted. Undoubtedly there is a market for commercial property at even these prices. It is also obvious that there is a consumer base in the New Town which can sustain such commerce. The real issue is whether the entire commercial requirements of the community are met or can indeed be met by this trading segment. That this is not the case is amply borne out by the large volume of trading activity that takes place outside the markets organised by the township administration. 3.5.4: An extensive 'Commercial Establishment Survey' was undertaken in Durgapur in 1966. About 1670 commercial establishments were surveyed. Out of these 842 were located in Bhiringee-Benachiti, about 400 in the ten sector and other markets of the different townships and the rest in the remaining bazaar of the city outside the townships i.e. Durgapur station bazaar, Mamra bazaar, etc. About all of the shops in Bhiringee- Benachity were found to be kutcha or semi-pucca. Yet out of the total sales of about Rs. 70 lakhs in : 86 : the city, per month, Benachity's share was Rs. 41 lakhs or about 60%. The other semi-pucca bazaar near the railway station accounted for about 17%. The survey further revealed that Bhiringee-Benachity accounted for 47% of the total sales in the city of food supplies, 53% of cloth and apparel and 80% of all other retail sales. An interesting feature of the study related to rents and sales per sq. foot of shopping space, which is indicated in the table below: Item Rent in Rs. per sq. ft. Sales in Rs. per sq. ft. In Benachity Elsewhere In Benachity Elsewhere Food 0.21 0.23 16 8 Perishable 0.19 0.22 30 20 food Restaurant 0.23 0.14 7 3 Cloth & 0.29 0.24 16 19 Apparel General 0.24 0.16 26 9 Merchandise Automotive & 0.20 0.18 11 3 Repair It will be seen that though the rents in many items are on par between the two locations the sale per sq. foot is very much more in Bhiringee-Benachity than in the other markets for almost all the items. This clearly indicates that rent apart, location and the scale achieved by in a market centre by the clustering of a large number of shops are the critical factors that determine commercial development. The locational advantage is also to be viewed in a time span. As mentioned earlier, most New Town plans contain the provision for a City Centre. In theory these were perhaps the ideal location in terms of centrality and access. Yet, as these centres did not come up in time and there was no decisive action to promote them the commercial developments outside the township : 87 : rapidly grew and gathered a size and momentum that became increasingly difficult to match as time passed. Benachity itself is a classical illustration of this. 3.5.5: Mention had been made earlier of the steel township plan being based on a central avenue which would collect traffic from the township and direct it to the eastern gate of the steel plant. Since the western gate, located 9 miles away on the G.T. Road, became the main access point for the plant and as the plant administration building was also located nearby, the land-space between its main entrance and the township became most crucial. An old village road ran through this space which also marked the shortest distance between the steel plant and the township. This was Benachity. Predictably it resisted all early attempts for land acquisition though part of it was eventually acquired. For no particular reason it was decided to settle in this acquired land a lot of persons displaced by land acquisition who could not be accommodated in Gopalmath. Though leases for these rehabilitation plots were granted on the strict understanding that they would be used for residence only, its strategic location, enhanced by the siting of a sector market in the steel township close to its northern tip, clearly focussed Benachity's commercial potential. By 1961 i.e. less than four years about 600 establishments came up Most of the so-called residential rehabilitation plot converted into non-residential use. Faced a massive flouting of the lease conditions tration could, do little. Benachity's grow have been set forth in the results of 1970, the Durgapur Development Authority : 88 : of a city centre in a more central location of the complex. With the sub-divisional courts and other government offices, the City Centre is now emerging as an important focus. But it is doubtful whether it would ever be able to wrest from Benachity the premier commercial role. The position in Bokaro, where a town centre is slowly taking shape, appears to be much the same vis-a-vis Chas. Compared to this, the commercial areas in Jamshedpur like Bistupur and in Bhubaneswar like the Capital Market have become established centres mainly because of their early start timed with the beginnings of the town itself. 3.6. Transport: Transport, rather lack of it, is perhaps the most severe problem in the New Towns. It is also perhaps the most significant factor causing friction and a lack of community feeling. 3.6.1: In the preparation of the Township plans transportation was viewed mainly in terms of circulation space rather than modes of transport. It was generally assumed that the bus and the motor car would be the principal means of transport and this is reflected in the very large rights of way, the high standards of construction and several types of roads provided in the town plan. The Committee on Plan Projects had occasion comment adversely on this. The sight of a 100 ft. or 120 ft. brilliantly lit, going nowhere in particular and traffic, is a familiar feature of the New Town. lot of attention was given to organizing in the New Town plan, this was not matched of activity locations and their traffic-- For instance, in the Durgapur plant the : 89 : main centre of activity, i.e., the steel plant is at a distance of more than 9 miles from the township. The first lot of residences allotted to people with their own private means of transport, came to be located nearer the plant and those depending on bus transport were located farther away. In the case of Rourkela, the sectoral layouts were so devised that everybody would have an access to the ringroad within 500 metres, but the ringroad itself was designed with a bus system in view as to principal means of communication. In both these cases the steel plant managements have had to raise and maintain at considerable subsidy their own fleets of transport buses. Durgapur's fleet of 93 buses (55 on the road) perform 420 trips a day for about 14,000 pass holders, at a loss of about Rs. 1.7 crores annually. But even this fleet serves mainly the movement from residence to factory and back. Facilities for transport within the township are very limited. 3.6.3: The position is the same in the case of Bhilai as well. Even in Jamshedpur where the different industrial and other activities are not too far removed from each other public transport continues to be a major deficiency. The same is the position in Bhubaneswar. To some extent, the comparatively higher density development adopted in Bokaro slightly reduces the effects of this deficiency but if the Bokaro urban area as such is taken transport continues to be a major problem. 3.6.4: The highly disparate nature of the townscape and the location and nature of functioning of its principal work centres also create peculiar difficulties in transportation. Peakload characteristics are pronounced. A traffic survey carried out by the Durgapur State Transport Corporation in : 90 : February 1977 revealed that of the 7000 odd passengers carried by its buses in a day within Durgapur, 2400 were carried between 8 and 11 A.M. and another 2000 between 4 and 7 P.M. Similar peakload features have been observed by the Bihar State Road Transport Corporation in Jamshedpur and Bokaro. The fleet needed to carry the peakload is not utilised at other times. Because of the sprawl in the city dead mileage i.e. mileage without load also increases. As a result, transport operators, including state undertakings find it very difficult to sustain operations in the city and prefer the more economical long distances routes private operators allotted routes in Durgapur withdrew after all. The D.S.T.C. deploys about 30 buses within Durgapur compared to 46 on long distance routes to Calcutta, Ranchi or Jamshedpur. The Bihar State R.T.C. apart from plying 5 buses carrying 1400 passengers on the Bokaro plant service, has leased out its route rights to 10 minibuses there carrying 3200 in a day. In Jamshedpur the 160 odd mini buses are the principal means of transport used by about 108,000 people daily 3.7. Aesthetics and Environment: 3.7.1: To the world outside, the symbol of India's New Towns is Chandigarh. Whatever be the controversy on this score, none can deny Chandigarh's distinct architectural style. Over the years, its valley of leisure has also taken a shape - with its rose garden, the museum and the capital plaza. A whole generation of Indian planners and architects went through the Chandigarh school. Many of them had a role in India's other New Towns. Yet, there is little to commend Rourkela or Durgapur, Bhilai or Bokaro for aesthetic strength

: 91 : in form or design. Even Bhubaneswar has been able to overcome, in some measure, the limitations of the PWD. Public buildings have been generally few in the New Towns, but even these few cannot claim any artistic or architectural merit. As for housing, despite the very large number of type designs evolved these have been generally monotonous and, in many cases, ugly. The design has also precluded possibilities of the dweller embellishing the structure through his own creativity. 3.7.2: The manner in which open space has been provided is another point. While the scale has been very liberal the organization has been rather poor. A lot of open space has been left between rows of housing in Rourkela, Bhilai and Durgapur. While families have tried to raise small fences around their individual premises the spaces adjoining the streets have become 'no man's' land, unattended and usually covered by scrubgrowth. Again, though a number of parks and playgrounds have been set up the spaces have not been very well-defined or they have become too ornate. Usually these parks are not frequented and used as much as small well-defined spaces close to residences where children can play within sight and earshot of their elders. 3.7.3: The concern for the environment and awareness of ecological issues have also not been very high in the planning of New Towns. In the plan for steel towns the hazard most clearly understood appears to be smoke from the plant. Wind directions were carefully studied in citing the townships to avoid the smoke nuisance. A tree-cover was also developed, as in Durgapur, as an additional precaution though the natural forests all- around were destroyed systematically through private vandalism and public apathy. : 92 : The problem posed by effluents from factories appear to have been understood, but only to the extent of safeguarding the township or the factory's own interest. For instance, in Durgapur a channel for receiving the effluents from the steel plant and other neighbouring factories was carefully diverted to prevent flow into the Durgapur barrage pond but was allowed to proceed down-stream of the barrage where it slowly destroyed aquatic life. The land form in the existing physical characteristics were not taken much note of while preparing the township layout. Felling of trees and bulldozing of the ground, as was done in the case of Durgapur, was a common approach. Save an exception or two, in a small part, these towns wear a drab look. 3.8. Summary: The conclusions and possible approaches discussed in this chapter may be summarised as follows: 3.8.1: No town can be truly self-contained. The single or dominant industry based company town is an anachronism. The exclusiveness inherent in such an approach is a hangover from the colonial past. The economic and social diversification that takes place in a New Town is a part of its growth and its impact rules out any single industry based approach to town building and maintenance. 3.8.2: The norms and standards should be closely related to and evolved out of the living habits and actual requirements of the people and above all, their affordability. Subsidies and high capital costs only chase each other in a vicious cycle. As another effect, heavily subsidised services : 93 : increase the disparity between groups of citizens in the same city, and also render company based towns into enclaves, sustained artificially at the expense of the larger society. The technology and the level of services adopted should be appropriate and reflect an adequate awareness not only the capital but also the operating costs. 3.8.3: Land and landuse policies are tools and not ends in themselves. Given the past and current experience it will never be possible for any industry to provide housing to all its employees. Nor is it desirable to mix up residence and employment to that degree. Policies for land disposal and shelter should actively favour and encourage private housing. Industry need not and should not be the sole landlord in the town. A mixture of employers or employee built rental housing, and ownership housing with an accompanying programme to offer developed plots appear quite feasible. In towns like Bokaro and Bhilai, where the steel plants are expanding there are distinct opportunities for achieving this, now rather than later. 3.8.4: Given the current and possibly the future patterns of income distribution, the spread of poverty and the characteristics of migration, marginal settlements are inevitable in the New Town. But these need not be unsightly or insanitary slums. If the kind of urban life that we seek is realistic, 'pucca' need not be inherently superior to the 'kutcha' or 'semi- pucca'. It is in this context that the dynamics of existing villages in the ambit of a New Town should be understood. In most New Towns such villages have undergone extensive economic and social changes. Some : 94 : basic statistical material on these villages, as derived from the Census are given in the Appendix in respect of some of the towns. Equity demands that attention be given to the impacted village. Besides, in the New Town more than anywhere else, there is a real opportunity to devise and apply intermediate technologies in integrating the marginal settlements to the main cityscape. 3.8.5. Space for recreation has to be devised in the functional sense. The location of the space, its accessibility and its safe use by children are far more important than the town planners' stipulation of a given percentage of open space as a landuse. Ornamental gardens bound by carefully pruned hedges and fences designed to prevent entry are a waste of funds and an affront to nature. Space is for people and it is their presence that makes the space alive. The Indira Park in Rourkela and Maitri Bag in Bhilai are latter day additions, not included in the townplan: yet these are the places that draw the people, not the "MAJOR PARK" in Durgapur steel town, still sporting the label from the townplanners textbook. 3.8.6: Forms for shopping space and the pricing for such space should be realistic. Native styles of retail trade which permit variety in merchandise and enable the spread of self-employment should be encouraged. Where city centres are planned, their construction should not be delayed. They should come up early enough. Such city centres should not be confined to any one activity but integrate retail trade with some wholesale support, professional offices, other commercial uses, government offices, business offices, recreation facilities, etc. Excepting offices that are

: 95 : required to be located strictly within factories, others should be located in the City Centre. 3.8.7: Transport is not a matter of just circulation space. Modes and costs of transport are important. Pedestrian and Bicycle scales are more appropriate in planning transportation in the New Town. 3.8.8: Aesthetics or Imageability are a vital issue in New Town planning. Nor are environment and ecology, issues to be byepassed. Any special concern here does not call for high investments. On the contrary natural features, such as, treecover, water fronts, ground undulations etc., can be used to the best advantage. The layout of a small private sector company town built by A.V.B. in Durgapur illustrates this point. CHAPTER - IV : SOCIAL AND COMMUNITY ISSUES 4.1. The Welfare Approach: 4.1.1: The concept of 'model employers' and welfare approach has been more pronounced in this regard and has prompted a wide range of facilities. In all the industrial townships the managements provide a variety of services, such as, subsidised transport, medical care, education, recreation, cultural facilities, etc., apart from the usual range of statutory welfare activities in the plant. Here at least there is not much distinction between public and private sector managements. The welfare and model employer approaches were in fact evolved in Jamshedpur where the range of services, even today, are much wider. But the cost of providing these services have been quite high. During 1974-75, the expenditure incurred on these welfare services amounted to nearly Rs. 6 crores for Durgapur Steel Project, Rs. 4 crores in Bhilai, Rs. 2 crores in Rourkela and Bokaro and about Rs. 2.5 crores in Jamshedpur. Since the income derived from the delivery of these services is very little (school fees, hospital fees, etc.) the expenditure is mainly a subsidy. The norms and standards in the provision of services have also been usually ad-hoc and bear very little relation to those prevailing in other urban areas or in the country as a whole. Such differences are particularly sharp in the case of education and health services. The BOPE have examined these norms and standards and have suggested revisions from time to time. But even the revised standards don't bear any : 97 : relation to affordability or standards prevailing in the State. There have, also been notable disparities within the different townships. 4.1.2: The welfare activities comprise a wide range, as mentioned earlier. An idea of the quantum of expenditure in each item may be had from the following table, giving the 1974-75 figures: Total expenditure on Social Amenities (Welfare, Community and Development Services and Facilities) Items Bhilai Rourkela Durgapur Bokaro Jamshedpur B.S.P. R.S.P. DSP & BSP TISCO ASP 1. Education 117.05 49.57 116.40 81.28 67.00 2. Medical 224.88 143.82 185.50 69.29 167.00 (hospitals) 3. Public Health - _ - 35.15 - 4. Maternity & - - - - 3.00 Child Welfare 5. Family - - - - 4.00 Planning 6. Social & 15.12 3.90 4.24 - - Cultural Activities 7. Transport 25.93 - 159.04 - - 8. Dairy 13.95 - - - - 9. Canteen - - 58.42 - - 10. Welfare - - 52.64 - - Expenses 11. Community - - - - 14.00 Development 12. Horticulture - - - 10.99 -

Actual Expenditure TOTAL : 396.93* 197.29* 576.24* 196.71** 255.00*** (excluding * Source: HSL Annual Reports 1974-75 Depreciation ** Source: SAIL - 3rd Annual Report 1974-75 and *** Source: Services Dept. TISCO-JSR interest) : 98 : 4.1.3: The expenditure in this regard has been rising steadily. They are also accounting for an increasing share of the total wage bill in some cases. The position is given in the following table. Total Income & Expenditure Account on Welfare Services (Figure in lakhs of Rs.) Town/Item 1968-69 1971-72 1973-74 1974-75 1. Rourkela Expenditure 108.10 144.43 171.83 204.71 Income 8.61 9.81 12.65 14.40 Deficit 99.49 134.62 159.18 190.31 Total Wage - 2070.73 2664.09 2900.00 Bill (approx.) Expenditure on Welfare as % of Wage Bill - 6.5% 5.96% 6.55% 2. Bhilai Expenditure 128.40 145.27 321.80 416.30 Income 19.11 28.98 32.39 39.07 Deficit 109.29 116.29 289.41 377.23 Total Wage - 2949.57 3899.77 5007.90 Bill Expenditure on Welfare as % of Wage Bill - 7.3% 7.4% 8.3% 3. Durgapur Expenditure 180.82 287.99 416.30 591.77 Income 18.99 20.89 24.86 45.86 Deficit 161.83 267.10 391.44 545.91 Total Wage - 2390.23 3030.44 3874.48 Bill Expenditure on Welfare as % of Wage Bill - 11.2% 13.7% 14% It may be noted the 1974-75 expenditure figures given in the earlier para are less, as they do not include depreciation and interest charges. Figures for Durgapur cover both the main steel plant and the Alloy Steel Plant. HSL's Annual Reports are the source for this table. : 99 : 4.1.4: Given the importance of the steel industry and the strength of its trade unions enjoy, it may be asked whether the welfare expenditure therein, is a relevant index. In the towns under our study, excepting Bhubaneswar, the steel industry practically sets the tone for investment and recurring expenditure in the social services. In Jamshedpur and Durgapur, where a number of other industries have also come, in medical, educational and other amenities, the services rendered are judged by the standards followed for the steel plant workers. Obviously, other industries are rarely in a position to maintain parity. This, in itself, creates a large distortion in the level of services available to citizens in the same town. The situation is rendered worse in the case of those who are not employees of any major industry and who have to rely on what amenities are provided, if at all, by the State Government or the local municipal authority. An analysis made by the Ministry of Labour based on 1966 data indicates a very high per worker expenditure on these services, compared to a few rupees only in the case of state outlay for these items. The table below reveals the position. Expenditure incurred by steel plants on 'Non-Statutory Welfare Amenities' PER WORKER PER YEAR in 1966 - in Rs. (in Rs. only) Plant Total Em- Housing Medical Education Transport Recreation Total ployment 1. TISCO-JSR 37,988 181.80 160.56 61.32 - 29.64 433.32 2. Bhilai 51,739 261.12 134.04 55.32 32.64 4.44 487.56 Steel 3. DSP Steel 27,517 300.00 113.64 31.56 290.52 6.24 741.96 4. Rourkela 31,525 345.24 128.88 27.72 114.60 98.04 714.48 Steel Source: Report of the Committee on Labour Welfare - 1969, Govt. of India, Ministry of Labour, Employment and Rehabilitation. 4.2. The Management Burdens: In the administration of such a wide range of services the managements have had to set up an elaborate machinery. The set up is usually divided between the factory and the township side. Services, such as, transport, subsidised canteen, amenities for sports, etc., would be looked after from the plant side whereas services, such as, health and education are dealt with from the township side. The managements have had to assemble quite a number of senior officers for looking after these services. Jamshedpur, for instance, has a separate Director for Industrial Relations distinct from personnel management. There is also a Director of Community Services in addition. A Director of Town Services is looking after health, education : 100 : and township matters. Bhilai, Durgapur, Rourkela and Bokaro each have a Town Administrator with supporting staff. Statutory Welfare activities are looked after by the Personnel Department. In addition they also maintain fairly large units for administering educational facilities. Each have a full-time education officer supported by a number of deputies and assistants. The Durgapur Steel Plant management for instance has to deal with 865 teachers and more than 22,000 children. According to a 1970 assessment, the following is the break up of manpower in the 3 steel plants between works, general administration and township which include administration of the welfare measures. Table Town Man-power in works in general in administration township Rourkela 20,837 3,814 3,300 (15% ) Bhilai 25,453 2,833 4,054 (16% ) Durgapur 20,045 3,084 4,048 (20% ) 4.3. Satisfaction gained: Inspite of such a wide range of welfare services and high expenditure incurred satisfaction does not seem assured. Several difficulties have been noted. The services provided by the managements are generally taken for granted. Frequently in wage negotiations the services are treated as dues to the employees on par with wages. Sometimes the welfare activities themselves become an issue. The high cost of the services is mainly due to the wage component. In a steel project no distinction has been made between persons employed in township

: 101 : services and persons engaged in the factory. The pay scales for the teachers, for instance, undergo the same revision as plant employees. To illustrate, in the case of Durgapur, out of Rs. 1.25 crores spent by the management on education, Rs. 1 crore accounts for salaries to staff. Arrangements for participation of beneficiaries in the administration of the services have been generally inadequate. The desire for such participation also does not appear to be high. The level of services often become an issue for friction between the employers and the employees. 4.3.1: Education: The field of education may be taken first to identify some of the problems felt. New Town populations usually have a higher literacy rate compared to the national average of about 30%. If compared to the respective States, they are even more pronounced: e.g. 57% in Durgapur, as against West Bengal's 33% ; 53% in Rourkela and 62% in Bhubaneswar compared to Orissa's 26% ; 52% in Bhilai as compared to 22% in M.P. and 60% in Jamshedpur, and 37% in Bokaro as against 20% in Bihar. The demand for educational facilities in New Towns is, therefore, greater education is usually regarded as a state subject and the standards and levels of education are regulated mainly according to state norms. Nevertheless, project managements have had to get into these fields with very little experience. In most townships education has to be offered in at least 3 mediums , the State language and English. With population increase in the New Towns the demand for educational facilities has also gone up. Within a few years the New Town managements have had to set up elaborate : 102 : facilities for education. The volume of students at the primary and secondary school levels alone is quite high. It is nearly 44,000 in Bhilai, 24,000 in Rourkela, 22,000 in Durgapur and 18,000 in Bokaro. To cater to such a large number of children, the Project managements have to run lots of schools. Bhilai has 55 schools, Rourkela 30, Durgapur 31 and Bokaro 22. Many of these schools run in two shifts. 4.3.2: As the number of schools, student population and expenditure increase a kind of hiatus between the school facilities available in a company township and those offered by the State Government is created which widens steadily. For instance, the expenditure on education per child varies from Rs. 205 to Rs. 452 in these townships compared to the national average of Rs. 40/- per year, or Rs. 69/- for Madhya Pradesh, Rs. 34/- for Bihar, Rs. 49/- for Orissa and Rs. 67/- for West Bengal. The volume of expenditure in some of the townships as compared to the respective State Governments outlay are given in the table below: Table: Expenditure on Education in the Townships and under the State Governments. (Rs. in lakhs) Town Expenditure Expenditure State Total budget in 1968-69 in 1974-75 on primary & (gross) secondary schools Rourkela 28.96 50.32 Orissa 49.08 Bhilai 31.59 177.05 M.P. 93.17 Durgapur 35.54 116.40 W.B. 109.82 Bokaro - 81.35 Bihar 103.76 Jamshedpur - 67.00 Bihar 103.76 Bhubaneswar 3.60 - Orissa - Notified Area Committee Source: Ministry of Education: "Education in States" : 103 : The teacher-student ratio, however, does not vary significantly among the different townships or the ratios obtaining in the State as a whole. The following figures will illustrate: Town Teacher-student Teacher-student ratio in the ratio in town state Rourkela 1:32 Orissa 1:34 Bhilai 1:29 M.P. 1:39 Durgapur 1:27 W.B. 1:36 Prima facie, therefore, it is not that the townships provide more teachers. The main reason appears to be the considerable disparity in the emoluments. A primary school teacher in a steel township, for instance, receives twice as much as his counterpart in the State Government. He is also entitled to various other welfare facilities which increase the outlay on this account. 4.3.3: Though the concerned State Governments have a constitutional responsibility in moving towards free and compulsory primary education they have been very reluctant in assuming these responsibilities for the New Towns. The main reason for this is the high cost involved in running them. The community's own responsibility for extending the school facilities has also been limited, and is usually confined to running of nursery and pre-primary schools as in Durgapur, Bhubaneswar and Rourkela. In the case of Jamshedpur, however, a conscious policy of encouraging private organizations to build educational facilities was adopted. While the TISCO management itself runs about 21 schools it aids about 290 schools. The total expenditure on account of education incurred by TISCO is less than Rs. 80 lakhs, but the student-coverage

: 104 : is far more than other towns. While its directly-run schools accommodated 24,000 children, the aided schools serve nearly 96,000 children. Recently, in Durgapur, when the Steel Projects management declined to upgrade the schools for 10+2 facilities, voluntary committees were formed to set up +2 facilities and run them. The project authorities limited their assistance to provision of space. These examples indicate community effort and resource mobilisation are indeed possible in organizing educational facilities. 4.4. Health: The location of the townships away from existing large towns appears to have prompted large investment in medical facilities. The Bhore Committee had prescribed a ratio of 2-Beds per thousand for the country. The Committee on Plan Projects had also endorsed this norm, but this was much after the project managements had made the investments and built the hospitals. The desire to provide a wide range of medical facilities also appears to have prompted large hospital sizes. Compared to the bed population ratios in the respective States the new towns have quite a high ratio. Rourkela has provided 592 beds, Bhilai 571, Durgapur 480 and Bokaro 272. In Jamshedpur TISCO's hospitals provide 800 beds - whole TELCO has another 240. In Bhubaneswar for a population of 107,000, the hospital has 185 beds. On an average 3 to 5 beds per thousand population have been provided in Durgapur, Bhilai, Rourkela and Bokaro compared to the existing ratio of 0.9 beds in West Bengal, 0.38 in Madhya Pradesh and Orissa; and 0.26 in Bihar. In the case of Jamshedpur the ratio is about 2.5. : 105 : 4.4.2: The expenditure on hospital facilities is also quite high. In the case of Bhilai it is about 2.6 crores per year with Durgapur following closely with an expenditure of Rs. 1.9 crores. Rourkela spends Rs. 150 lakhs and TISCO Rs. 167 lakhs (74-75 figures). Inspite of the high expenditure and the large range of medical facilities provided, community satisfaction is not ranked very high. An N.B.O. survey on family structure and community facilities revealed dissatisfaction with the medical facilities in many of the townships citing ineffectiveness of medical treatment, heavy rush and discrimination as reasons. This is an irony indeed as a major reason cited by the project managements in the setting up separate hospitals was to ensure quality of service. An explanation for the rush in hospitals appears to be the fact that apart from the industry's employees a very large number of dependants use the hospital facilities. Usually the project hospital is the only major health facility in the region and the project authorities are always under pressure to let the people of the region avail these facilities. Where State Governments eventually set up public hospitals, the scope and quality of services provided, appear to be much inferior as evidenced in the case of Jamshedpur or Durgapur. Perhaps if the State Governments and the project authorities had pooled their resources some parity in service could have been achieved and resources conserved. Unfortunately, that has not been the case. Under the Employees' State Insurance scheme, for instance, a special employers' contribution of ¾% wage bill is levied but no services have been provided. In a : 106 : place like Durgapur where a number of industries pay such a contribution, the accumulations come to a high figure. A large scale modern hospital could have been easily set up as a common facility for all of Durgapur. Unfortunately the ESI and the State Health Department did not find it possible to launch a common hospital. Eventually, the State Government in 1973-74 set up a modest 130 bed hospital whose range and level of facilities are no match to the steel hospital. The ESI decided to hold on to a separate, but adjoining plot for its own 400 bed hospital, which is yet to make a start. An opportunity to optimise on investments has thus been lost. 4.5: It may be appropriate at this stage to recount briefly the assumptions that have prompted these large investments in welfare services on the part of industries. One is that a healthy and contented workforce is essential for the industry. Following from this is another, that the kind of investments made and the manner in which these welfare services have been organised, do bring about such health and contentment. In the absence of empirical studies it is difficult to establish the validity of these assumptions. Such an exercise is not within the purview of this study either, for, we are more concerned about the impact of these investments on the city as such and what distortions or imbalances are observed in the spread of the services. But an additional premise, sometimes advanced by the industries are, that these welfare services help achieve social change and cohesion in the city. : 107 : The assistance rendered to social and cultural organizations as a welfare measure is cited as an illustration. We may now consider the role of these organizations in the New Towns community. 4.6: For the purposes of the present study a survey of such social organizations in Jamshedpur and Durgapur was conducted. The number of organizations listed for the survey was 200 in Jamshedpur and 150 in Durgapur. A questionnaire eliciting information about the Associations' objectives, activities, membership, finance, administration, concern with issues of local/community interest, etc., was devised. A copy is furnished in the appendix. Of the 180 organizations canvassed in Jamshedpur 140 responded. In the case of Durgapur out of 120 organizations contacted a little over half, i.e. 68 responded. The experience encountered in obtaining the response was itself significant. In the case of Jamshedpur, most of the organizations contacted had some specified persons who were knowledgeable about the organization and could respond to the questionnaire. In the case of Durgapur, the initial efforts to obtain answers were not successful and later the assistance of the project managements had to be sought. Many organizations listed with the Registrar of Societies were found to be defunct. The quality of the response has also varied considerably between the two cities. From a preliminary analysis of the responses some tentative reflections are presented here. 4.6.1: The voluntary organizations were divided into 12 types and the list of organizations were categorised according to these types from preliminary information available. : 108 : The responses indicated that there was a noticeable difference in the preliminary type identification made by us and the type identification which the organizations themselves have made according to their own perception. In most cases, responses indicated multiple activities. Sports and games appeared to be the most popular followed by Music, Drama and Fine Arts. Community Welfare was also identified as an important activity for several clubs in Jamshedpur. The position is indicated in the table below: Types of Association according to organizations responses No. Jamshedpur Durgapur 1. Merchants, Hawkers, Traders 1 1 2. Music, Drama & Fine Arts 58 28 3. Community Welfare 59 23 4. Caste/Region/Language-based 21 4 5. Professional 3 3 6. Officers Associations 2 2 7. Sports & Games Associations 69 33 8. Youth Clubs 21 15 9. Religious institutions/Ashrams 11 2 10 Housing ownership, Flats Assns. 4 - . 11 Recreation Clubs 26 24 . Others: 1. Educational 11 7 2. For children - 6 3. Literary Societies 4 1 4. Hobbies 2 - Multiple Multiple response response recd. from recd. from all 131 66 out of 68. : 109 : It is to be noted that in Jamshedpur 21 associations have acknowledged caste/region/language based activities whereas in the case of Durgapur only 4 associations acknowledged such typification. 4.6.2. As for membership both in Durgapur and Jamshedpur the average strength is about 100. In both cities Libraries claimed much larger membership averaging around 800. The Dinshaw Memorial Library in Jamshedpur has 2600 members. Clubs which are the only one of its kind in a particular area also have large membership, such as, TELCO Club in Jamshedpur with about 900 members and the MAMC Club in Durgapur with over 2100 members. Music, Drama and Fine Arts associations also seem to have large membership. The Rabindra Parishad in Durgapur has 650 members. So has the Tagore Society in Jamshedpur. The table below gives the analysis. TABLE Membership Strength of Associations Questio- Response Below 100 101-250 251-500 501-1000 1001-2000 2001+ nnaires received

JSR 131 125 49 36 25 9 4 2 DGP 68 65 25 15 14 5 1 5 As for membership profile, the table below indicates the position. It will be seen men in the age group 21-41 dominate. About a third of the organizations in Jamshedpur reported that women and children were also members of their clubs and in these cases their membership also accounted for about 30%. In the case of Durgapur only 10% of the organizations reported

: 110 : women and children as members. Others did not respond. Age Break-up of Membership in Associations

Questionnaires Responses 15-20 21-30 31-40 41-50 50+ received arrived JSR 131 98 68 92 93 73 3 DGP 68 22 17 20 20 18 - 4.6.3: An idea of the membership profile can also be obtained from the qualifications prescribed for membership in the different organizations. It is noticeable that while in Jamshedpur, residence in a locality is regarded as a qualification for joining most associations, in Durgapur employment in a particular organization is the more important qualification. This indicates a more settled community in Jamshedpur where ties to employment are not ranked high for social purposes. The identification of caste/religion and native place as qualifications for some associations in Jamshedpur is significant. Qualifications for Membership JSR DGP 1. Total number of questionnaires 131 68 received 2. Total number of responses to this 75 40 question Qualification used 1. Residence 29 10 2. Education level - - 3. Work Designation level 3 4 4. Membership in other clubs 3 - 5. Caste/Religion, etc. 9 2 6. Native Place 14 4 7. Employment in particular 15 17 organization 8. Others - 3 9. No restrictions 5 11

: 111 : 4.6.4: As regards income, responses received were inadequate. In Durgapur, the indication is, members of most clubs have an income range of about Rs. 500 to Rs. 1000/-. In Jamshedpur the responses received from about 30 associations indicates that about 42% of the members were in the income range of Rs. 500/- or less, about 30% in the range of Rs. 501/- to Rs. 1000/- and the rest above Rs. 1000/-. In both Jamshedpur and Durgapur the associations denied using income as a qualification, though workplace designation is considered. Prima facie, it appears the membership profile coincides largely with economic groupings. 4.6.5: As regards language used, the position is as follows: Hindi Bengali English Number of Associations- in Jamshedpur using 81 62 28 in Durgapur using 27 42 18 Oriya, Telugu, Tamil and other languages were used in the region based associations. In most cases for official work of the Association Hindi, Bengali or English are preferred. 4.6.6: Since the clubs are set up and run, for the most part, by men, we tried to ascertain whether any special activities were arranged for women and children. The table indicates the responses received. Activities for Ladies JSR DGP Questionnaires received 131 68 Resp to this question 40 19 Types of activities offered by Assns. 1. Handicrafts .. 17 1 2. Library .. 16 12 3. Sewing school .. 20 3 4. Family Planning .. 4 1 5. Cooking .. 6 3 6. Literary and cultural programmes - 20 7 music, dance, etc. 7. Adult education programmes 3 — 8. Social welfare programmes 2 2 9. Sports for ladies — 1 : 112 : Among the various activities offered for ladies, it can be seen that literary and cultural programmes are very popular in JSR. Many associations run classes for music, dance, etc., and employ teachers for this. They also organize dramas, etc., and this draws a large number of women to participate. For sewing and handicraft classes the Associations usually provide teachers, funds and also the necessary equipments. Instructors and teachers are usually paid. Funds are provided by the Association and some nominal amount is collected from the participants in the form of membership fees. In Durgapur also the position is the same. Here the women seem to be avid readers and so go to the library regularly. Besides, literary and cultural programmes and activities are also popular. There are 5 organizations in Jamshedpur whose membership is restricted to women only and 2 similar organizations in Durgapur, with an average participation of about 65 members. 4.6.7: Activities organised by associations for children are mainly educational. Usually these are in the form of nursery or pre-primary schools, primary and other schools, children's libraries, etc. In Jamshedpur voluntary organizations conduct 9 nursery schools, 29 primary schools and 26 children's libraries. In Durgapur voluntary associations run 13 nursery schools known as Mukul schools, 6 primary schools and 7 children's libraries. In addition 10 associations in Durgapur and 8 in Jamshedpur also reported they organize special cultural and sports activities for children. : 113 : 4.6.8: Another special activity organised by some of the associations pertains to health. Responding to the questions in this regard 12 associations in Jamshedpur and 4 in Durgapur reported they organized several types of medical and health services as indicated in table below. Types of service: Associations concerned in Jamshedpur Durgapur Clinic 7 - Health Counselling and 17 2 education Shops for medicines 2 _ Free supply of 4 3 medicines

Usually honorary doctors and paid auxiliary staff were engaged in organizing these services. 4.6.9: Inter-associational relationships are an important index in understanding the role of voluntary organizations in a community and to what extent they have evolved into a sub-society. Of course, this is a matter of time while asked about the date of establishment, the associations in the two cities responded as follows:

Date of Establishment of Associations (number established) Year wise 1920- '31- '41- '51- '56- '61- '66- '71- '75 '76 30 '40 '50 '55 '60 '65 '70 '74 Number 15 15 21 16 15 19 21 7 2 - established in Jamshedpur Number - - - - 14 19 16 12 2 2 established in Durgapur

: 114 : It will be noted that while in Jamshedpur, new associations have been added in every period, in the case of Durgapur, the peak was 61-65 where the industries were being established. As regards inter-associational relationships, questions were asked about the types of applications, nature of relationship, joint activities carried out, etc. It is seen, such relationship is of two kinds. One is a system of formal affiliation that an association has to an organization which has a larger jurisdiction or has greater importance. For example, sports clubs for specific games like football, hockey, etc., at a neighbourhood level are usually affiliated to a city level organization which in turn is affiliated to a state level organizations and so on. Music or Fine Arts clubs seek similar affiliation to city or state level organizations or some larger academic centres, like Prayag Samiti, Allahabad or Rabindra Bharati University, Calcutta, etc. The picture of affiliation as seen from the responses, is given below: Number of Assn. With affiliation at State National level Jamshedpur 77 8 25 16 Durgapur 26 11 18 10

Affiliations at the city level are more numerous. It is also seen sports associations are usually the ones, having such affiliation. For instance at Durgapur 23 out of 24 such associations are affiliated to the Sub-divisional Sports Association. Some of the Associations were also : 115 : observed to have more than one affiliation. It appears that affiliation is an important means through which an association legitimises and strengthens its existence and involvement in a particular field. 4.6.10: The other kind of inter-associational relationship considered was at the horizontal level, i.e., between similar associations, as between a couple of sports clubs or recreation clubs in a given locality. Though 64 out of 131 responses in Jamshedpur and 38 out of 68 in Durgapur dealt with this aspect the replies received were unclear. The nature of relationship was expressed in vague terms like friendly, fraternal, social, etc. Sports and cultural exchanges seemed an important item. Some associations reported joint activities as well. The following table gives the picture. It may be noted there are multiple responses. Relationship with other Clubs/Associations Jamshedpur Durgapur Associations reporting such a 64/131 38/68 relationship/out of total responses received Nature of relationship 1. Friendly 6 10 2. Fraternal - 2 3. Cultural exchanges 18 - 4. Sports exchanges, matches, etc. 16 5 5. Religious exchanges 2 - 6. Jt. functions/exchanges 10 3 7. Common/Reciprocal members 13 7 8. Institutional 1 - 9. Formal 1 - 10. Social and political 1 - 11. Guidance/advice/cooperation 2 3 12. Aid/help 2 1 : 116 : The manner in which associations carried out some joint activities was also gone into joint use of premises and sports competitions appear to be the usual platform for such joint action. The table below explains the position. Types of Joint Activities Jamshedpur Durgapur Response 42 13 1. Films .. 4 5 2. Fetes .. 2 1 3. Melas .. 5 1 4. Towns .. 1 6 5. Using Club premises .. 15 2 6. Aid .. 7 2 7. Library .. 3 2 8. Sports/matches/competitions 17 1 9. Literary/cultural programmes 7 1 10. Social work 2 - 11. Training camps - 1 12. Help with equipments, etc. 1 -

On the whole, the evidence is that associations operate on their own and inter-associational ties are tenuous.

4.6.11: Operating with low budgets and membership fees that rarely exceed 2 to 3 rupees a month, most organizations, both in Jamshedpur and Durgapur reported receiving some aid or assistance from different companies. In Jamshedpur 55 out of 131 responses confirmed such assistance. TISCO's assistance to voluntary organizations in Jamshedpur are processed through CALO, the 'Committee for Assessment of Local Organizations' to which nearly : 117 : 80 organizations in the city are affiliated. Working through representatives responsible for a continuous assessment of the work of the organizations in a given zone of Jamshedpur, and staffed by trained officers from TISCO, CALO has been the principal channel for routing TISCO assistance to voluntary organizations in the city, particularly those engaged in welfare work. In Durgapur, the Steel Plant administers its assistance through its Personnel Department. Other companies in the area also provide grants-in-aid to clubs and other voluntary organizations serving in the area. In Bhilai, Rourkela and Bokaro, personnel departments handle similar schemes of assistance. As regards quantum this ranges from Rs. 500 upwards. The responses received in this regard indicate the following pattern: Amount and Frequency of Assistance Received Response Amount of Assistance Below Rs. 500/- Rs. 1001/- Rs. 500/- Rs. 1000/- 1. Jamshedpur 55 25 10 20 2. Durgapur 24 12 2 10

HSL spends about Rs. 1.7 crores annually in social and cultural activities in its 3 townships mainly in support of their organizations. TISCO provides, through CALO, about Rs. 10 to 12,000 annually to nearly a hundred organizations. 4.6.12: Despite the regular assistance received, most associations when asked to identify the more serious problems felt in running the organization cited lack of funds as the most severe. This in itself is an indication of the dependency of the associations in the New Town on a particular company. Other problems cited by the associations are indicated in the table below. : 118 : Problems faced in the Running of the Association Jamshedpur Durgapur Total number of questionnaires 131 68 received Response to question 128 62 Problems faced 1. Finance 120 53 2. Lack of space/playground 42 42 3. Lack of active support - 22 9 members 4. Lack of club building 25 20 5. Shortage of staff 6 18 6. Lack of coaches/training 6 - equipment 7. Lack of Govt./Company help 5 - 8. Lack of leadership 5 - 9. Lack of interest by younger 3 - generation 10. No. of problems 4 4.6.13: Since lack of space has been identified as the second most serious problem we may examine the position. In the case of Jamshedpur the Management had adopted a policy of giving religious, cultural, educational and other voluntary organizations land at the concessional terms of Re. 1 to Rs. 2 per acre for leaseholds of 20/30 years. About 63 organizations have received land from TISCO out of which 25 are educational institutions. In the case of Durgapur, HSL's policy has varied from time to time. The terms obtaining now cannot be regarded as concessional. : 119 : In August 1959, the HSL Board, after studying the pattern in Jamshedpur, had recommended allotment of land to educational, charitable and social service institutions at the nominal rate of Re. 1 per acre per year. The Government of India, however, turned down HSL's proposal and suggested instead that the terms followed by the Works and Housing Ministry for lands in Delhi should be adopted i.e., Rs. 36000/- per acre for non-profit making institutions and Rs. 5000/- per acre for educational institutions provided no loss was incurred in such allotment. The HSL Board wanted its different projects to re-examine the issue. In March 1963, HSL agreed to a Government of India proposal that charitable and educational institutions should pay 8% of the cost of developed land which was taken at Rs. 50,000 per acre. Other organizations were to pay a premium in addition. In July 1966 the HSL Board revised the terms for educational institutions at Rs. 2500/- per acre plus Rs. 300/- annual rent for school buildings, Rs. 5000/- per acre and Rs. 1200/- annual rent for hostels and staff quarters and a nominal rent of Re. 1 per acre for playgrounds only. In August 1966 HSL also sought for liberalisation of terms for other institutions. Nine years later HSL decided that for non-profit making institutions land should be allotted at an annual rent at 8% of the value, to be taken at a flat rate of Rs. 50,000/- per acre for all its three towns. As between Jamshedpur and Durgapur, it appears land or lack of space is a more severe constraint in the latter. In Jamshedpur only 42 : 120 : out of the 128 responses cited this as a problem. Others did not appear to fee facing any difficulty on this account. In fact, many clubs and organizations in Jamshedpur have their own buildings, some equipped with spacious assembly halls or auditoria. In the case of Durgapur, associations have to depend on company managements for space. Even in smaller townships like M.A.M.C. or D.P.L. in Durgapur, a club or an Association does not have its own premise. Most activities are carried out in a community centre whose upkeep is the managements responsibility while day to day activities are looked after by a committee. Some of the associations are allotted residential quarters in the township where the association has its meetings and conducts its regular work. The position is much the same in Rourkela or Bokaro. In Bhilai, the steel plant runs 8 Ispat clubs which are like community centres. There are about 60 voluntary organizations functioning in the township which do not receive any financial assistance but in some cases have been allotted land on a nominal charge. 4.6.14: How do the associations perceive their own role and effectiveness in the society ? In the questionnaire the associations were asked to list what they considered to be their achievements for the year. In both Jamshedpur and Durgapur cultural events like a music or a dance show were identified as the highlights by half the respondents, i.e. 34 in Durgapur and 58 in Jamshedpur. The next two items of importance for Durgapur were special events for children and welfare activities, though response was : 121 : limited to 3 in each case. Jamshedpur came up with a more interesting tally that included events like Educational, Seminars, Receptions to well-known people, Welfare, Health Camps, etc. Invited to comment on their effectiveness, associations in both cities ascribed wide ranging effects, such as 'strengthening community life,' 'improving minds and bodies of citizens', fighting moral degradation, helping exploited classes', etc. While the responses from Durgapur (45 out of 68) tended to be in general terms, 125 out of 131 responses received from Jamshedpur claimed significant contribution to specific areas such as Jamshedpur's cultural life, its sports facilities, education, etc. 4.6.15: Any comparative study of voluntary organizations is beset with many difficulties, the more serious one being the uneven quality of responses received. We had limited our choice to Jamshedpur and Durgapur mainly because one is claimed to be a more settled community while the other is of much recent origin. What is the extent to which voluntary organizations play a role in the process of this settling down ? Are there some policies that can help the process or is this just a matter of time ? These were the questions that prompted this comparative study. Given the limitations of time and resource, the conclusions reached should be regarded as tentative. In brief, the following points emerge from this limited study of social organizations. (a) in both cities associations for recreation, such as, sports, music, drama, etc., predominate. In Jamshedpur community welfare associations are a major additional focus, presumably because of TISCO's encouragement to this field. : 122 : (b) in both cities membership is principally from men in the age-group 21 to 41. Special activities for women and children are limited. Their position, at least in this respect is not different between 'old' and 'New Towns'. (c) as in other matters, in the formation of associations as well, employment ties are the major determinant in Durgapur, as it is a prerequisite for joining an association. This is not the case in Jamshedpur where associations are usually function or locality based. In both cities, membership of associations appear to coincide with income groups. (d) factors like employment ties, scattered townships, restricted housing, etc., have impeded further increase of associations in Durgapur. (e) inter-associational relationships have not developed and the existing ties are infrequent and tenuous. (f) associations in both cities operate on low budgets and are dependant on companies. However, in the case of Jamshedpur this dependence is diffused because of the presence of several companies/industries in the city. Many associations receive assistance from more than one source. In the managing committees of the associations there is no dominance of a particular company's presence either. A typical association will have its office bearers drawn not only from those working in TISCO but other industries as well, unlike Durgapur. (g) in both cities space, particularly space owned by the Association appears to be a critical factor. More than any other measure, the liberal terms for provision of land appears to have been the major positive feature in Jamshedpur. (h) Partly because of the dependance on specific companies and lack of strength on their own, the Associations in Durgapur are yet to develop a perception of their role in Durgapur community. Interaction with other organizations in the city like the local authority, district administration, State Government entities etc. is very little. Social life and more important, perception of it are still determined in terms of a company. It is not claimed that in Jamshedpur the situation is completely different: there too the presence of the big brother, TISCO, looms large, but in the pattern of its growth, in the mix of its heterogeneity in jobs, people and residence, that presence seems somewhat less. It is a difference of degree, but an important difference nevertheless. : 123 : (i) the evidence on the integrating role of associations in a New Town community is not clear in either city. An extensive socio-economic study of Jamshedpur was done in 1954-55 under the supervision of Dr. B.R. Misra of the Patna University. Updating of the data with further empirical studies on social integration would be necessary to assess the position.

4.6.16: Whatever the social organizations and institutions devised in the New Town for providing social amenities and community facilities the heterogeneity inherent in a New Town is to be recognised. A major reason for this heterogeneity is migration. This need not be necessarily from far away places. What is significant is the influx of large number of people of a particular age-groups in very short periods. These have a profound influence on the level of existing and demand for future services. While a detailed analysis of migration characteristics is beyond the scope of the present study, a brief account of the migration data available for the six towns under study is given in the next section. : 124 : 4.7: Issues re : Migration: The New Towns are the creation of the migrants. The volume and characteristics of migration have more significant implications for the New Towns. Though the 1971 census data on migration is yet to be published, such information as is available with the Census Authorities has been consulted for the present study. Comparison with 1961 figures is not possible because migration tables are not usually available for towns of less than 100,000 people and in the present case all the New Towns covered under the study, excepting Jamshedpur, had not reached that number in 1961. It is also to be noted that the migration data and the census are compiled on sample estimation and not full enumeration basis. Nevertheless, the data available reveal some interesting features. These are as follows: - the volume of migration into a new town is high and migrants are dominant in the workforce; - the migration is usually of a long term nature; - it is not male dominant as witnessed in large cities earlier; - a significant part of the migration is from urban areas, not rural areas as commonly believed; - in educational levels, origin, or occupation no set pattern can be ascribed to migrants from any particular state. 4.7.1: The volume of migration has been quite high and migrants are the dominant part of a New Town's population. The position is indicated in the table below: Town Total population Total migrants Percentage Bhilai 245,124 169,275 69.05 Rourkela 172,502 122,960 71.28 Durgapur 206,636 128,840 62.35 Bokaro 107,159 67,735 63.20 Bhubaneswar 105,491 70,795 67.10 Jamshedpur 456,146 214,670 47.60 : 125 : It will be seen except in the case of Jamshedpur the local population is not very significant. Since migrants also constitute the bulk of the labour force, the bulk of the jobs in the New Towns are taken by the migrant workers. For instance, in Durgapur migrants account for about 86% of the labour force and 80% of the jobs. In Bhilai, it is 96% and 92% respectively. 4.7.2: Though 1961 figures are not available for comparison the migration rates into the New Towns are significantly higher than the migration rates for the respective states. It may be noted in this regard that West Bengal and Madhya Pradesh had a net immigration rate of +4.66 and +0.02 respectively whereas Bihar and Orissa had net in migration rates of -2.54 and -0.78 respectively. 4.7.3: The migration into the New Towns is generally of a long-term nature. The distribution of 1000 migrants by duration of residence for the various towns is indicated below: Town Duration less 1-9 years 10 years and than 1 year above Rourkela 74 587 308 Bhilai 51 449 389 Durgapur 32 614 291 Bokaro 94 603 92 Jamshedpur 47 310 512 Bhubaneswar 116 584 262 N.B. The total of columns will not be 1000 because unspecified categories as per census are not included. 4.7.4: The migration into the New Towns is not as sex selective or male dominant as witnessed in metropolitan cities earlier. The male-female distribution of 1000 migrants for : 126 : the different towns under the study are as follows : Rourkela - 589:411; Bhilai - 549:451; Durgapur - 571:429; Bokaro - 592-408; Jamshedpur - 566:434 Bhubaneswar - 588:412 This kind of migration has tended to contribute to a balanced sex ratio in the New Towns as a whole. In some of the New Towns the ratio of females as obtaining in 1961 was quite low but by 1971 the picture has altered considerably as will be evident from these figures. Number of females per '000 males. 1961/1971 Rourkela - 537 in '61 to 748 in '71; Bhilai - 594 to 828; Durgapur - 338 to 764; Bokaro - 643 in '71; Jamshedpur - 784 to 796 and Bhubaneswar - 692 to 724. These figures compare quite favourably with the sex ratios obtaining in the urban areas of the respective States such as Bihar (807), Orissa (845), Madhya Pradesh (868) and West Bengal (751). 4.7.5: As for age-groups the category 25 to 49 appears to be the single largest followed by the 0-14 age group. Out of 1000 migrants the 25-49 age-group accounts for 428/517 and the 0-14 age-group accounts for 139/225, in the different towns under study. It will thus be seen that young parents and children dominate the migrant streams into New Towns. This has important implications for educational and other amenities. 4.7.6: Unlike the experience in metropolitan and other cities where migration is mainly from rural sources, a significant portion of migration into New Towns occurs from urban areas. For instance, urban to urban migration is nearly 50% in Durgapur, 40% in Bhubaneswar, 34% in Jamshedpur,

: 127 : and about 33% in Rourkela and Bokaro. The migrant into the New Town cannot, therefore, be stereotyped as rural poor. 4.7.7: In educational levels, migrants present a wide cross-section as will be evident from the following table depicting distribution of 1000 migrants; Town Illiterate Less than School Diploma/Graduate School Final , etc. Final Rourkela 361 432 150 57 Bhilai 302 372 237 89 Durgapur 282 437 217 64 Bokaro 527 310 113 50 Jamshedpur 377 397 166 60 Bhubaneswar 273 445 176 106 It will be seen from the above that only in the case of Bokaro there is a preponderance of illiterate migrants, mainly due to the construction activity still going on in the Bokaro steel project. 4.7.8: It has often been said that the New Towns of India are a miniature of the country itself since people from all parts of the country have moved into them. The pattern of this linguistic heterogeneity, however, cannot be obtained because language tables are not available any more, for levels below the State. Still, an understanding of the position can be had from an analysis of the state-wise distribution of migrants. It is seen, for the towns covered in this study, the principal states involved in the migration from outside the city are, Bihar for Durgapur and Rourkela, West Bengal for Bokaro and Jamshedpur and : 128 : U.P. for Bhilai. The table below contains the details. Statewise distribution of 1000 migrants in different cities/U.A. - 1971 Bokaro Jamshedpur Durgapur Durg- Rourkela Bhubanes UA UA UA Bhilai- UA -war nagar city UA Total Migrants 1000 1000 1000 1000 1000 1000 Resided in 990 939 895 987 982 990 India Andhra Pradesh 13 34 3 99 30 45 Assam 2 2 4 1 2 1 Bihar 656 497 167 57 235 16 Gujarat 4 9 2 9 5 1 Haryana 5 2 - 5 7 - Himachal - - - 1 1 - Pradesh Jammu & 1 1 - 1 - - Kashmir Kerala 14 11 4 53 25 3 Madhya Pradesh 33 32 4 406 30 2 Maharashtra 7 8 4 94 6 2 Mysore 2 2 1 5 3 1 Orissa 59 73 11 45 472 869 Punjab 20 39 13 31 18 5 Rajasthan 5 12 3 12 5 1 Tamilnadu 3 13 4 12 7 2 Tripura 1 - 2 - - - Uttar Pradesh 59 71 38 108 36 5 West Bengal 101 129 632 38 94 39 Delhi 5 3 2 8 5 3 Nepal 6 7 5 2 7 2 Pakistan 4 52 99 8 8 5 Source : Census Migration Table- D.V. of Bihar, Orissa, West Bengal and M.P.- 1971. 4.7.9: The principal component of migration, however, is from within the state itself. In Rourkela migrants within the state of enumeration accounted for 47%, in Bhilai for : 129 : 40%, in Durgapur for 63%, in Bokaro for 65%, in Jamshedpur for 50% and in Bhubaneswar. for 87%. This coupled with the fact, (mentioned in para 4.7.6) that a significant portion of the migrants come from urban areas has important implications for urbanisation and regional growth policies within the State. 4.7.10: No typology or pattern could be adduced to migrants coming from certain states in respect of educational background. The table below indicates the distribution of 1000 migrants as per educational level who have moved into the different New Towns from the States of Bihar, West Bengal, Orissa, U.P. and M.P. It will be seen therefrom that it is not possible to establish any linkage between the selection of the town or the educational level of the migrant. Distribution of 1000 migrants according to educational levels from particular state to different cities/U.A. - 1971. State City/UA Total Illiterate Below SF/HS Above SF* Migrant SF/HS Bokaro UA 1000 569 295 97 39 Jamshedpur UA 1000 427 374 151 48 Durgapur City 1000 409 412 140 39 Bhilai Durg- 1000 229 429 251 91 Bhilainagar UA Rourkela UA 1000 425 414 122 39 Bhubaneswar 1000 233 341 206 220 City (continued) : 128 : U.P. for Bhilai. The table below contains the details. Statewise distribution of 1000 migrants in different cities/U.A. - 1971 Bokaro Jamshed- Durgapur Durg- Rourkela Bhubaneswar UA pur UA UA Bhilainagar UA City UA Total Migrants 1000 1000 1000 1000 1000 1000 Resided in 990 939 895 987 982 990 India Andhra Pradesh 13 34 3 99 30 45 Assam 2 2 4 1 2 1 Bihar 656 497 167 57 235 16 Gujarat 4 9 2 9 5 1 Haryana 5 2 - 5 7 - Himachal - - - 1 1 - Pradesh Jammu & 1 1 - 1 - - Kashmir Kerala 14 11 4 53 25 3 Madhya Pradesh 33 32 4 406 30 2 Maharashtra 7 8 4 94 6 2 Mysore 2 2 1 5 3 1 Orissa 59 73 11 45 472 869 Punjab 20 39 13 31 18 5 Rajasthan 5 12 3 12 5 1 Tamilnadu 3 13 4 12 7 2 Tripura 1 - 2 - - - Uttar Pradesh 59 71 38 108 36 5 West Bengal 101 129 632 38 94 39 Delhi 5 3 2 8 5 3

Nepal 6 7 2 7 2 Pakistan 4 52 99 8 8 5 Source : Census Migration Table- D.V. of Bihar, Orissa, West Bengal and M.P.- 1971. 4.7.9: The principal component of migration, however, is from within the state itself. In Rourkela migrants within the state of enumeration accounted for 47%, in Bhilai for : 129 : 40%, in Durgapur for 63%, in Bokaro for 65%, in Jamshedpur for 50% and in Bhubaneswar for 87%. This coupled with the fact, (mentioned in para 4.7.6) that a significant portion of the migrants come from urban areas has important implications for urbanisation and regional growth policies within the State. 4.7.10: No typology or pattern could be adduced to migrants coming from certain states in respect of educational background. The table below indicates the distribution of 1000 migrants as per educational level who have moved into the different New Towns from the States of Bihar, West Bengal, Orissa, U.P. and M.P. It will be seen therefrom that it is not possible to establish any linkage between the selection of the town or the educational level of the migrant. Distribution of 1000 migrants according to educational levels from particular state to different cities/UA - 1971. State City/UA Total Illiterate Below SF/HS Above Migrant SF/HS SF* Bokaro UA 1000 569 295 97 39 Jamshedpur 1000 427 374 151 48 UA Durgapur 1000 409 412 140 39 City Bhilai Durg- 1000 229 429 251 91 Bhilainagar UA Rourkela UA 1000 425 414 122 39 Bhubaneswar 1000 233 341 206 220 City (continued) : 130 : (Table contd. from p. 129.) State City/UA Total Illiterate Below SF/HS Above Migrant SF/HS SF* Bokaro UA 1000 223 401 185 191 Jamshedpur UA 1000 703 217 54 26 Durgapur City 1000 108 312 269 311 Madhya Durg- 1000 382 343 194 81 Pradesh Bhilainagar UA Rourkela UA 1000 665 226 66 43 Bhubaneswar 1000 233 300 300 167 City Bokaro UA 1000 612 262 73 53 Jamshedpur UA 1000 496 382 98 24 Durgapur City 1000 328 467 150 55 Orissa Durg- 1000 456 377 113 54 Bhilainagar UA Rourkela UA 1000 382 463 117 38 Bhubaneswar 1000 262 461 117 100 City . Bokaro UA 1000 423 416 125 36 Jamshedpur UA 1000 358 456 129 57 Durgapur City 1000 505 318 101 76 Uttar Durg- 1000 293 440 199 68 Pradesh Bhilainagar UA Rourkela UA 1000 340 407 160 93 Bhubaneswar 1000 125 453 125 297 City Bokaro UA 1000 519 297 110 74 Jamshedpur UA 1000 249 441 226 84 Durgapur City 1000 256 444 234 66 Durg- 1000 113 289 396 202 Bhilainagar UA Rourkela UA 1000 178 452 252 118 Bhubaneswar 1000 161 415 203 221 City . *Includes Non-technical diploma not equal to degree, Technical diploma, Graduate degree, Post-Graduate degree, Technical degree and others. Source : Migration Tables D.III of Bihar, Orissa, M.P. & West Bengal -1971. : 131 : 4.7.11: Similarly, no typology of occupation can be adduced to migrants from any particular state. Migrants have taken to all occupations. Though manufacturing is the principal occupation in many of the New Towns, a significant number of migrants are also engaged in tertiary sector. The distribution of 1000 migrant workers in these two categories, i.e. secondary and tertiary, among others, is as follows :- Rourkela - 357: 616 Bhilai - 545:321, Durgapur - 639:329, Bokaro - 719:232, Jamshedpur- 614:360 and Bhubaneswar- 109:721 4.7.12: The fact that migrants from specific States do not have any set pattern of educational levels or occupations appear to be positive features of the New Towns. It would seem that the traditional State/Region based concepts regarding educational background or occupation do not hold good in the New Towns. However, it cannot be said that caste and regional identifications have been completely broken down. On the contrary, the survey of associations undertaken for this study indicate that in Jamshedpur out of 131 voluntary organizations surveyed 21 are caste/region based and in Durgapur out of 68 organizations 4 are caste/region based. This does not cover the total picture. Another indication of caste/region based ties is the existence of specific residential communities formed on such basis. In Jamshedpur, for instance, many bustees are identified on a communal or regional basis such as Christianpara, Muslimpara, etc. Even the company-planned settlements are identified in public view in this manner. : 132 : For example, Dhatkidi is generally known as the Muslim area and Kadma as South Indian area. In the towns of Rourkela, Bhilai, Durgapur, etc., allotments of houses in identifiable are not done on a caste or region basis. But it appears clearly in the marginal settlements outside the planned townships. In fact, marginal settlements which are heterogeneous have often witnessed friction and tension on caste/communal account. Since no data is now available at the town or levels below, it is difficult to say how far the morphology of the New Towns are determined on a caste/communal basis. To assess the integration in the New Town communities and the role of spatial policies in this regard, it is necessary to have further empirical studies. 4.8: The issues raised in this chapter may be summed up as follows: 4.8.1: As in the case of physical facilities, the norms and standards for social amenities cannot be determined from the welfare angle only. They should take into account the cost of services and their affordability by the beneficiaries. 4.8.2: The administration of a wide range of welfare and social amenities is not easy. They are often a serious strain on industrial managements which are not necessarily the best agency to administer these services. Some alternatives will be discussed in the next Chapter. : 133: 4.8.3: Whatever be the motive, welfare, egalitarian or just management's own self interest, social amenities in a company township are not viewed by the employees as distinct from wage or other "dues" from the management. Quite often the social amenities provided by an industry constitute another area of friction and conflict in the employer-employee relations. 4.8.4: In fields like Education where the principal the responsibility rests with the government the nature and scale of efforts of industrial managements have been such as to widen the hiatus with the rest of the State. The State governments also have the tendency to withdraw from the scene. 4.8.5: If provision of health facilities are regarded as directly relating to an industry's responsibility, then the possibilities of pooling resources with government agencies should be considered. There is also considerable scope for several industries sharing the facilities created. 4.8.6: Social and other voluntary organizations are not merely a facet of a community. In a New Town they have a crucial and creative role in the community's formation and integration. Policies should be devised to "draw" citizen response and participation and not reduce organizations to a pattern of dependency. 4.8.7: The issues arising from migration into a New Town are complex but very important. New Towns are not transient settlements. They are in fact built and sustained by the skills and efforts of the migrants. Opportunities should be adequate to enable the migrant families to truly "settle" in the New Town. The heterogeneity that the New Town presents is both a challenge and on opportunity. There is a special need to learn more about a New Town community's integration and what measures facilities or hinder such integration. CHAPTER V : THE GOVERNANCE ..OF THE NEW TOWNS 5.1: The Perspective: Of the hundred odd New Towns built in the country not more than six are municipal entities. The rest are an assortment of town communities, municipal boards, town panchayats, notified area committees and so on. Of course, a municipality is just a form of Government not coterminous with governance as such, neither do forms convey any inherent worth. The process of governance and its effectiveness perhaps merit more attention. From this view a distinction between government and governance is appropriate. One is the institution, the body whose, responsibility it is to provide and maintain public facilities and social services: the other should include not only the process of governance but also the citizens' concept and philosophy of the system and methods employed to sustain his rights and responsibilities as individuals' and as a community with a clear identity in a definite . Being new and, therefore, free from the traditional-forms of government the New Towns could well be expected to function as an experimental laboratory to re-evaluate existing forms and systems and retorm them. 5.1.2: Among the Indian New Towns the larger ones have displayed rapid growth. Prima facie the future growth of these towns will depend on the future of the industries and the expansion of the tertiary sector. Population projections made by planners for these cities are, therefore, heavily reliant on projected industrial expansion. For instance, the Bokaro Steel City urban agglomeration is 135 : forecast to reach a million people by the end of the century if current programmes for the successive expansion of the steel plant materialise. In Durgapur a similar projection had been made based on the steel plant's expansion which would have taken the city's population close to half a million by 1990. But given uncertainties of one kind or another it is extremely difficult to sustain population projections of this kind based on major industrial investments, especially in the public sector. For the limited purpose of assessing the range and volume of services that would have to be provided in these towns by the turn of the century an exercise was undertaken as part of this study based purely on demographic data. It has been assumed that fertility and mortality rates would be the same as obtaining in the urban areas of the respective states or region. Since new town populations are drawn mainly from within the state, this appears to be a valid assumption. As regards migration, it has already been stated that its pace is heavily dependant on employment growth, either in industry or commerce. Since employment projections are not being made, migration rates have been worked out an average obtaining for the particular area. 5.1.3: On this basis Rourkela will have at least 3 lakhs, Bhilai and Durgapur close to 5 lakhs, Jamshedpur about 7 lakhs and Bhubaneswar about 2 lakhs. Even at such low levels of projection it is seen most of the towns would nearly double their size in another 20 years. The New Towns will thus become very sizeable settlements and the pressure on the services and facilities, whether provided by a company or otherwise, would :136 : sharply increase. There will also be a marked increase in the number of people in certain age-groups. We have already observed that New Town communities have a high proportion of females in the child-bearing age-group. The composition of households also indicates a strong trend towards family. In the circumstances, the age- group 0-14 will display a high growth curve. The projections indicate that persons in this age-group would more than double by the turn of the century. This will create a strong demand for educational and other services addressed to this age-group. The detailed projections are furnished in the appendices. The future age profile coupled with the already noted phenomenon of family sizes and income range in a New Town would call for a wider range of facilities, which, in turn, has its resource and administrative implications. Whatever the merits or demerits of the existing system for administering the New Towns it is obvious they would come under increasing strain in future years. It is unlikely that industrial managements on their own will be able to cope with the increasing burden on their finance and continue to sustain services at the same level as before. The sharp disparities within an urban area as between a company town and other parts would also need some remedying, a task patently beyond the company managements. It will, therefore, be essential to devise new forms of governance. : 137 : 5.1.4: Viewed against such a future the present situation is rather uninspiring. In the management of New Towns a bewildering variety of organizations and types is witnessed. Institutions set up in this regard appear to be more an afterthought, an ad-hoc induction into the scene when the problems had already grown to a size, rather than a conscious effort towards providing a viable administrative structure. The various arrangements made in this regard have been described in Chapter II already. These are recapitulated here briefly. (i) In the case of Rourkela the entire urban complex of about 122 Sq. Km. that came into existence after the creation of the steel plant was formed initially into one notified area authority in 1955 with the D.M. as Chairman and with HSL representatives. Subsequently in 1961 it was divided into two, i.e., Rourkela Steel Notified Area (about 100 Sq. Km.) and Rourkela Civil Notified Area (about 22 Sq. Km.). The two bodies share one health officer, one engineer and occasionally one Executive Officer as well, but are always under different Chairman. The Steel N.A.C. has the Town Administrator as Chairman and 8 other HSL officers as members. The Civil Notified Area is presided over by the A.D.M., Rourkela. It has all the marginal settlements and problem areas without resources. The Steel Notified Area is confined to the steel and the fertilizer townships which in effect functions as wing of the steel plant under a Town Administrator. (ii) The Bhilai Township and its outgrowths forming part of the Bhilai-Durg Urban Agglomeration (104 out of 135 Sq. Km.) has no civic institution at all. There is a municipality at Durg which is :138 : (ii) contd. limited to 31 Sq. Km. Recently, a Special Area Development Authority has been created by the Madhya Pradesh Government which is supposed to combine the functions of a municipality as also a land development agency. The Bhilai steel administration is represented on the SADA. (iii) In Durgapur the entire urban area of 154 Sq. Km. is under one Notified Area Authority. All the industrial plants with their townships are included in its jurisdiction and are treated as separate holdings. They pay a holding tax to the Notified Area Authority but the NAA does not perform any service within the townships. There is also a Durgapur Development Authority set up under a Special Act in 1958 responsible for overall planning and development in the urban area. Both these bodies have representatives of industrial managements in them. (iv) In Bokaro there is only the Town Administration for the steel city (167 Sq. Km.). Chas (12 Sq. Km.) is under a Sarpanch. There is a Bokaro Industrial Area Development Authority concerned with promotion of subsidiary and ancillary industries and infrastructure development for the same, but this functions outside the limits of the Steel Projects acquisition. (v) Even in Jamshedpur which has been in existence for a long time the urban agglomeration 145 Sq. Km. is split into 3 separate Notified Area Committees, viz., Jamshedpur (64 Sq. Km.), including Mango, Jugsalai (4 Sq. Km.) and Adityapur (50 Sq. Km.). The Jamshedpur NAC is for all practical purposes an extension of the Town Administrator's office with the T.A. as Chairman. The other three NACs function only in a nominal way. There is also an Adityapur Industrial Area Development : 139 :

(v) Contd.. Authority for industrial and infrastructure promotion but this functions in Adityapur only. (vi) Bhubaneswar offers an interesting contrast. It has one Notified Area Committee covering the entire urban area (154 Sq. Km.) comprising partly elected and partly nominated members. The properties of the State Government are subject to taxation by the N.A.C. 5.2. The Postulates The main reasons for a variety of authorities in the industrial townships each performing only limited functions an appears to be (i) the concept of a self- contained company town, (ii) the poor appreciation of the problems of urban governments, (iii) the ambivalent attitudes of the State Governments, (iv) the reluctance to accept Local Self-Government as a goal, (v) the absence of a compulsion to levy taxes since funds for maintenance for the town are met by the industries, and (vi) the generally poor public awareness or response for participative management of the towns. These factors are discussed below. 5.2.1 The concept of a self-contained company town assumes that the management of the town would also be a company function. It is often said that since the companies planned and built the towns, they would be the best persons to administer the towns. Such a view was supported by non-official bodies as well, such as, the Mehatab Committee on the Cost of Production of Steel (1966) which held the view that "state governments realise considerable revenue from steel projects ………. they should come forward to share the cost of essential services. We would, however, like to point out that the steel plant authorities can best perform the administration of the services". : 140 : This attitude that a company is indeed the chosen instrument for running a company township has persisted. Even committees of legislature and parliament, which at least by definition, would be regarded as preferring self-government have not considered this issue directly. Popular participation, and greater awareness of the social needs on the part of the company, are usually emphasized such discussions but the organizational framework that could ensure this is never spelt out. At the same time cost consciousness and the need to be circumspect in outlays for non-production items are also stressed. As the chief of one large public undertaking observed during discussions "we are blamed as extravagant by one committee if we spend significant sums on welfare and amenities: if we do not, we are taken to task by another for not responding to the needs of the labour and the town's community." Both in the public and the private sectors, where the running of a township is involved, the task of running an industry and the role of a town authority have got mixed up. We can do no better than to recall the observations of the Nayak Committee while debating alternatives for a suitable administrative set up for Jamshedpur. "Jamshedpur has a low level of civic consciousness. This is the result of the parent-child situation which sees to the satisfaction of all elementary wants without demanding reciprocal satisfaction .... There is no indication yet that the large majority of the Steel Company employees are becoming aware of the duties they owe to the town.... The question may justifiably asked whether a separation of the town

: 141 : administration is necessary at all and whether the real issue is not one of the growing expenditure, to be dealt with as such, in a straightforward manner. The building up of Jamshedpur has been a unique experiment. The example has been copied elsewhere in the country. The process goes on even to this day.... would it therefore be sound to determine the future of this town on the alleged incompatibility of TISCO's roles as employee and town administrator ? ... Jamshedpur has, however, many "masters" and an "outside" population of nearly 50,000 .... The present arrangement is held as satisfactory to labour as it generally enables the enforcement of town needs through the Union. But there are the germs of trouble in this situation. ....A time will come, and that sooner than later, where an expansion of facilities will become inevitable. A choice must, therefore, be made as between a growing expenditure on town services or labour discontent on vital matters. Whether one looks at this question from the narrow point of view of the company's self-interest or the broaden one of properly organising and running public affair, the answer seems clear. Basically, the parent-child attitude in so large a community is not good for anyone..." 5.2.2: The Committee's observations could apply as well to Durgapur, Rourkela or Bhilai. Conceived as a company's enclaves, these towns have grown patently beyond the early expectations. The managements have to strain every sinew, financial or otherwise to keep the towns going. Yet the belief in the company's omnipotence persists. Even in Jamshedpur that has shown some commendable foresight to the needs of the town, reaction to Nayak Committee's recommendations was cold. In the words of a : 142 : senior official from the city "in conditions as presently obtaining in this country the paternalistic approach of a benevolent employee seems essential for progress". However, he concedes that "striking a correct balance from time to time between paternalism and self- rule will be a delicate but necessary task of the companies". 5.2.3: The very poor appreciation of the problems of urban governance has been another major reason for the highly inadequate and often primitive types of organizations set up for running the New Towns. With housing taken care of, at least in name by the company, the rest of the town functions were regarded in minimal terms, like street lighting, cleansing, looking after the market places, etc. Water-supply, drainage or road building and maintenance were considered to be a better left to the company's engineer than some kind of municipal set up. The requirements of urban management were conceived only in regulatory terms. Even the Committee on Plan Projects which devoted a whole chapter to Administration felt "the real problem in town administration arises with regard to exercising the rights of local authorities in taking action against unauthorised encroachments, issue of licenses to cycle rickshaws, tongas, eating establishments, cattle pounding, etc." This emphasises on the regulatory aspect as the essence of urban management has persisted and quite often the approach has been to somehow arrange for the company's officials to be invested with the statutory powers of a municipal official. In town after town, the process therefore, has been : 143 : to pursuade the State Governments to confer on the company's town department officials municipal regulatory powers, such as prevention of food adulteration, public health control, removal of nuisance, building regulations, etc. The state governments, 'with their hands being always full with a thousand other things and never enough money to do them' did not desire to get involved in the running of the company towns for fear this might lead to some demands for funds, readily acquired in this process. Company officials were increasingly vested with various powers under Municipal and other Acts. A meeting of town Administrators, held under SAIL's auspices as recently as December 1975 has urged that 'steel towns be regarded as cantonments and the Town Administrations, be vested with powers under the Cantonment Act.' 5.2.4: The philosophy of a model employer and the culture of a company town have reinforced each other. As an ideal employee the company sought to run most services in the town as amenities. The cost of setting up and running them have been borne by the company. While countless discussions and committee meetings have searched for ways to reduce the capital costs, it has always been assumed, tacitly or otherwise that running costs would be a charge on the management. There has been no search, not even the motivation to make the consumers pay for the services as urban dwellers elsewhere in the country do, through taxes. So long as taxes could be avoided, the municipal institutions required to levy them could also be avoided. The New Town Hampden's motto has been to avoid : 144 : both representation and taxation. But just outside the company townships limits, taxation, with or without representation, is very much a reality. So it is in a non-company town like Bhubaneswar. The following table illustrates - Taxation in Bhubaneswar, Rourkela Civil & Rourkela Steel Notified Area Committees Item Bhubaneswar Rourkela Rourkela (Civil) (Steel) Total Income 23.27 12.40 4.74 Lakhs of (1973-74) Rupees Tax income alone 11.60 6.12 1.14 -do- Per capita tax 5.55 4.39 0.39 In Rupees income Per capita 28 34 5.38 -do- expenditure The per capita expenditure figures for Rourkela steel, obviously, excludes the expenditure incurred by the Steel Plant, amounting to about Rs. 174 lakhs nett. It should also be noted that the range and level of services provided in the Steel Town are wide and way above what is available in the Civil Town. At the same time per capita tax incidence, for this lesser range and quantum of services, is more than ten times that of the Steel Town. The point is whether a system that discriminates so sharply between a fortunate resident of a steel township and his neighbour outside the township, is to be sustained. 5.2.5: Disdain for local self-government has been part of our elite traditions. Though the cream of Indian leadership was esconced in the town halls at one time,

: 145 : since independence, L.S.G. has fallen from grace and in most states is treated with sufferance rather than encouragement. In the eastern region in particular, where municipal institutions were set up more to contain nationalist political upsurge than as instruments for urban governance, local self-government has acquired a strong odium. It is true, most cities in this region, big or small, suffer from want and neglect of every description. Calcutta itself has long been the worlds symbol for urban decay. But to blame the municipal system alone would be to add insult to injury. In the Indian city the real problems are the preponderance of the poor, the high cost of building and operating the infrastructure, the distortions in urban realestate and the detriment it brings to the city's economy, the discrimination in the pricing and delivery of services, the poor tax base and its poorer utilisation and so on. None of these are the special outcome of local self- government. It is possible that participative platforms which are prone to political influence might aggrevate the effects of these factors. But no sphere is free from politics or its abuse: a company's management is neither innocent nor inviolate. And where size of the problem and lack of resources are the real constraint it does not even have the means or mechanism to cope. Especially in towns that have ceased to be townships, where the company's writ does not run in all of the urban area, actual experience confirms this. There is, therefore, no point in holding on to an arrangement that has at best been 'ad-hoc', more so when its perpetuation denies a right to self- governance that the country has accepted as a Constitutional objective. To cite the Nayak Committee : 146 : again "the success or failure of local self-government, measured by the peoples satisfaction or discontent, will be determined largely by the resources available for rendering services". The New Towns, in fact, are in a better position in this regard than other. With several industries to count and personal incomes ranging higher than elsewhere a Local Body, with a properly conceived system of taxation, can command more resources in New Town. 5.2.6: The State Governments' attitudes towards townships and their management have also been ambivalent and contradictory. Initially the State Governments did not have a very clear idea about the scope or implications of major industrial projects. Steel Plants, in particular, were considered to be highly prestigious to have in a state and whatever was sought for such projects was given. For instance, when demands for acquisition of large areas were made for such projects the State Governments readily agreed without much scrutiny on their part. Because of the bigness and complexities of the projects the State Governments also did not get involved in the planning or development of the project townships. Their concern, if any, was limited to rehabilitation of displaced persons. At a later stage the State Governments began to take an increasing interest in the projects but hereagain the concern was limited to recruitment of local people, personnel management, law and order, etc. Even here, when it came to establishing some minimum set-up on behalf of the State Governments lack of resources was cited and : 147 : it was the project authorities who were expected to help out. For the initial lot of police stations, post- offices, government offices, etc., the space had to be provided by the project management. The attitude often displayed at the local level was, the project authorities should not only look after themselves but, wherever possible, look after state governments' requirements as well. As for planning and development, it has been generally assumed that planning of the townships is a matter totally internal to a particular industry. Even where a number of industries and townships were to be developed side by side as in Durgapur the need for an overall planned framework and coordination was not realised. Though the Durgapur Development Authority was set up by a special statute in 1958 to provide for such planning and coordination, at one of its very early meetings the authority which included the representatives of industries resolved that industrial management could be depended upon to observe correct planning principles and insofar as their townships were concerned the planning jurisdiction of the authority need not apply. 5.2.7: Much later, when proposals for establishing some machinery for levy of taxes and provision of services were mooted the response varied from town to town. The developments in Rourkela have been discussed already. Around the time the Steel Plant there was pressing for splitting the Rourkela N.A.C. in two, the Steel Ministry had sent a letter to Bihar, Orissa, M.P. and West Bengal Governments. The substance of it was that the townships built by the steel plants were well provided with services at a much higher level than : 148 : average: that an adequate organization existed in the Town Administration office of the plant for upkeep: that the services were being treated for the most part, as amenities to labour: that the setting up of a Notified Area Committee would therefore be superfluous for the township and also be an imposition: and that, therefore, the steel plants townships should either be kept out of the jurisdiction of any such N.A.C. or municipal body or in the alternative, if such a body was required at all as a Constitutional necessity, the townships should be constituted into separate N.A.C.'s with the Steel Plants officials as chairmen and members. There was also the view, urged with varying emphasis, that as property-owned by the Govt. of India, the HSL Townships would not come under local authority taxation without specific statutory provision. In Bhilai and Bokaro the plea was headed and the townships remained as before. In Durgapur Dr. B.C. Roy, the then Chief Minister, took a hard line. The company towns, however big, could not be enclaves he insisted. Durgapur was already a collection of townships each adjoining the other and none could truly be regarded as self-contained. A Notified Area Authority was set up accordingly for all of Durgapur and the different plants and the townships were included in its limits as holdings. For instance, the Steel Plant was one holding: the township was another. All the company holdings were to pay the N.A.A. the holding rate assessed on its property value. Other rates for water, conservancy lighting, etc. were not payable as these services were already being provided in : 149 : the townships. A pattern thus emerged where the company towns were included in a municipal set up as rate payers. Out of the D.N.A.A.'s annual income of about Rs. 35 lakhs about Rs. 20 lakhs are derived as holding rates from the company holdings, half the amount coming from the steel plant and the township. In the composition of the DNAA, company representatives were also included. While the NAA's activities are mainly focussed on the non-township areas, increasing attention is being given to some common services like markets, street lighting of main connecting roads, etc. In 1968 the Chief Executive of the Development authority was made the Chairman of the N.A.A. as well, to ensure better coordination between the two. The general division of work between the two bodies envisage planning, development control and capital works in the DDA's purview while operation and maintenance, municipal rates and other regulatory functions are performed in the D.N.A.A. Both bodies have representatives of the industries as also the local M.L.A's and some trade union leaders. In the past ten years the Development Authority has expanded its capital works programme considerably. A road system that links up the different townships and a city centre as a new focuss of all are its major contributions. The DNAA investments have been mostly in the fringe areas. Its performance has been uneven but it has emerged as a definite participative platform for both the industrial and non-industrial parts of the city. 5.2.8: Reference has been made earlier, to the ambivalence of State Governments in the governance of New Towns. This has been most manifest in the land issue with several complications in the wake. The virtual stalemate created for the past several : 150 : years in the case of Jamshedpur has been mentioned already. In brief the dispute is, whether the TISCO are owners of the lands in Jamshedpur or an intermediary. And while the dispute pends, most development activities like house on construction, road building and so on have ground to a halt. Over the years TISCO had also set up a system of lease and license for allotment of lands. There are nearly 10,000 monthly tenancies and 1500 long- term leases for residential use, some 700 leases for shops/shops-cum-residence, about 150 leases for clubs and institutions etc. This pattern of lease was an important instrument in the development and "settling" of Jamshedpur. No new lease has been granted since the dispute and the injunction. The city, of course, continues to grow and with it, the demand for space. Crucial land space that lies between major work centres and is still open, is being slowly and steadily sized. The town officials lament that they cannot deal with encroachments anymore. The loss is not just a loss of TISCO's power : it is the community as a whole which losses since public options for the future are preempted in such private seizure of land. Late in 1976, the Bihar Government set up a small committee of officials to discuss with TISCO its proposals to end the impasse. The outcome is still awaited. 5.2.9: The echoes of the Jamshedpur dispute are heard just as loud in the other towns. The halting steps that HSL took before deciding to provide developed land in its townships, to individuals have been discussed earlier. : 151 : By 1975, Rourkela, Bhilai and Durgapur had come around to 2 accepting the "outsiders" inside their townships and had prepared elaborate schemes for allotting house sites to employees, ex-employees and supporting population. But the right of the steel plant managements to alienate land has been questioned by the concerned state governments. In their view, since land was acquired for the setting up of a steel plant and a township by the industry, alienation to others would vitiate the public purpose inherent to acquisition. The proper course, the State Governments argue, would be for the lands to be surrendered to the State which would then allott them to others. For their part, the company managements urge that a factory and township have several ancillary needs all of which can be forecast at a time: that in building a township, these needs too must be met and the allotments have to be worked out as part of the townships' physical and financial scheme of things. Till date no agreement or deed of conveyance has been signed between any of the State Governments and the plant managements in Rourkela, Bhilai or Durgapur. 5.2.10: In Bokaro too, Bihar Government has taken the stand that lands acquired should be used only for erecting the steel plant and building the company-own housing. The weekly hat, the allotment of land to the cooperative society, the leases in the Town Centre for shops and so on are all held in dispute. Yet the same government has been quite liberal in viewing the needs of a township elsewhere. In the deed of conveyance for the lands acquired for another public sector undertaking, i.e. the Heavy Engineering Corporation's

: 152 : plant and township at Hatia, Ranchi, the preamble reads as follows: "That the Grantee shall not use the land hereby demised or any part thereof, for any purpose other than the specific purpose for which the land is granted, namely for the construction and establishment of the Foundry Forge, the Heavy Machine Building, and the Heavy Machine Tools plants, Township of HATIA and other ancillary and allied purposes such as the establishment of shops, canteens, cinema houses, petrol filling stations and garages, educational, social and cultural institutions and other establishments necessary for the life of the community working in and living nearabout the factory and the township". When the present author drew the attention of the authorities to this patent anomaly in the stands taken between Bokaro and Ranchi, both in public sector, there was only a pat response that the matter had been dealt with in different files. 5.2.11: It does not seem that the issues debated are irreconcilable. Both the State and the Industry now recognise that a township cannot be confined to employer built housing only. Both concede that land and other facilities should be provided to meet housing, shopping and countless other needs of a town. If the essence of the dispute is whose responsibility it is to deal with them, the answer, obviously, is to be found in an institutional frame that is based on the city rather than a particular industry or even the state, such as a city development authority for example. Bhilai or Durgapur steel plants may have qualms about handing over their surplus land to some distant state government office but there need not be

: 153 : such, hesitation in passing it on to the Development Authority then there whose mandate is the city and in whose composition the industry is included. What is to be recognized first is that land is the most important resource that a New Town has given the right policy and use, it can bring about a livable settlement pattern. It should not be held in exclusion or employed as a test stone for measuring one's sovereignty. 5.2.12: While the attitudes towards local self-government on the part of the industry or state has been lukeworm, the response from the public has not been very inspiring either. This is mainly because public attitudes about municipal institutions have been, by and large, cynical. This, however, does not mean that they are prepared to forsake the principle of self-governance itself. In New Towns, however, factory labour did not contest the view, at least not initially, that the Management would be responsible for the township and the amenities. Increased investments on such items has also been a recurring issue in wage negotiations. In fact, even in cases where the managements have launched self-help programmes for housing and community facilities, the Unions have asked for continued increase in allocations for company built housing. In TELCO, for example, when a major programme of Community Development has been taken up in the nearby villages from which many of Telco's workers came, a specific provision of Rs. 20 lakhs per year for company- built housing in the township was included in the 1973 Memorandum of Settlement. As for non-employees, here again the attitude has been that since the urban complex has emerged in the wake of the major : 154 : industries, their managements should provide for amenities and services outside the townships as well. Where Notified Area Authorities have been set up the target of demand has shifted considerably, but there has also been the tendency to resist payment of taxes levied by such authorities. This happened in Durgapur, where for a few years after the setting up of D.N.A.A., some local leaders pressurised the Authority to grant bulk remission of rates in several localities outside the township including commercial areas like Durgapur Station Bazaar and Benachity which had become very prosperous. Some determined action by the Administration reversed the situation later when a fresh assessment was ordered. Within the townships, the question of resistance from the people does not arise since taxes are not imposed. Any measure to incorporate the company town within a municipal jurisdiction and levy rates would, of course, be resisted since so long, a company towns residents have been enjoying the services free. Non-payment of taxes, is after all, an easy habit. If payment of taxes is the measure of a citizens responsibility, many in a company town, may want to remain as employees, rather than citizens. 5.2.13: But there are other ways in which a resident's dislike for a company town is manifested. Writing after two visits to Durgapur, in 1959 and 1967 Ruth Glass recorded her impressions as follows: "In the steel colony, there is no chance for anyone ever to forget his status. Differences in space standards alone range from 3/4000 sq.ft. for the top level managerial houses to 300 sq. feet for the lowest grade of labourers houses…. Each rank in this

: 155 : hierarchy of the steel works has better housing standards and more space than the next level just below. As the Township has expanded, it's hierarchical pattern - accentuated by the fragmented low density layout has been most effective in keeping people apart. At work, at hone, even in their recreation people are kept in their place….. Walking around in the enclaves of the steel townships, one gets claustrophobic there are few signs of the buoyancy which is characteristic of much poorer urban areas in India…..." Many a times this restlessness found strong and negative expression. When a major labour dispute shook the steel plant in 1966 the first casualties were the streetlights and gabions so carefully tended by the town-ship's management. 5.3: It may be useful to review briefly the experience of some other countries in the administration of New Towns. In the U.K. which has built thirty odd New Towns so far it was decided quite early that Local Authorities as such could not be given the responsibility for planning and building New Towns. Development Corporations were set up for each of the New Town. These corporations were responsible for planning, funding and building the New Town. A separate statutory body known as the New Towns Commission was set up under the 1965 Act to administer those New Towns which have been completed. The commission has the taxing powers of a Local Authority. It should, however, be noted that for many services like education, health, etc., a network of local, regional and national level : 156 : bodies exists. In Netherlands a Polder Authority is set up to plan, build and administer new settlements created through reclamation of land. In the North and South America New Towns have been built mainly by private developers. The administration of these towns, however, are vested in the local /City Administration. In South America, Giudad Gueyana in Venezuela has been set up by a statutory corporation (C.V.G.) akin in some respects to the British model, as also the D.V.C. in India. In Canada an Aluminium company set up a New Town at Arvida which has been built and is also administered by the Company. Many social and administrative difficulties were faced in Arvida and the same company later built Kittimat where an elected Municipal Council was established right in the beginning. It is reported that though on many issues there was a conflict between this council and the company on the whole the experience has been creative and beneficial. 5.4: Whatever be the model, the management of New Towns has to fulfil certain requirements. (i) New Towns require large resources for development especially at the initial stages. Demands for capital are heavy and financial returns are slow. The organizational model has to withstand the strains and stresses of this process. It should also be able to draw its operating finance mainly through payments for services rendered. (ii) In the planning and development of the New Town there has to be a continuity of the plans and policies which were adopted in the beginning. There is no point in inviting some great architect or planner to design a New : 157 : Town and then allow him to disappear from the scene. This is not to say that the plans and policies once decided are sacrosanct and cannot be changed. But the organizational framework should enable continuity of thought and approach in implementing policies. (iii) The process of development should also be such as to ensure completeness and flow of benefits at each stage. It may be necessary to combine, at least initially, the planning and development functions with operations and maintenance. (iv) The organization should be independent and autonomous of particular interests within the town, such as, a major industry or a trading interest. But it should be sensitive to the requirements of these interests. (v) It should also provide adequate avenues for public participation. Indeed such participation is essential if the organization is to derive revenues from the city. But this does not mean that elective bodies are the only means to secure such participation. 5.4. Some recent initiatives : 5.4.1: In devising an appropriate framework for managing the New Towns the major problem has been on the one hand insistence an outmoded concepts of territory and sovereignty and on the other, lack of innovative thinking on organizational types. In fact, in the country itself, thinking on urban governance has been terminal. As mentioned before what is urban is usually regarded as municipal and what is municipal as highly politicalised, corrupt, inefficient and unsuitable for even the daily : 158 : requirements of life in a contemporary city. But in the New Town an opportunity is indeed available to cut free of these prejudices. A New Town is not obliged to have a traditional type of municipality or even a diluted version of it, i.e., the Notified Area Authority. It can think in terms of entirely new organizations with different structures. Participation and involvement of the citizens also need not be only in the traditional manner of municipal wards, elected councils, standing committees, ornamental mayors or executive commissioners. Again, there can be substitutes for the traditional property rates and taxes to provide revenues for a city system. Some hopeful signs are already there arising from certain new initiatives. These are discussed below : 5.4.2: There is a better awareness now, than before, of the problems of an urban complex as such rather than an individual township. Way back in 1963 the Committee on Plan Projects had emphasized the need for planning not only the New Town but also its adjoining areas. After so many years one can see examples of such efforts. In Bihar such a plan has been prepared for the Jamshedpur- Adityapur complex. In Bokaro, the town planners in the steel project have taken the initiative in outlining a plan for the Bokaro complex which would emerge when the steel plant is expanded to about 5 million tons capacity. In Bhilai, the M.P. Government has undertaken a similar exercise which would better integrate Durg-Bhilai and the various settlements had grown around. In Durgapur a Perspective Development Plan for the urban complex has been made by

: 159 : the Development Authority there. These plans are contributing to a better understanding of the physical and socio-economic dimensions of the New Town growth. Hopefully a better focus for organizational requirements could also emerge from this. 5.4.3: There is also better appreciation about the utilization of crucial land space to subserve overall development. Project authorities have shown their willingness to hand over part of their lands for common purposes if these are so required to fulfil an overall planning objective. In Durgapur the City Centre which is one of the most crucial elements in the Perspective Plan has become a reality only because of the decision of the steel plant to hand over about 300 acres to the Development Authority for building the Centre. In Bhilai, the steel project have agreed to hand over to the Special Area Development Authority substantial chunks of the land north of the railway line. These decisions indicate that the project managements are indeed prepared to accept the overall jurisdiction of a planning and development organization if such an organization establishes its mandate for the city's progress. 5.4.4: The industrial managements are becoming increasingly conscious of the drain on their resources on account of administering township services and amenities. They are concerned of the frictions with labour on this count and the sizeable management burden involved in administering these services. At this point of time most : 160 : managements feel, there is no escape from providing these services, and so the accent is on reducing somehow the burden involved. But the managements are also inclined, more than ever before to look for alternatives, for other organizations which could relieve them of these responsibilities, at least partially, with some reasonable assurance of performance. In interviews with the Author most of the Chief Executives in company towns stated that they regarded their role primarily as captains of industry and not as town builders. Many town administrators were also of the view that if the State, the Local Authority or some special agency came forward to take over responsibilities for markets, schools, street cleansing, drainage, etc., they would be quite prepared to hand over. These attitudes are in significant contrast to what prevailed in the 50's when a General Manager invariably cast upon himself the mantle of a mayor as well. Circumstances have changed and the preoccupations in running a plant have become many: they do not wish to add to their worries. 5.4.5: Financing the services, at least their operation, continues to be the crux of the problem. The solution lies in recognising clearly that no segment of a city's economy or activity can be kept out of taxation. At the national and state levels all sectors of the economy are brought within fiscal purview. There are, of course, exemptions consistent with equity, but no group like government employees, a particular industry or trade is totally exempt. It is subject to one kind of levy or another. The same : 161 : holds good for at the City level too. Considering that the scope of taxation at the city level is limited, if sizeable segments are deliberately kept out of its purview, the city can never hope to be viable. Depending on the size, and severity of problems, assistance from the larger society through state and national channels are not precluded, but no city can justifiably ask for such assistance if it is not willing to tap its own resources in the first instance. Given its resource base, heavy investments made and comparatively higher income range, a New Town is far less justified in seeking to pass the burden of its existence to other sectors of the economy. Yet, this is what happens, when a steel plant or other industry provides town services of one kind or another and does not charge for them. The expenditure is absorbed in the product and finally charged to the consumer. There is no quarell with amenities for labour rendered within a plant. But why should the society pay for free or heavily subsidized water supply, electricity or other municipal type of services enjoyed by a factory worker in a company town, when the likes of him and all others have to pay for such services elsewhere in the country ? Likewise why should industrial property be exempt from taxation merely because it belongs to a Central Government undertaking or is located in a company town. 5.4.6: The example of Bhubaneswar in this regard has been cited already. There, the State Government itself has subjected its property to the Notified Area Councils : 162 : taxation. Taxes so levied are recovered in proportion from the consumers as the occupier's share of taxes. Yet in the same state, in Rourkela, the steel plants properties have been kept out of taxation and for identical services the resident of the steel town pays little or nothing while the resident of the adjoining civil town is taxed. Again, in Bhubaneswar the NAC consists of partly elected and partly nominated members. There is no evidence that the council as a whole has become less responsible or efficient in the process. Such an arrangement seems quite feasible in Rourkela as well. It is unlikely that the wisdom which in steers the Council in Bhubaneswar is not available in Rourkela. The Bhubaneswar model is indeed an innovative attempt and deserves to be tried out at least elsewhere in the state Durgapur is another case where industrial property has been brought within taxation. 5.4.7: Some Innovative measures are also being attempted in other states. In Madhya Pradesh the Special Area Development Authority, like the one set up for Bhilai, combines planning and development functions with municipal tasks. In Bihar an ordinance exists for setting up Regional Development Authorities. In Bengal recent legislation has sought to streamline property taxation and introduce specific consumer levies. Attempts are also being made to create autonomous boards for valuation of property. In most states town & country planning laws exist. These are all changes that have come in the past decade as witness to an ability to innovate, a willingness to experiment. : 163 : Many of the industrial projects had displayed much enterprise and daring in the creation of company towns. There is no reason why some of these qualities should not be brought to the fore in running them and in devising, by dialogue and effort with the State, suitable institutionalties for that purpose. 5.4.8: The Community Development programme that TISCO has been running in Jamshedpur may be cited as an example of such initiative. Launched in the troubled days of 1958 in the wake of 'Pitay Bonus', a dispute on the labour demand for Bonus marked by much violence, the Community Development programme commenced as a modest social welfare effort in Sonari, a bustee of some 25,000 people. Much of the initial work related to provision of some amenities in the Bustee like paved roads, street lights, water taps and so on. A Community Centre was established as a focus for recreational, adult literacy and arts & crafts activities. In a few years the programme expanded to 11 more centres covering in all about 2 lakhs of people. While the contents of the programme are much the same as in similar efforts elsewhere, such as, pre-school classes, adult literacy, library, textbook lending craft education, first aid, thrift campaigns, etc. What distinguishes the Jamshedpur effort is the building up of organizational set up and a cadre of workers for this programme. At the field level there are neighbourhood guides or volunteers. They are in three formations, the Yuvak Dal, the Mahila Dal and the Seva Dal, pertaining to youth, women and others in the community. At the next level are Instructors and Social : 164 : Welfare organizers who usually work in and through the Community Centre. The whole programme is administered by a Department of Community Development & Social Welfare at the TISCO office. About 3500 volunteers have received training and a third of them are reported to be active in the Seva, Mahila and Yuvak Dals. The Company's financial outlay on the programme is modest limited to expenses on the Department and other staff and the Capital Works which usually form part of the Town Administration works. The activities are reviewed at the community level itself through 43 community committees functioning in different parts of the city. A few years ago the programme was extended to the rural fringe as well. TELCO has also embarked on a similar C.D. programme focussing a little more on the rural and semi- urban settlements in the fringe from which a significant number of its workers are drawn. 5.4.9: The company's awareness of its social responsibility and its desire to further the cause of better industrial relations are the professed objectives of the C.D. programme in Jamshedpur. This is not the occasion to discuss how far these objectives have been fulfilled. An evaluation made by the Shriram Centre for Industrial Relations a few years ago did bring about several operational deficiencies. It is also conceded there has been no way to assess, to what extent the C.D. programme has contributed to better relations with the labour. But the point relevant to our discussion is that the C.D. programme has succeeded in establishing an important channel of : 165 : communication in the city. Whether in affairs of the plant or the town, this channel does not substitute the official apparatus but it does supplement it. The Shri Ram Centre study also indicates a strong interest of the Community Groups in township matters such as the level of amenities. An alternate link is thus available which constitutes an important interface between the town's management and the community. In other company towns like Rourkela, Bhilai and Durgapur Town Advisory Committees do exist but in essence these are adjuncts to the official machinery. The lesson available in the Jamshedpur experience is not so much in the nature of activities, the money spent or the objectives professed and declared to be achieved; it is in the realisation that alternative channels of communication are crucial and to the extent these are developed, the community gains in strength. 6. The future: The author recalls a conversation during a visit to Bokaro on how the plant came to have its high reputation. 'If this had been the third instead of the fourth plant' one comment ran 'we would have been much the same as Durgapur'. The point being made was in building Bokaro, the lessons learnt in Durgapur or any of the other public sector plants had been remembered. This is true for the country as a whole. Whether in fertiliser or steel making, chemicals or any other field of industry, the valuable lessons of the past two decades in the planning, building and upkeep of industry, are remembered and applied. Similar lessons have been learnt in the townships as well : 166 : but these seem lost to memory. Building of more industrial townships is very much on the anvil - at Salem, Vijaynagar, or Haldia. Sizeable expansions are on hand for Bokaro and Bhilai and elsewhere in the country where some major industries are located like heavy electricals, petrochemicals, refineries, fertilizers and so on. Still in town after town, the mistakes of the past reappear. This need not be. Within the country there is now, a sizeable group of people, scattered may be, but still very much there, who have learnt by doing, by building and running India's New Towns. These are the planners, the engineers, the town managers and their deputies, the welfare officers, sports organisers, education administrators and so on, working in the townships and who have learnt their lessons the hardway trying to reconcile an industry's objectives and working practices with the requirements of an urban community. Here is a reservoir of expertise that waits to be used. One conclusion that emerges from the experience of the past is clear : that the company town is an anachronism. Whatever the dominance of an industry in the economic scene, it cannot hold the same sway over a community. A new town is not a monolith. It's hopes and fears, moods and fancies, aspirations, achievements, faces and voices are all far too many. These cannot be contained in any single or dominant frame, howsoever sensitive and enlightened the holders of that frame may be. Society is plural. So it must be, if democracy is a value to be cherished. A company, a government, an industry, or an association of people are all just components of that society. One cannot hope to thrive for long at the expense of the other.

A P P E N D I X

: 167 : APPENDIX : LIST OF ITEMS AND TABLES Page Appendix 1 : Some Railway Towns or Towns which are mainly 1.1 railway settlements. Population variation since 1941 Appendix 2 : List of New Towns in India 2.1 Appendix 3 : Annexure to the Map on Class-I and New Towns in India (inserted after PREFACE) Appenxix 4 : Basic Information on the New Towns 4.1 Appendix 5 : Basic Information on marginal settlements 5.1 contained within New Towns Appendix 6 : Migration to the New Towns 6.1: Distribution of migrants in the New Towns - 6.1 statewise 6.2: Distribution of migrants by educational level in 6.2 the New Towns 6.3: Distribution of migrants according to different 6.3 (6.3.1- educational levels in the New Towns - statewise 6.3.8) 6.4 : Distribution of migrants classified by place of 6.11 last residence 6.5: Distribution of migrant workers according to 6.12 occupational categories in the New Towns 6.6: Distribution of migrant workers according to 6.13 (6.6.1- occupational categories in the New Towns - state- 6.6.10) wise 6.7: Distribution of migrants by Age - sex groups in 6.23 the New Towns Appendix 7.1: Items and costs of development in the steel towns 7.1 at the 1-million-ton stage 7.2: Township income and expenditure details, of some 7.4 New Towns

: 168 :

Appendix : 8 : Norms and standards adopted in the New Towns (at Page Various stages) 8.1 Appendix : 9 : List of social/voluntary organizations who 9.1 responded to our questionnaire survey in Durgapur and Jamshedpur Appendix: 10: Specimen of questionnaires addressed to social 10.1 organizations at Durgapur and Jamshedpur Appendix 11: Population projections for the New Towns 11.1 (11.1 - 11.6) 11.7 : Assumptions made for the population projections 11.4 of the New Towns Appendix : 12: List of participants in the Discussion session on 12.1 the Issues Paper - (20.4.77) Appendix : 13: List of persona contacted in the New Towns and 13.1 elsewhere in connection with the study Appendix : 14: References 14.1

* * *

Appendix - 1 Some Railway Towns or towns which are mainly railway settlements : population variation since 1941 Population in Sl. Towns 1941 1951 1961 1971 South India : 1. Villupuram 23,829 35,684 43,496 60,242 2. Storanur 8,581 11,596 14,307 22,038 3. Jalarpet 16,411 20,069 4. Arkonam 16,626 22,674 30,690 43,347 5. Gudur 12,105 20,056 25,618 33,778 6. Vijayawada 86,184 161,198 230,397 344,607 7. Weltaier (1) 70,243 108,042 182,004 355,045 8. Golden Rock (2) 16,412 19,812 19,560 21,115 9. Bellary 56,148 70,322 85,673 125,183 Central India : 10. Wardha 28,359 39.827 49,113 69,037 11. Bhusawal 36,352 54,346 79,121 96,800 12. Itarsi 16,679 22,748 33,668 44,191 13. Jhansi (Rly. Colony) 4,023 4,957 8,369 9,940 14. Bina 8,979 12,720 27,476 33,106 15. Bilaspur 37,460 39,099 86,706 98,410 16. Raipur 63,465 89,804 139,792 205,986 Western India : 17. Ratlam 44,939 63,403 87,402 106,666 18. Manmad 16,838 18,350 31,551 40,061 19. Dhond 12,828 18,849 27,168 35,970 20. Hubli 95,572 129,609 171,326 379,166 Northern India : (incl. Dharwans) 21. Gorakhpur (3) 95,127 132,436 180,255 230,911 22. Samastipur 13,293 19,366 25,726 31,566 25. Mugalsarai (Rly. Colony only) 8,135 10,486 15,029 24. Tundla " 5,249 7,392 9,144 25. Moradabad " 7,836 11,728 14,062

Sl. Towns 1941 1951 1961 1971 Eastern India : 26. Mokameh 19,984 29,308 35,745 38,164 27. Jamalpur 39,401 44,172 57,039 61,731 28. Kharagpur (Rly. Colony) 37,871 50,384 66,545 73,434 29- Asansol (4) 69,475 94,764 168,689 241,792 30. Kanchrapara 24,015 56,668 68,966 78,768 31. Dinapore 8,322 32. Chakradharpur 14,807 19,948 30,906 34,967 33. Adra 7,518 10,577 13,215 18,838 Source : Census of India Notes : This is only an illustrative list. Attempt has been made to identify those towns which originated mainly as railway settlements or where such settlements brought about a substantial expansion of existing towns. (1) Waltair since covered under Vizag agglomeration. (2) Golden Rock since covered under Tiruchi agglomeration. (3) Gorakhpur is the Hqrs. of N. E. F. Rly. (4) Asansol since included in Asansol - Burnpur Town group.

APPENDIX - II LIST OF NEW TOWNS IN INDIA (Classified as per, 71 Census) Category I – 18 New Towns/New Town INDEX – (Urban T.C. – Town Committee Agglomerations with population of 100,000 or more) " II –52 (New Towns located N.S. – Not Stated – in other Urban Agglomerations) " III – (Other New Towns) N.A.A. – Notified Area 52 – Authority Total in N.A.C. – Notified Area the list 122 Committee V.P. – Village Panchayat N.M. – Non-Municipal T.S. – Township M – Municipality M.B. – Municipal Board Cantt. – Cantonment T.P. – Town Panchayat S.B. – Sanitary Board S.A. – Special Area P – Panchayat C.T. – Census Town E.O. – Estate Office N.P. – Non-Panchayat Source : [(Abbreviation used to denote the Civic Status of Towns) General Population Tables, Part II A (1) Series I - India (Page 238) ] Source : General Population Tables Part II A(1) Series I - India

Category I New Towns /New Town Urban Agglomerations with population of over 100,000 Name of the District/ Area in POPULATION Urban Sl.No. Sq. Town State Km. 1951 1961 1971 Status (1971) 1. Bhadravati* Shimoga/ 12.21 42,451 65,776 101,358 N.S. Mysore 2. Bhilai Durg/ 124.06 20,249 133,230 245,124 N.H. Nagar M.P. 3. Bhubaneswar / 65.03 16,512 38,211 105,491 N.A.C. Orissa 4. Bokaro Dhanbad/ 178.93 5,873 De- 107,159 N.S. Steel City Bihar classified 5. Chandigarh Union 46.67 — 89,321 218,743 E.O. Territory 6. Durgapur Burdwan/ 154.20 — 41,696 206,638 N.A.A W.Bengal 7. Jamshedpur* Singhbhum 145.00 218,162 328,044 456,146 N.S. /Bihar 8. Rourkela Sundergar 121.73 — 90,287 172,502 N.A.C. h/Orissa

* New Towns commenced before Independence

Category II New Towns forming a part of other Urban Agglomerations S/No. Name of the District Area POPULATION Name of Urban Principal Town in Sq. the Kms. 1951 1961 1971 U.A. Status Activities (1971) ASSAM 1. New Bongaigaon Goalpara 4.79 – 7797 11043 Bongaigaon TC Refinery Rly. Colony UA and Petro Chemical Complex BIHAR 2. Barauni IOC Monghyr 2.53 – – 8348 Begusarai NS Oil Township. UA Refinery 3. Jaggannathnagar Ranchi 37.29 – – 55663 Ranchi UA NS Heavy Engg. 4. Bhuli Dhanbad 11.74 – – 20876 Dhanbad UA NS Miner's settlement 5. Kerkend Dhanbad 21.12 – 6498 51314 Dhanbad UA NS 6. Sindri Dhanbad 46.65 13045 41315 46385 NAA Fertilizer Dhanbad UA Factory 7. Dhanbad 16.40 – 15595 44675 Dhanbad UA NS Coal Mining 8. Tisra Dhanbad 14.02 – 7470 33891 Dhanbad UA NS " 9. Loyabad Dhanbad 7.82 – 11553 19287 Dhanbad UA NS " 10. Bhagatdih Dhanbad 7.09 – – 17465 Dhanbad UA NS " 11. Sijua Dhanbad 8.09 – 9927 16346 Dhanbad UA NS " 12. Pathardih Dhanbad 7.80 – – 9906 Dhanbad US NS Coal Washery 13. Chas Dhanbad 11.68 5873 De- 13152 Bokaro NS Trade and classified Steel City Commerce 14. Adityapur Singhbhum 49.82 – – 28226 Jamshedpur NAS Heavy & UA Medium Industry

S/No. Name of the Town District Area POPULATION Name of Urban Principal in Sq. 1951 1961 1971 the U.A. Statu Activities Kms. s (1971) 15. Bagbera Singhbhum 10.70 — — 28,053 Jamshedpur N.S. Medium & U.A. Light Industry 16. Kalimati Singhbhum 16.98 — — 15,720 -do- N.S -do- GUJRAT 17. Sardar Nagar Ahmedabad 2.48 — — 39,454 Ahmedabad NAC Residential U.A. 18. Danilimbda Ahmedabad 5.17 — — 20,621 -do- VP " 19. Odhav Ahmedabad 9.43 — — 11,174 -do- VP " KARNATAKA 20. HAL Sanitary Bangalore 27.53 — 28,362 33,985 Bangalore SB Industry- Board UA Residence 21. Devarajee- Bangalore 1.81 — 13,161 17,734 Bangalore TP " Vanahalli UA 22. HAL Township Bangalore 1.22 — — 15,164 Bangalore SA (Aeronautics) UA 23. Jalahalli Bangalore 0.80 — 13,376 12,533 -do- P Industry- Residence 24. HMT Township Bangalore 2.59 — — 11,154 -do- SA " (Machine- Tools) 25. ITI Notified Bangalore 1.68 — — 9,875 -do- NAC Telephone/ Area Committee Telephone (Dooravaninagar) Comn. 26. BEL Township Bangalore 2.85 — — 6,825 -do- SA Industry Res. - Electronics 27. Kadugondanahalli Bangalore 1.81 — 3,920 5,768 -do- P Industry- Res. 28. Ullal South 7.77 — 13,086 19,322 Mangalore TP Medium Ind. Canara UA Port 29. Padavu South 8.47 — 7,924 13,486 -do- TP Industry- Canara Res. CATEGORY : II (continued)

S/No. Name of the District Area POPULATION Name of Urban Principal Town in Sq. the U.A. Status Activities Kms (1971) 1951 1961 1971

Karnataka (contd.) 30. Kankanady South 2.90 — 6,574 8,916 Mangalore P Industry - Canara UA Residence 31. Derebail South 4.59 — — 8,224 - do - P " Canara MAHARASHTRA 32. Pimpri- Poona 64.65 9,5222 27,975 83,542 Poona UA M (Antibiotics) Chinehwad New Town- Ship 33. Dehu Road Poona 36.00 — — 24,709 - do - . Cantt. Residence Cantt. 34. Lohagaan Poona 36.83 — 5,155 12,501 - do - NS Medium Ind./Res. 35. Khadakvasla Poona 7.87 — 7,355 9,270 - do - NS Defence Academy 36. Dehu Poona 13.21 — 19,242 5,636 - do - NS Residential. Trade & Commerce 37. Gandhi Kolhapur 5.96 — 5,744 8,463 Kohlapur NS Residential Nagar UA MADHYA PRADESH 38. Govindpura Sehore 24.28 — 20,747 53,922 Bhopal UA NM Heavy (H.E.I.) Electricals 39. Ordnance Jabalpur 9.53 — 7,013 5,137 Murwara N.M. Factory UA Area Katni ORISSA 40. Burla Sambalpur 17.62 — 10,230 15,587 Sambalpur NAC Univ. Campus UA 41. Hirakud Sambalpur 12.95 — 8,593 15,040 - do- NAC Hydro-Elec. Project

S/No. Name of the District Area POPULATION Name of the Urban Principal Town in Sq. U.A. Status Activities Kms. 1951 1961 1971 (1971) RAJASTHAN 42. Mann Town Sawai 23.58 — — 22,179 Sawai NA Cement Madhopur Madhopur UA Heavy industry TAMILNADU 43. Naranammalpuram Tirunelveili 8.57 — — 10,487 Tirunelveli P Residential UA 44. Thalaiyuthu -do- 9.70 — — 5,042 Tirunelveli P Residential Sankarnagar UA 45. Avadi (Caruthi- Chingle-pet 25.62 — 13,050 77,413 Madras UA TS Heavy Ind. patti) 46. Ambattur Chingle-pet 35.42 — 11,128 45,586 -do- TS Medium Ind. 47. Annamalai Nagar South Arcot 4.95 — — 8,847 Chidambaram TS University UA U.P. 48. IIT, Kanpur Kanpur 4.22 — — 5,638 Kanpur UA Tech. Inst. WEST BENGAL — — 49. Ashok Nagar 24-Pgs. 7.50 — 38,250 41,916 Habra UA M Refugee Settlement 50. Kalyani Nadia 21.91 — 4,616 18,310 Calcutta UA NAA Univ., Cotton Mill, Satellite Town 51. New Barrackpur 24-Pgs. 2.90 — 20,871 32,512 Calcutta UA M Refugee colony 52. IIT, Kharagpur Kharagpur NA — 5,835 7,321 Kharagpur Tech. Inst. UA

CATEGORY -III Other than New Towns/New Town Urban Agglomeration of less than 100,000 Sl. Name of the District Area in POPULATION Urban Principal No. Town Sq.Kms. 1951 1961 1971 Status activities (1971) ASSAM 1. Duliajan Oil Lakhimpur 2.50 — — 11497 NS Oil Refinery Town 2. Namrup Lakhimpur 3.34 — — 7792 NS Fertilizer ANDHARA PRADESH 3. Sri Sailam Kurnool 5.96 — — 20311 NS Hydro-Electric Project Kurnool Plant across Township Krishna River about 105 Km. upstream Nagarjuna Sagar 4. Pochampad Nizamabad 2.79 — — 13346 NS Irrigation Project Right & Adilabad Project Flank & Left Flank colonies 5. Ramchandrapuram Medak 9.06 — — 11146 NS Factory of Township (BHEL) BHEL 6. Upper Sileru Vizag 3.32 — — 4901 Irrigation/ Project Power BIHAR 7. Dhanbad 5.89 — 8033 10163 NS Hydroelectric/ DVC Regional Hq. 8. Gumia U.A. Hazaribagh 65.57 — — 42721 NS Explosives 9. Patratu U.A. Hazaribagh 45.24 — — 46795 NS Thermal Power Plant 10. Chandrapura UA Hazaribagh 26.21 — — 17297 NS Thermal Power Station 11. Kiruburu 2.65 — 614 4675 Mining

CATEGORY-III (contd.) Sl. Name of the District Area in POPULATION Urban Principal No. Town Sq.Kms. Status activities (1971) 1951 1961 1971 GUJARAT 12. Vapi Valsad 12.27 — 11212 13888 N.P. 13. Kandla Kutch 2.97 — 9617 17995 NM Sea Port 14. Gandhi Nagar Gandhi 56.75 — — 24055 NM New Capital Nagar (State) 15. Fertilizer Vadodara 2.63 — — 5327 NM Fertilizer Nagar Colony 16. Jawahar Nagar Vadodara 9.63 — — 5710 NM Oil Refinery (Gujarat Refinery) 17. Ukai Surat 9.37 — 670 31234 Industry 18. Gandhi Nagar Kutch 12.98 5092 26514 38908 M Reugee Rehabilitation HARYANA — 19. Jagadhri Rly. Ambala 8.91 — — 7332 NAC Rly. workshop Colony 20. Ganaur Rohtak 9.06 — — 8399 NAC Industry 21. Tosham Hisar 2.59 — — 5039 NAC Industry, Trade & Commerce 22. Faridabad Gurgaon 10.36 8341 10857 19644 MC Rehabilitation Industry HIMACHAL PRADESH 23. Pandoh Mandi 0.58 — — 6048 NS Power KARNATAKA 24. Gokak Falls Belgaum 3.92 — — 9661 NAC Power Notified Area 25. Sh'ahabad ACC Gulbarga 7.85 — — 6249 NAC Cement & Engg. Cement and Works Facty. Engg. Works NA KERALA 26. Kalanassery Ernakulam 12.77 — — 17957 NM Machine Tools Factory 27. Hemambikanagar Palghat 3.99 — — 7032 NM Industry Trade 28. Kunna Mangalam Kozhikode 24.42 — — 21756 NM Engineering 29. Guruvayur Trichur 6.49 — — 15863 NM Residential Township

CATETORY-III (contd.) Sl. Name of the District Area in POPULATION Urban Principal No. Town Sq.Kms. Status activities (1971) 1951 1961 1971

MADHYA PRADESH 30. Rajhara Durg 23.89 — 23346 26657 Mining Jharandalli UA (Dalli Rajhara) 31. Korba U.A. Bilaspur 14.94 — 12424 32654 Thermal Power 32. Kymore UA Jabalpur 16.08 — 12319 14821 33. Gandhi Sagar Mandsaru 6.48 — 10852 3953 NM Hydroelectric Hydel Colony Station across Chambal 34. Nepa Nagar Khandwa 4.89 — 8780 15743 NM Paper Factory/ Factory Newsprint Township MAHARASHTRA 35. Khopoli New Kolaba 30.17 — 18152 M Alloy and Spl. Township Steels Company 36. Brajaraj Sambalpur 41.44 — 16196 31817 NAC Ceramics, Nagar Refractories, Paper. 37. Koraput 97.12 — 7461 21505 NAC Aeronautics 38. Sunabeda Koraput 76.48 — — 27980 NAC -do- 39. Paradip Cuttack 23.31 — — 6705 CT Port 40. Umarkot Koraput 25.90 — — 9826 NAC Industry 41. KavisurJya 13.47 — — 9500 NAC Residential Nagar PUNJAB 42. Nangal Hoshiar- 3.39 — 34372 21356 NAC Fertilizer Township pur 43. Naya Nangal -do- 14.92 — 7987 9474 NAC Medium Industry, Heavy Water Plant 44. Talwara -do- 6.35 — 17865 NAC Industry — Township 45. Rajpura Patiala 4.95 — 16714 25374 NAC Industry Township 46. Nilokheri Karnal 4.69 6287 8035 9357 NAC Rehabilitation

CATETORY-III (contd.) Sl. Name of the District Area in POPULATION Urban Principal No. Town Sq.Kms. 1951 1961 1971 Status activities (1971) TAMILNADU 47. Neyveli South Arcot 41.23 — 10296 58285 TS Lignite Mining 48. Highways Madurai 46.48 — — 6416 TS Highways Research UTTAR PRADESH 49. Bharat Saharanpur 26.94 — — 12094 NA Heavy Heavy Industry Electricals Ltd. Ranipur 50. Ordnance Meerut 2.69 — — 9026 NS Ordnance Factory Factory Murad Nagar 51. Vikasnagar Dehra Dun 1.40 — — 7066 MB Residential 52. Hastinapur Meerut 3.06 — — 8889 NA Light industry 53. Renukot Mirzapur 3.19 — — 10566 NA Aluminium Industry WEST BENGAL 54. Gayeshpur Nadia 1.43 — 10157 13082 NM Refugee Colony 55. Hindustan Burdwan 3.90 — — 6605 NM Cable Factory Cables Town 56. Farakka Murshidabad 3.70 — — 8096 NM Barrage Barrage Engineering 57. Sen-Raleigh Burdwan 5.90 — — 5786 NM Medium Township Industry 58. J.K. Nagar Burdwan 4.24 — — 6433 NM Aluminium, Township Coal 59. Kolaghat Midnapore 6.37 — — 13371 NM Electricity 60. Haldia Midnapore 21.59 — — 9968 NAA Oil Refinery, Port, Fertilizer Facty. Appendix - 4 : Basic information of the New Towns

1. Identification a) Name of the city : ROURKELA URBAN AGGLOMERATION b) District/State : Sundargarh/ ORISSA c) Area in square K.M. : 121.73 (1971)

2. Demographic Characteristics 1971 1961 a) Population Males 98667 58734 Females 73835 31553 Total 172502 90287 b) Literate Males 61824 32463 Females 30398 5261 Total 92222 39724 3. Occupational Structure a) Workers 57849 51327 i) Cultivators 492 746 ii) Agricultural Labourers 528 68 iii) Livestock, Forestry, Fishing 897 721 iv) Mining & Quarrying 216 va) Mfg., Processing, Servicing Household Industry 346 1175 vb) Mfg. Processing, Servicing, other than household 19320 17498 industry vi) Construction 777 5004 vii) Trade & Commerce 8533 3679 viii) Transport, Storage & Communication 7069 5351 ix) Other Services 19671 17085 x) Non-workers 114653 38960

4. Ratio between working & non-working population 1:1.98 1:0.76 Source: - District Census Handbook - Sundargarh District 1971 District Census Handbook - Sundargarh District 1961

— : 4.2 :— 1. Identification a) Name of the city : DURG - BHILAINAGAR URBAN AGGGLOMERATION b) District/State : Durg/ MADHYA PRADESH c) Area in square K.M. : 135.04 (1971)

2. Demographic Characteristics 1971 1961 a) Population Males 134087 83566 Females 111037 49664 Total 245124 133230 b) Literate Males 81813 51633 Females 43427 14228 Total 125240 65861 3. Occupational Structure a) Workers 75177 67649 i) Cultivators 1520 2097 ii) Agricultural Labourers 2478 683 iii) Livestock, Forestry, Fishing 1288 1703 iv) Mining & Quarrying 46 va) Mfg., Processing, Servicing Household Industry 1849 1831 vb) Mfg. Processing, Servicing, other than household 33993 29423 industry vi) Construction 3452 9315 vii) Trade & Commerce 10534 6411 viii) Transport, Storage & Communication 6067 4266 ix) Other Services 13950 11920 x) Non-workers 169947 65581

4. Ratio between working & non-working population 1:2.26 1:0.97 Source : - District Census Handbook - Durg District 1971 District Census Handbook - Durg District 1961

— : 4.3 :— 1. Identification a) Name of the city : DURGAPUR CITY b) District/State : Burdwan/WEST BENGAL c) Area in square K.M. : 154.00 (1971)

2. Demographic Characteristics 1971 1961 a) Population Males 117135 31174 Females 89503 10522 Total 206638 41696 b) Literate Males 75031 21057 Females 42275 5639 Total 117306 26696 3. Occupational Structure a) Workers 63870 26051 i) Cultivators 1517 — ii) Agricultural Labourers 3056 — iii) Livestock, Forestry, Fishing 715 5 iv) Mining & Quarrying 110 va) Mfg., Processing, Servicing Household Industry 969 5 vb) Mfg. Processing, Servicing, other than household 34801 15365 industry vi) Construction 2715 6231 vii) Trade & Commerce 5268 700 viii) Transport, Storage & Communication 2777 216 ix) Other Services 11942 3479 x) Non-workers. 142768 15645

4. Ratio between working & non-working population 1:2.24 1:0.60 Source : - District Census Handbook - Burdwan District 1971 District Census Handbook - Burdwan District 1961

— : 4.4 :— 1. Identification a) Name of the city : BOKARO STEEL/URBAN AGGLOMERATION b) District/State : Dhanbad/Bihar c) Area in square K.M. : 178.93 (1971)

2. Demographic Characteristics 1971 a) Population Males 64570 Females 42589 Total 107159 b) Literate Males 33085 Females 7060 Total 40145 3. Occupational Structure a) Workers 45812 i) Cultivators 6539 ii) Agricultural Labourers 3448 iii) Livestock, Forestry, Fishing 148 iv) Mining & Quarrying 201 va) Mfg., Processing, Servicing Household Industry 766 vb) Mfg. Processing, Servicing, other than 10626 household industry vi) Construction 14561 vii) Trade & Commerce 4398 viii) Transport, Storage & Communication 2005 ix) Other Services 3120 x) Non-workers 61347

4. Ratio between working & non-working population 1 : 1.34 Source : - District Census Handbook - 1971

— : 4.5 :— 1. Identification a) Name of the city : JAMSHEDPUR URBAN AGGLOMERATION b) District/State : Singhbhum /BIHAR c) Area in square K.M. : 145.00 (1971)

2. Demographic Characteristics 1971 1961 a) Population Males 254002 183941 Females 202144 144203 Total 456146 328044 b) Literate Males 166824 106510 Females 91360 53402 Total 258184 159912 3. Occupational Structure a) Workers 131599 99584 i) Cultivators 1784 680 ii) Agricultural Labourers 2818 201 iii) Livestock, Forestry, Fishing 798 966 iv) Mining & Quarrying 229 va) Mfg., Processing, Servicing Household 1527 1448 Industry vb) Mfg. Processing, Servicing, other than 74046 54155 household industry vi) Construction 5413 6888 vii) Trade & Commerce 16323 8270 viii) Transport, Storage & Communication 9787 5329 ix) Other Services 18874 21647 x) Non-workers 324547 203932

4. Ratio between working & non-working population 1:2.47 1:2.05 Source : - District Census Handbook - Singhbhum District 1971 District Census Handbook - Singhbhum District 1961

— : 4.6 :— 1. Identification a) Name of the city : BHUBANESWAR CITY b) District/State : Puri/ORISSA c) Area in square K.M. : 65.03 (1971)

2. Demographic Characteristics 1971 1961 a) Population Males 61190 22580 Females 44301 15631 Total 105491 38211 b) Literate Males 43327 17957 Females 22325 6404 Total 65652 24361 3. Occupational Structure a) Workers 33818 14386 i) Cultivators 1420 606 ii) Agricultural Labourers 2185 212 iii) Livestock, Forestry, Fishing 1357 289 iv) Mining & Quarrying 156 va) Mfg., Processing, Servicing Household 415 387 Industry vb) Mfg. Processing, Servicing, other than 1878 461 household industry vi) Construction 1742 882 vii) Trade & Commerce 5636 1143 viii) Transport, Storage & Communication 2558 788 ix) Other Services 16471 9618 x) Non-workers 71673 23825

4. Ratio between working & non-working population 1:2.12 1:1.66 Source : - District Census Handbook - Puri District 1971 District Census Handbook - Puri District 1961

Age Sex Break down of the New Towns - 1971

1. Rourkela U. A. Age Group Persons Males Females Total 172502 98667 73835 0 - 14 69200 36111 33089 15 - 19 11777 6486 5291 20 - 24 18287 8975 9312 25 - 29 22171 12322 9849 30 - 39 31203 21847 9356 40 - 49 11675 8591 3084 50 - 59 4578 2680 1898 60 + 3547 1620 1927 Age not stated 64 35 29

2. Durg - Bhilainagar U. A. Age Group Persons Males Females Total 245124 134087 111037 0 - 14 103253 53924 49329 15 - 19 16585 9265 7320 20 - 24 21663 9700 11963 25 - 29 26438 12389 14049 30 - 39 44385 28764 15621 40 - 49 18815 12901 5914 50 - 59 7886 4386 3500 60 + 6019 2712 3307 Age not stated 80 46 34

3. Durgapur City Age Group Persons Males Females Total 206638 117135 89503 0 - 14 80840 42131 38719 15 - 19 14836 8058 6778 20 - 24 20820 9423 11397 25 - 29 26903 15966 10937 30 - 39 37761 26814 10947 40 - 49 12447 8697 3750 50 - 59 6375 3006 3369 60 + 6651 3045 3606 Age not stated 5 5 — 4. Bokaro Steel City U.A. Age Group Persons Males Females Total 107159 64570 42589 0 - 14 37003 19277 17726 15 - 19 9701 5371 4330 20 - 24 14196 8874 5322 25 - 29 15007 10251 4756 30 - 39 17937 12700 5237 40 - 49 7251 4808 2443 50 - 59 3408 1953 1455 60 + 2656 1336 1320 Age not Stated - - -

5. Jamshedpur U.A. Age Group Persons Males Females Total 456146 254002 202144 0 - 14 177363 92573 84790 15 - 19 43397 24424 18973 20 - 24 44131 24688 19443 25 - 29 42718 23641 19077 30 - 39 66164 39183 26981 40 - 49 41589 25234 16355 50 - 59 24367 15356 9011 60 + 16398 8890 7508 Age not stated 19 13 6 6. Bhubaneswar City Age Group Persons Males Females Total 105491 61190 44301 0 - 14 40824 21449 19375 15 - 19 10194 6174 4020 20 - 24 11581 7181 4400 25 - 29 10355 6197 4158 30 - 39 15591 9790 5801 40 - 49 8660 5765 2895 50 - 59 4584 2859 1725 60 + 3660 1753 1907 Age not stated 40 22 20

— : 5.1 : — Appendix : 5 Basic Information on marginal settlements contained within New Towns Merginal Settlements - Rourkela

Jalda Bandomunda Jhirpani Lukakera Udutum Durgapur Mahulpali 1971 1971 1971 1971 1971 1971 1971 Area.in Sq.-K.M. 6.18 6.02KM2 3.71 KM2 3.07 KM2 4.69 KM2 6.50 KM2 4.08 KM2 No. of occupied houses 1406 3073 135 132 1723 2903 3490 No. of households 1540 3135 138 138 1787 2935 3653 Total population 7169 12256 513 853 5776 12196 14600 Males 3675 7056 302 447 3491 7066 8629 Females 3494 5200 211 406 2285 5130 5971 Scheduled Caste 638 858 95 88 417 1139 363 Scheduled Tribe 4237 1408 135 311 110 1109 954 Literate & educated 1942 7349 119 127 2502 4556 6630 Total Workers 2045 3959 236 203 2363 4549 5598 I) Cultivators 155 18 — 50 13 15 32 II) Agricultural Labourers 170 31 1 — 12 96 112 III) Livestock, Fishing etc. 28 1 71 7 26 47 65 IV) Mining & Quarrying 56 — — — — 25 6 Va) Manufacturing & 13 39 3 — 10 67 80 Processing Household Industry Vb) Manufacturing & 1178 110 20 78 354 577 1149 Processing other than household industry VI) Construction 20 14 5 1 39 113 165 VII) Trade & Commerce 58 292 13 9 183 1256 1755 VIII) Transport & 16 3102 19 2 230 851 663 Communication IX) Other Services 351 351 104 56 1496 1403 1649 X)Non-workers 5124 8300 277 650 3392 7681 7563 Source: District Census Handbook - Sundergarh District - 1971.

— : 5.2 : — Merginal Settlements - Bhilai

Jamul Charode Janjgiri Kumhari Supela, Camp I, Khursipar Chaowni Camp II Colony Kohka, Naharpare Bhila- igaon 1971 1961 1971 1961 1971 1961 1971 1961 1971 1971 1971 Area in acres 2916 2961 1298 1297.5 1732 2183.8 3200 3481.3 No. of occupied 631 277 2458 844 224 237 1041 1081 2672 8891 7500 houses No. of households 1922 310 2500 900 257 237 1178 1137 3644 9329 7809 Total population 4783 1179 10188 3025 1454 1157 4800 4182 14430 33465 29438 Males 2624 645 5527 1821 758 584 2595 2395 7816 18944 16823 Females 2159 534 4661 1204 696 583 2205 1787 6614 14521 12615 Scheduled Caste 253 134 586 208 18 14 1055 222 1404 3690 2080 Scheduled Tribe 136 32 175 27 54 43 108 70 518 588 297 Literate & 1975 327 5125 1279 421 157 1357 1436 7093 12397 12537 educated Total Workers 1852 709 3147 1608 681 666 2048 2274 4589 111249 9373 I) Cultivators 306 364 162 236 420 527 421 763 74 17 12 II) Agricultural 295 91 97 110 131 74 167 184 225 168 23 Labourers III) Livestock, 8 40 25 11 8 2 12 13 45 144 60 Fishing etc. IV) Mining & 2 — 1 — — — — — 3 — 1 Quarrying Va) Manufacturing 74 27 26 35 18 28 31 63 89 310 221 & Processing Household Industry Vb) Manufacturing 1013 16 69 7 44 — 502 7 1342 5964 5502 & Processing other than household industry VI) Construction 2 6 109 387 1 13 16 400 241 553 636 VII) Trade & 39 27 84 30 14 3 69 33 565 2057 1286 Commerce VIII) Transport & 12 — 2421 675 7 9 16 684 924 653 748 Communication IX) Other 101 138 153 117 38 10 814 127 1081 1258 884 Services X) Non-workers 2931 470 7041 1417 773 491 2752 1908 9841 22341 20065 Source: District Census Handbook - Durg District 1971, 1961. — : 5.3 : — Marginal Settlements - Durgapur Bhiringi- Amrai Gopalmath Phuljhor- Upper & Benachiti Mamra Lower Saarb- hamgo Karanga- para 1971 1961 1971 1961 1971 1961 1971 1961 1971 Area in acres 2550.21 1218.33 481.80 1641.97 No. of occupied 2039 1907 667 656 1445 904 637 326 1517 houses No. of households 2213 1952 703 574 1507 904 692 271 1628 Total population 10931 8425 3700 3127 7862 5104 2878 842 8452 Males 6732 5587 1931 1506 4219 2725 1629 447 4718 Females 4199 2838 1769 1621 3643 2379 1249 395 3734 Scheduled Caste 1204 1113 1174 954 2133 1653 441 418 645 Scheduled Tribe 53 45 2 — 149 — 35 10 115 Literate & educated 6306 4539 1418 823 3177 1840 1144 257 3146 Total Workers 3891 3909 797 905 2110 1502 929 367 2382 I) Cultivators 44 74 149 309 130 86 46 76 123 II) Agricultural 236 160 222 326 100 7 149 228 169 Labourers III) Livestock, 4 32 4 40 7 23 1 — 19 Fishing etc. IV) Mining & 2 — 1 — 15 — — — 6 Quarrying Va) Manufacturing & 254 19 28 10 57 26 33 — 53 Processing Household Industry Vb) Manufacturing & 1404 1324 301 125 1368 823 225 30 792 Processing other than household industry VI) Construction 39 140 7 2 39 55 10 7 59 VII) Trade & 714 1234 17 42 115 144 356 5 565 Commerce VIII) Transport & 100 189 5 4 47 76 10 2 205 Communication IX) Other Services 976 737 63 47 232 262 99 19 391 X) Non-workers 7030 4516 2903 2222 5752 3602 1949 475 6070 Source: District Census Handbook - Burdwan District 1971, 1961. — : 5.4 : — Marginal Settlements - Bokaro

Narayanpur Telidip Khamar-bandi Tantri Jena Tenr Balidih 1971 1961 1971 1961 1971 1961 1971 1961 1971 1961 1971 1961 Area in acres 759.46 1827.28 191.98 474.41 892.85 2206.31 787.61 1946.25 268.58 663.69 474.62 1172 No. of occupied houses 472 366 201 122 463 362 477 121 267 85 243 106 No. of households 475 369 201 122 486 408 507 272 288 85 313 106 Total population 2578 2186 1328 688 2564 2022 3386 1514 1438 475 2248 625 Males 1337 1086 697 336 1444 1021 1799 760 783 234 1120 323 Females 1241 1100 631 352 1120 1001 1587 754 655 241 1068 302 Scheduled Caste 730 679 428 141 837 808 187 55 148 158 458 — Scheduled Tribe 80 53 — — — — 932 690 364 292 901 625 Literate & educated 285 339 143 71 447 347 516 128 349 20 375 32 Total Workers 733 1067 314 205 886 1031 949 487 483 141 616 193 I) Cultivators 415 797 226 123 368 705 520 345 205 114 189 181 II) Agricultural 239 175 49 11 484 225 248 8 57 19 252 6 Labourers III) Livestock, — 68 1 44 — 51 — 66 3 — 4 5 Fishing etc. IV) Mining & Quarrying 35 1 5 4 Va) Manufacturing & 6 4 8 9 1 14 11 30 44 1 Processing Household Industry Vb) Manufacturing & 8 — 2 — 6 — 69 2 30 — 102 — Processing other than household industry VI) Construction — 16 — 2 — — 28 5 7 — 11 — VII) Trade & Commerce 18 1 — 2 3 10 22 5 78 1 11 — VIII) Transport & — — — — 1 — 14 3 23 — 3 Communication IX) Other Services 12 6 27 14 18 26 33 23 36 7 43 1 X) Non-workers 1845 1119 1014 483 1678 991 2437 1027 955 334 1632 432

Source : District Census Handbook - Dhanbad District - 1971, 1961 District Census Handbook - - 1971, 1961. APPENDIX — 6 - MIGRATION TO THE NEW TOWNS 6.1 : Distribution of migrants level in the new towns - State Wise Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 982 987 895 990 939 990 India Andhra 30 99 3 13 34 45 Pradesh Assam 2 1 4 2 2 1 Bihar 235 57 167 656 497 16 Gujarat 5 9 2 4 9 1 Haryana 7 5 — 5 2 — Himachal 1 1 — — — — Pradesh Jammu & — 1 — 1 1 — Kashmir Kerala 25 53 4 14 11 3 Madhya 30 406 4 33 32 2 Pradesh Maharashtra 6 94 4 7 8 2 Mysore 3 5 1 2 2 1 Orissa 472 45 11 59 73 869 Punjab 18 31 13 20 39 5 Rajasthan 5 12 3 5 12 1 Tamilnadu 7 I2 4 3 13 2 Tripura — — 2 1 — — Uttar 36 108 38 59 71 5 Pradesh West Bengal 94 38 632 101 129 39 Delhi 5 8 2 5 3 3 Nepal 7 2 5 6 7 2 Pakistan 8 8 99 4 52 5 Source : Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.2 : Distribution of migrants by educational level in the New Towns

Name of the city/Urban Total Il- Below SF/HS Technica1 Graduate Post Engine- Medicine Agglomeration Migrants letrate SF/HS diploma degree Graduate ering other than degree technical 1. Rourkela All occupation 1000 361 432 150 6 30 5 10 1 U.S. Non-workers 1000 435 451 96 1 12 2 1 — 2. Durg - All occupation 1000 302 372 237 8 46 10 19 3 Bhilainagar Non-workers 1000 482 394 106 1 12 3 1 — U.A. 3. Durgapur All occupation 1000 282 457 217 5 43 5 8 1 City Non-workers 1000 358 477 191 1 20 2 1 — 4. Bokaro All occupation 1000 527 310 113 7 21 5 15 — Steel City Non-workers 1000 642 278 60 1 14 3 1 — U.A. 5. Jamshedpur All occupation 1000 377 397 166 5 33 7 9 2 U.A. Non-workers 1000 457 410 106 1 20 3 1 1 6. All occupation 1000 273 445 176 5 65 17 6 2 Bhubaneswar Non-workers 1000 333 487 135 1 34 5 1 1 City Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 1 : Distribution of migrants according to different educational level in the new towns - State Wise ILLITERATE Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 983 987 934 992 969 991 India Andhra 26 133 16 27 111 Pradesh 4 Assam 1 1 2 1 1 — Bihar 276 45 242 708 563 13 Gujarat 2 1 2 2 5 1 Haryana 4 1 — 4 2 — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala 8 4 2 4 2 1 Madhya 56 499 1 15 59 2 Pradesh Maharashtra 4 50 3 5 3 1 Mysore 1 2 1 1 1 — Orissa 500 75 12 68 96 833 Punjab 15 34 15 13 37 3 Rajasthan 4 3 2 3 10 — Tamilnadu 5 9 2 1 8 1 Tripura — — — 1 — — Uttar 34 114 69 47 68 2 Pradesh West Bengal 46 14 574 99 85 20 Delhi 2 2 1 2 1 2

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 2 : Distribution of migrants in different educational level in the new towns - State Wise Below SF/H.S (School Final/Higher Secondary) Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 984 979 884 989 929 991 India Andhra 30 100 2 10 40 20 Pradesh Assam 2 2 3 1 2 1 Bihar 225 69 157 623 468 12 Gujarat 6 13 3 5 12 1 Haryana 10 4 — 8 3 — Himachal — 1 — — — — Pradesh Jammu & — 1 — — 1 — Kashmir Kerala 12 41 3 13 8 1 Madhya 16 363 2 42 17 1 Pradesh Maharashtra 5 93 3 7 8 1 Mysore 2 3 1 2 1 1 Orissa 506 50 11 50 70 902 Punjab 19 30 15 31 44 7 Rajasthan 6 19 4 8 15 2 Tamilnadu 7 15 4 4 11 1 Tripura — — — 2 — — Uttar 34 139 27 79 82 5 Pradesh West Bengal 98 29 642 96 143 32 Delhi 4 4 1 5 2 3

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971 6.3. 3 : Distribution of migrants in different educational level in the new towns - State Wise SF/H.S. Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 979 986 863 982 903 990 India Andhra 36 47 1 9 34 17 Pradesh Assam 5 3 7 5 2 2 Bihar 191 63 108 562 449 19 Gujarat 8 8 1 10 11 — Haryana 7 7 — 5 2 1 Himachal 1 3 — — — — Pradesh Jammu & — 1 — 1 1 — Kashmir Kerala 92 156 8 65 32 8 Madhya 13 323 4 54 10 4 Pradesh Maharashtra 12 113 3 14 12 3 Mysore 5 5 1 6 4 2 Orissa 368 24 7 38 43 879 Punjab 20 30 8 26 36 4 Rajasthan 6 12 3 4 8 — Tamilnadu 9 14 3 10 20 2 Tripura 1 — — 3 1 — Uttar 39 98 18 65 55 3 Pradesh West Bengal 156 63 683 99 175 39 Delhi 10 13 2 7 5 4

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 4 : Distribution of migrants in different educational level in the new towns - State Wise Technical diploma or certificate not equal to degree Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 981 963 935 990 940 986 India Andhra 71 73 14 20 51 28 Pradesh Assam — — 14 10 4 — Bihar 128 55 101 576 302 — Gujarat 13 27 22 — 17 14 Haryana 6 9 — — — — Himachal — — — — — — Pradesh Jammu & — — — — 4 — Kashmir Kerala 122 109 36 51 76 — Madhya 6 245 29 101 4 — Pradesh Maharashtra 19 73 7 10 34 — Mysore 26 45 7 — 13 — Orissa 308 55 7 71 30 887 Punjab 45 45 22 10 43 — Rajasthan — 18 — — 9 — Tamilnadu 13 18 22 10 38 — Tripura — — — 10 — — Uttar 51 91 58 — 64 — Pradesh West Bengal 173 73 589 111 238 56 Delhi — 27 7 10 9 —

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 5 : Distribution of migrants in different educational level in the new towns - State Wise Technical degree - Engineering & Technology Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 948 985 935 990 943 1000 India Andhra 52 69 32 20 41 — Pradesh Assam 4 — 18 — 5 22 Bihar 180 88 143 403 298 33 Gujarat 12 12 9 5 10 — Haryana — 12 9 — 10 — Himachal — — — — — — Pradesh Jammu & — 4 — 5 3 — Kashmir Kerala 44 15 5 — 36 — Madhya 56 238 32 164 31 — Pradesh Maharashtra 32 104 18 10 57 22 Mysore 20 46 37 15 51 — Orissa 260 42 28 90 23 859 Punjab 32 38 5 10 23 — Rajasthan 12 19 18 20 15 — Tamilnadu 40 12 23 15 62 — Tripura — — — — — — Uttar 40 77 65 40 51 11 Pradesh West Bengal 132 115 474 164 201 43 Delhi 32 50 18 15 20 11

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 6 : Distribution of migrants in different educational level in the new towns - State Wise Technical degree - Medicine Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 885 951 961 916 886 1000 India Andhra — 24 — — 25 — Pradesh Assam — — — — — — Bihar 115 49 77 583 380 — Gujarat — — — — 51 — Haryana — — — — — — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala — — — — 13 — Madhya — 415 38 166 13 — Pradesh Maharashtra — 122 — 83 51 — Mysore 38 — — — 13 — Orissa 385 49 — — 51 871 Punjab — — — — 38 — Rajasthan — 24 — — — — Tamilnadu — 24 — 83 38 — Tripura — — — — — — Uttar 154 73 38 — 51 97 Pradesh West Bengal 115 146 769 — 114 — Delhi 77 24 38 — — 32

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3. 7 : Distribution of migrants in different educational level in the new towns - State Wise Graduate degree other than Technical degree Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 migrants Resided in 970 992 882 993 899 986 India Andhra 41 2 3 26 24 Pradesh 5 Assam 7 — 3 3 2 2 Bihar 155 3 86 552 437 34 Gujarat 4 — — 7 10 2 Haryana 8 — — — 1 1 Himachal 4 — — — 1 — Pradesh Jammu & 1 — — — 4 — Kashmir Kerala 47 — 8 17 25 5 Madhya 18 27 11 76 10 3 Pradesh Maharashtra 11 8 5 10 28 2 Mysore 16 — 2 3 9 2 Orissa 287 3 7 55 33 797 Punjab 10 — 8 14 22 4 Rajasthan 3 2 5 17 6 1 Tamilnadu 16 2 6 — 31 5 Tripura 1 — — 3 — — Uttar 69 5 32 48 47 3 Pradesh West Bengal 243 10 693 151 185 91 Delhi 26 2 9 31 8 5

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.3.8 : Distribution of migrants in different educational level in the new towns - State Wise Post Graduate degree other than technical degree Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 1000 1000 933 1000 915 984 India Andhra 18 36 37 — 13 24 Pradesh Assam 9 — — — 3 — Bihar 159 36 164 606 476 40 Gujarat — — 7 — — — Haryana — — 7 16 — — Himachal — — — — 6 — Pradesh Jammu & — 7 — — 4 Kashmir — Kerala 18 50 15 — 32 4 Madhya 26 571 30 82 19 4 Pradesh Maharashtra 9 64 37 — 22 12 Mysore 9 7 — — 13 12 Orissa 460 14 — 33 13 761 Punjab 18 7 22 16 19 12 Rajasthan 9 21 15 — 3 4 Tamilnadu 9 7 7 — 16 8 Tripura — — — — — — Uttar 71 100 104 82 117 44 Pradesh West Bengal 150 36 470 131 148 49 Delhi 35 43 15 16 16 4

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.4 : Distribution of migrants classified by place of last residence : Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total Migrants 1000 1000 1000 1000 1000 1000 Last Within the district of 94 134 127 136 235 reside enumeration d Within the state of 286 217 387 249 318 in enumeration Rural In other states of 290 154 166 274 51 areas enumeration Total 670 505 680 659 605 Last Within the distt. of 14 88 38 56 50 reside enumeration d Within the state of 87 286 112 90 275 in enumeration Urban In other states of 228 121 170 195 70 areas enumeration Total 330 495 320 341 395

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.5 : Distribution of migrant workers according to occupational categories in the New Towns New Towns. Total I) II) III) IV) Va) Vb) VI) VII) VIII) IX) Workers Culti- Agr. Live Mining & Mfg. Other Construction Trade & Transport Other vators Labour stock Quarrying & than Commerce Services Proc. H/H H/H Ind. Ind. Rourkela U.A. 1000 4 4 16 3 6 338 13 146 125 345 Durg - 1000 11 28 14 1 21 477 47 133 81 187 Bhilainagar U.A. Durgapur City 1000 4 18 9 1 12 578 49 90 47 192 Bokaro Steel 1000 28 16 3 2 16 278 425 112 49 71 City U.A. Jamshedpur U.A. 1000 5 13 6 2 10 567 37 127 81 152 Bhubaneswar City 1000 7 25 44 3 11 57 51 177 85 539

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.1 : Distribution of migrants workers according to occupational categories in the New Towns - State Wise I - Cultivators Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 977 1000 977 1000 988 1000 India Andhra — 6 — — — — Pradesh Assam — — — — — — Bihar 250 6 — 926 869 — Gujarat — 13 — — 12 — Haryana — — — — — — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala — — — — — — Madhya 23 918 — — — — Pradesh Maharashtra 23 19 — — — — Mysore — — — — — — Orissa 682 6 — — 36 923 Punjab — — — — — — Rajasthan — 6 — — — — Tamilnadu — — — — — — Tripura — — — — — — Uttar — 25 45 5 24 — Pradesh West Bengal — — 932 69 48 77 Delhi — — — — — —

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.2 : Distribution of migrants workers according to occupational categories in the New Towns - State Wise II - Agricultural Labourers Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 998 1000 925 1000 992 1000 India Andhra — 16 — — — 79 Pradesh Assam — — — — — — Bihar 378 8 215 935 776 7 Gujarat — — — — — — Haryana — — — — — — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala — 3 — — — — Madhya 22 850 — — 8 — Pradesh Maharashtra — 18 — — — — Mysore — — — — — — Orissa 556 75 5 — 78 906 Punjab — 8 — — 4 — Rajasthan — — 11 — — — Tamilnadu — — — — — — Tripura — — — — — — Uttar — 21 11 9 37 — Pradesh West Bengal 22 3 682 56 90 7 Delhi — — — — — —

Source: Migration Tables - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.3 : Distribution of migrant workers according to occupational categories in the New Towns - State Wise III - Livestook, Forestry, Fishing, Hunting & Plantations Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrant Resided in 994 990 860 1000 962 988 India Andhra 6 26 — — — 33 Pradesh Assam 6 — — — — — Bihar 407 36 333 810 670 4 Gujarat — 5 — — — — Haryana — 5 — — — — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala — 10 — — — 4 Madhya 11 699 — 48 9 — Pradesh Maharashtra — 56 — — 9 — Mysore — — — — — — Orissa 452 66 22 — 85 927 Punjab 6 55 — — — — Rajasthan — — — — 9 — Tamilnadu 11 — — — 9 — Tripura — — — — — — Uttar 40 71 11 — 85 — Pradesh West Bengal 56 10 495 142 85 16 Delhi — — — — — 4

Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.4 : Distribution of migrant workers according to occupational categories in the New Towns - State Wise IV - Mining and Quarrying Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 1000 1000 1000 923 1000 1000 India Andhra 33 29 — — — — Pradesh Assam — — — — — — Bihar 200 — 231 563 771 — Gujarat — — — — — — Haryana — — — — — — Himachal — — — — — — Pradesh Jammu & — 143 — — — — Kashmir Kerala — — — — — — Madhya 86 — 62 — — Pradesh 429 Maharashtra — — — — — — Mysore — — — — — — Orissa 629 — — 62 29 895 Punjab — 143 77 — 29 — Rajasthan — — — — — — Tamilnadu — 286 — — — — Tripura — — — — — — Uttar — — — 250 29 — Pradesh West Bengal 57 — 615 62 143 105 Delhi — — — — — — Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.5 : V — Mfg. Processing, Servicing and repairs - House-hold industry Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 1000 998 851 991 936 953 India Andhra — 78 — — 5 78 Pradesh Assam — 3 339 — — — Bihar 453 37 — 739 546 — Gujarat — 10 — 9 37 — Haryana 16 3 — — 5 — Himachal — — — — — — Pradesh Jammu & — — — — — — Kashmir Kerala 31 44 8 9 — 16 Madhya 31 449 — 27 5 — Pradesh Maharashtra — 230 — — 11 — Mysore — 10 — — — — Orissa 203 14 — 9 59 813 Punjab 47 14 8 — 21 — Rajasthan 16 7 16 — 27 — Tamilnadu 31 3 — — 11 — Tripura — — — 18 — — Uttar 63 74 16 54 59 — Pradesh West Bengal 109 14 463 126 150 47 Delhi — 3 — — — — Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971

6.6.6 : VI — Mfg. Processing, Servicing and repairs - Other than House- hold industry Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 977 986 885 990 924 978 India Andhra 29 107 3 8 38 56 Pradesh Assam 3 2 3 3 2 — Bihar 196 89 138 644 456 12 Gujarat 6 12 2 1 8 3 Haryana 3 3 1 2 1 — Himachal 2 2 — — — 3 Pradesh Jammu & — 1 — 3 1 — Kashmir Kerala 38 95 7 30 16 6 Madhya 22 258 6 49 41 6 Pradesh Maharashtra 5 87 3 6 8 3 Mysore 4 8 1 4 3 — Orissa 466 48 16 38 81 488 Punjab 23 45 15 16 56 12 Rajasthan 2 5 3 5 2 3 Tamilnadu 8 13 4 6 15 3 Tripura 1 — 2 1 1 3 Uttar 35 149 54 71 77 6 Pradesh West Bengal 128 52 625 99 112 56 Delhi 9 11 1 4 3 3 Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971.

6.6.7 : VII — Construction Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 967 992 849 987 970 986 India Andhra 47 88 4 25 10 76 Pradesh Assam — — 4 1 1 3 Bihar 313 72 165 544 631 41 Gujarat — 5 — 4 3 — Haryana 7 3 — 2 1 — Himachal — 3 — — — — Pradesh Jammu & — — — — — — Kashmir Kerala 27 23 2 17 3 — Madhya 40 429 2 32 27 — Pradesh Maharashtra 13 62 2 8 3 — Mysore — — — 1 — — Orissa 400 82 20 122 96 852 Punjab 7 29 — 32 21 3 Rajasthan 7 5 — 3 7 — Tamilnadu 13 9 2 2 3 — Tripura — — 2 — — — Uttar 33 146 40 88 71 — Pradesh West Bengal 60 26 606 102 91 10 Delhi — 11 — 3 — — Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971.

6.6.8 : VIII — Trade & Commerce Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 980 965 838 983 911 987 India Andhra 16 64 2 5 12 45 Pradesh Assam 2 1 1 — 1 1 Bihar 41 287 34 246 641 426 Gujarat — 9 15 — 8 17 Haryana — 36 15 1 18 12 Himachal — 1 1 — 1 — Pradesh Jammu & — 1 1 — 1 — Kashmir Kerala 14 29 — 20 7 7 Madhya 28 381 — 7 18 5 Pradesh Maharashtra 4 126 2 4 7 3 Mysore 3 1 — 4 7 1 Orissa 357 36 4 37 58 773 Punjab 23 25 6 17 26 9 Rajasthan 19 56 21 14 70 5 Tamilnadu 7 31 5 7 8 5 Uttar 1 — 4 — — — Pradesh West Bengal 10 93 28 501 99 134 Delhi — 6 — 3 1 4 Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971.

6.6.9 : IX — Transport, Storage & Communication Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 982 986 910 991 953 987 India Andhra 55 83 2 9 46 208 Pradesh Assam 1 2 — — 1 — Bihar 445 34 417 569 513 15 Gujarat — 1 — 3 — — Haryana 1 1 — 3 1 6 Himachal 1 2 — — — — Pradesh Jammu & — 1 — — — — Kashmir Kerala 7 33 — 6 2 — Madhya 35 506 — 18 — 2 Pradesh Maharashtra 2 76 — 6 50 — Mysore — 4 — 3 1 2 Orissa 282 66 13 183 95 697 Punjab 18 35 27 12 30 23 Rajasthan 2 1 2 — 8 — Tamilnadu 2 5 — — 4 2 Tripura — — — — — — Uttar 28 93 54 90 53 — Pradesh West Bengal 102 37 395 87 149 32 Delhi — 7 — — — 2 Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971.

6.6.10 : X — Other Services Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Bhilainagar Steel U.A. U.A. City City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrants Resided in 976 983 909 983 946 991 India Andhra 14 116 4 8 13 29 Pradesh Assam 2 2 1 2 3 2 Bihar 198 27 224 733 525 14 Gujarat 3 1 3 4 3 1 Haryana 4 — 1 4 1 — Himachal — — 1 — — — Pradesh Jammu & — — — — — — Kashmir Kerala 39 29 8 10 19 3 Madhya 52 562 5 14 38 1 Pradesh Maharashtra 5 68 2 4 9 2 Mysore 3 1 3 — 2 2 Orissa 528 51 6 27 75 897 Punjab 7 8 7 4 15 2 Rajasthan 1 7 2 10 5 — Tamilnadu 6 9 5 2 — 2 Tripura — — 1 6 — — Uttar 32 72 44 46 79 6 Pradesh West Bengal 73 23 587 99 161 27 Delhi 3 5 8 8 1 2 Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971. 6.7 : Distribution of of migrants by age - sex groups in the New Towns Age - Sex Rourkela Durg- Durgapur Bokaro Jamshedpur Bhubaneswar Group U.A. Bhilainagar City Steel U.A. City U.A. City U.A. Total 1000 1000 1000 1000 1000 1000 Migrantss M 589 549 571 592 566 588 Total F 411 451 429 408 434 412 M 110 120 108 115 74 124 0 - 14 F 96 110 100 94 65 101 M 47 45 43 47 37 69 15 - 19 F 39 37 42 50 31 43 M 69 50 58 101 60 88 20- 24 F 73 67 75 71 55 58 M 332 297 330 309 298 263 25 - 49 F 174 200 169 158 219 165 M 31 36 31 20 96 45 50 + F 29 37 44 35 64 44 Age not M — — — — — — stated F — — — — — — Source: Migration Table - West Bengal, Bihar, Orissa and M.P. census of India - 1971. APEENDIX – 7.1 : Items and costs of development in the Steel Towns at the 1-million-ton stage Sl.N Particulars & DURGAPUR BHILAI ROURKELA o. Items Total Remarks Total Remarks Total Remarks Cost in Cost in Cost in Million Million Million Rs. Rs. Rs. 1 2 3 4 5 6 7 8 1 i) Land 10.55 Land Land Note Land Acquisition acquired acquired availabl acquired in-cluding 10462 acres 5190 acres e 11173.19 Compensation acres ii) Initial 2.67 Cost per 4.25 Cost per Survey and acre Rs. acre Rs. development 970/- 860 2. External services Development: i) Transportatio 11.66 10.91 7.65 n, Roads and Bridges ii) Water supply 10.57 (including pumping and purification) iii) Sewerage 8.37 14.87 12.13 (including disposal works) iv) Drainage 1.89 7.95 v) Electrificati 8.18 7.26 7.90 on including power supply vi) Horticulture 1.60 * 0.12 and Land scaping 3. Residential 75.19 7498 units 83.61 7547 units 69.77 7546 Building with an with an units aggregate aggregate with an plinth area plinth aggregat of 5.03 area of e plinth million 4.62 area of sft. miln.sft. 4.8 Average Average miln. plinth area plinth sft. rate = area rate Average Rs. 14.92 = Rs. 18/- plinth per sft. per sft. area rate = Rs. 14.54 per sft.

1 2 3 4 5 6 7 8 4. Non-Residential Buildings: i) Medical 3.83 6.50 4.50 ii) Educational 2.41 2.48 2.27 iii) Recreational 0.98 1.66 0.48 iv) Shopping 0.90 1.68 1.75 v) Administrative 0.81 vi) Guest House 0.48 12.75 0.065 vii) Hostels 0.25 2.20 viii) Misc-Cinema, Fire 0.85 — Station, Pavilion 5. Fees paid to 0.51 * 0.36 Architects and Town Planners 6. Works Chargeable to 4.10 - - Plant 7. Temporary Works 6.45 - 7.70 8. Stores, Vehicles, 2.31 * 4.50 Tools and Plants 9. Maintenance during 4.11 * 3.70 constn. 10 Establishments 9.46 * - . 11 Recoveries 10.89 - - . 12 Total area developed 2871 3482 1016 . acres acres acres Development cost per 14,573 9,500 35,000 acre (excluding cost of land) * Separate booking not available

1 2 3 4 5 6 7 8 13 Densities:- . i) Gross - 6.7 7.68 Houses per acre ii) Net - Houses 10.0 excluding 15.00 per acre area covered by Road, Park & unbuildabl e area. 14 %age cost of 11.6 14.7% 16.00% . Non-residential % building to that of residential

Sl. Particulars Durgapur Bhilai Rourkela No. & Items Plinth area No. Percentage Plinth No. Percen- Plinth No. Percent in sft. of to total area in of tage to area of age to units sft. unit total in units total s sft. 15. Catego- Above 300 2 0.03 Type ries of sft. I Upto 2440 3 0.030 houses From 2500 to 30 0.40 380 1371 18 1500 111 1.470 built 3000 sft. From 2000 to - II 381 to 1400 65 0.860 2500 sft. From 1500 to 186 2.84 500 2583 48 1320 273 3.610 2000 sft. From 1000 to 396 5.28 III 501 to 1100 852 11.29 1500 sft. From 750 to 709 -9.46 750 1508 20 880 214 2.84 1000 sft. From 500 to 5175 69.02 IV 751 to 600 953 12.60 750 sft. Below 500 1500 981 13 500 3192 42.29 sft. (upto 360 1000 13.33 VI 1501 to 460 800 10.60 sft.) 2100 98 1 2314 48 0.60 VI Above 3830 5 2100 0.066 6 - 4850 One 1030 13.75 roomed TOTAL: 7498 100.00 7547 100.00 7546 100.00

APPENDIX – 7.1(4) Items and costs of Development - Bokaro Steel City 7.3.1. at 1.7 MT. Stage

Cost of Cost of Dev. Development in Rs. in Rs. Land Acquisition 67000000 Land 71719000 Land Development 4719000 External 104831125 Services External Services: Residential 231723620 Transportation, Road 17658105 Non- 26027410 and bridges residential Water Supply 37391300 Sewerage 13958100 Drainage 2930000 % cost of Non-residential building to that of Electricity 19147720 residential is equal to Distribution 11.23% Horticulture 13745900 Residential buildings: 231723620 Non-residential: Education 12671980 Medical 1540000 Community Centre 1141080 Local Neighbourhood 1338170 shops Rest House 4101500 Slaughter House 13000 Bokaro Club 1050000 Telephone Exchange 55000 Security Barrack 520000 Miscellaneous 371200 Maintenance Post 596160 Vegetable/Fish Market 50000 Burial Ground 50000 Misc. 206320 Furniture 2323000 Total 434301155 APPENDIX 7.2 TOWNSHIP INCOME AND EXPENDITURE DETAILS OF SOME NEW TOWNS 7.4 7(2)1 : Statement showing income of Bhubaneswar NAC, Rourkela Civil Town & Rourkela Steel Town Name of the NAC/Town Bhubaneswar Rourkela Rourkela NAC Civil Town Steel Town Population - 1971 105491 47076 125426 Total income excluding cash in 2326905 1240295 479753 hand, Bank loan in Rs. (1973- 74). Per capita income in Rs. (1973- 22.06 26.35 3.82 74) Govt. grant in Rs. (recurring & 1166892 628011 364795 non-recurring) 1973-74 Percentage of Govt. grants to total income - SOURCES OF INCOME IN 1973-74 Income from taxes 585607 206837 42039 Income from rates 379336 162871 - Income from fees 34881 62157 25241 Other income 160189 180419 47678 Total own source of Income 1160013 612284 114958 Govt. grant (Recurring-Non- 1166892 628011 364795 recurring (1973-74) Total tax income 585607 206837 42039 Per capita tax income 5.55 4.39 0.39 % age of tax income total 25.17 16.67 8.76 income Income from Holding Tax 542664 117418 1136 % age of holding tax to total 23.32 9.47 0.24 income Per capital income from 5.14 2.49 0.01 holding tax Year of last assessment 1953-54 1965-66 - Rate of the holding tax 7% 6.25% - Tax on carriages 42943 26386 40816 % age tax on carriages to 1.85 2.13 8.51 total income Income from conservancy73-74 64759 27595 - % age to total income 2.78 2.22 - Income from light tax (73-74) 314577 38127 - % age to total income 13.52 3.07 -

APPENDIX : 7.2.2 Statement showing expenditure of Bhubaneswar NAC, 7.5 Rourkela Civil Town and Rourkela Steel Town Name of the NAC/Town Bhubaneswar Rourkela Civil Rourkela NAC Town Steel Town Population - 1971 105491 47076 125426 Total expenditure excluding 2932502 1618880 674267 cash at hand Per capita expenditure (Rs.) 27.80 34.39 5.38 Total expenditure on 1272143 324155 358588 establishments % age to total expenditure 43.38 20.02 53.18 Expenditure on conservancy 700638 27806 - (73-74) % age to total expenditure 23.89 1.72 - Expenditure on light (1973- 284138 70165 - 74) % age to total expenditure 9.69 4.33 - Annual Incidence of tax Income 2326905 1240295 479753 Expenditure 2932502 1618880 674267 Direct 585607 206837 42039 Indirect Nil Nil Nil Total tax 585607 206837 42039 % age of tax income to 25.17 16.37 8.76 total income Per capita income 22.06 26.35 3.82 Per capita expenditure 27.80 34.39 5.38 % age of expenditure on 54.66 26.14 74.74 staff to total income

7.2.3 : Statement showing income of Durgapur. Notified Area Authority 7.6

1964-65 1965-66 1966-67 1967-68 1968-69 1969-70 1970- 1971-72 1972-73 1973-74 1974-75 71

Municipal 175958 163770 1129858 568826 468278 397833 718836 1189492 1670730 1640225 1597770 rates & Taxes

Realisation 13696 16852 13572 14114 25110 25494 12563 6965 3675 9353 52066 under Special Acts

Revenue 15312 10759 220456 12824 24946 24669 28387 41258 1702617 97554 1661877 derived from municipal property and powers apart from taxation

Grants ana 716933 11467 221428 173515 106340 128578 137019 315003 182133 325797 149736 contributions

Extraordinary 315846 470729 516439 265919 115974 676697 333915 201148 230463 125476 73407 and Debt

Miscellaneous 6078 1464 729 2213 3342 12813 6482 - 7565 7825 9058

Total Income 1243823 675041 2100482 1037409 743990 1266084 1237202 1753866 3797183 2206229 3543914

7.2.4 : Statement showing expenditure of Durgapur Notified Area Authority

1964-65 1965-66 1966-67 1967-68 1968-69 1969-70 1970-71 1971-72 1972-73 1973-74 1974-75

General 46960 92140 91208 106263 121546 129879 138117 169794 140658 135951 220280 Admn. & Collection Charge

Public 145292 179809 242899 360648 246108 387683 362234 476499 1134279 784872 97.4391 health and convenience

Public - - - - 1000 - 5772 27444 - - - Instruction

Miscellaneo 11059 50764 12041 15224 18371 321098 71474 135772 68528 1025856 127652 us

Extraordina 891549 103852 1190194 434836 218215 318478 510432 824041 400713 647097 208001 ry & Debts

Public 4444 3270 42973 18196 40853 54159 86735 47689 75792 68915 65134 Safety

Total 1099304 632015 1579315 935167 646093 1221311 1174464 1681239 1819971 2662691 1595458 expenditure

APPENDIX - 8.1 Norms and standards adopted in the New Towns Housing 8.1.1 Rourkela Plinth area (sq.ft.) No. of D.Us. Pay Range Below 400 5203 N.A. 400-600 12748 700-1350 2013 1400-& above 246 Total 20210

Grand Total = 23453 which includes DUs of other agencies Total township area 5468 acres Gross density 43 DUs/acre Housing satisfaction 55% Total capital cost of development of residential buildings, at 1-million- ton stage = 69.77 million Rupees Average plinth area rate = Rs. 14.54 per sft. Amenities (a) Education : Total number of schools ..30 Total number of students ..24422 (b) Medical: 4 hospitals of total 592 beds No. of beds per thousand population ..4.1 12 health centres - No. of health per thousand ..08 (c) Conmiunity Facilities – 21 Community Centres Open Space : 17 children park 1 Central park 84 gardens and 15 rose gardens per strips plans between sectors and along storm water channel Circulation: More efficient road layout as basis of city plan. Landuse: Total developed land - 1613 acres Residential - 670 acres (41.50%) Educational - 69 acres (4.30%) Public and semi-public - 39 acres (2.40%) Open space - 447 acres (27.7%) Others - 54 acres (3.40%) 8.1.2 Bhilainagar Housing : Plinth area (sq.ft.) No. of DUs Pay Range Below 400 21012 600 2116 N.A. 900 1049 1500 137 Total 24314 including semi-permanent housing

Total township area - 4108 acres Gross density - 5.6 DUs per acre Housing satisfaction - 50% Total capital cost of development of residential building at 1 MP stage - Rs.83.61 million . Average plinth area rate = Rs. 18/- per sq.ft. Total cost of development of residential buildings up to 1976.. Rs.223.74 million Amenities: (a) Education - No. of primary schools .. 27 No. of middle schools .. 5 No. of high schools .. 9 Total .. 41 Total strength .. 35000 students No. of schools per thousand population - Primary .. 0.22 middle .. 0.04 high .. 0.07 All schools overcrowded and running in two shifts. Some of the schools being enlarged. Primary schools in every sector with half-a-mile from residences. High schools within one mile from residences. Also adult education centres in camps I & II and Khursipar and hospital sectors. (b) Medical : 2 hospitals of 436 and 60 beds - .. No. of beds per thousand population 6 health centres .. 4 No. of health centres per thousand population .. 104 Also 1 mobile dispensing van (c) Community facilities: 1 cultural centre. 2 auditoria 6 sector club City centre facilities like cinema, etc. 8.3 (d) Shopping: Neighbourhood shopping Sector level shopping (not provided in every sector) City Centre shopping Areawise distribution of shopping hierarchy Open Space : Small park in each neighbourhood areawise distributed Maitribag with zoo Landuse - Total land .. 4104 acres Residential .. 1352 acres (32.94% ) Amenities .. 987.6 acres (24.06%) Parks and playgrounds 223 acres (5.43%) Compulsory open spaces 467 acres (11.38%) Circulation 820.5 acres (19.9%) Unbtildable 254 acres (6.19%) Utilities Water supply from Tandula Reservoir and 16 Mgd. required for township Kharkhara Reservoir - 70 G.P.C.P.D. Sewerage by gravity method Seweage treatment plant and Oxidation pond discharging at the rate of 2., cu.ft. per sec. Length of sewer line - 215 km.

8.4 8.1.3 Durgapur Housing Plinth area (sq.ft.) No.of dwelling units Pay range in Rs. 300-400 8904 Upto Rs. 469 500-600 5253 470-649 716-720 350 650-769 880-900 531 770-949 1040-1400 524 950-1249 1500-1750 114 1250-1650 1658-1858 (with 560 outhouse) 112 1651-2249 Above 2800 with 750 + outhouse 32 2250 and above Total number of DUs = 15830

Other DUs of Alloy Steel Plant .. 2948 Posts & Telegraphs .. 144 Damodar Valley Corpn. .. 232 Life Ins. Corpn. .. 36 State Bank of India .. 68 Central Mech. Engg. Research Inst. .. 386 Grand total = 19644 in DSP township

Total township area - 3968 acres Gross density - 5 DUs per acre Housing satisfaction - 50%

Total capital cost of development of residential buildings = Rs.75.19 at 1-million-tonne stage million and beyond 1-million-tonne stage = Rs. 65.50 million Average plinth area rate Rs. 14.92 per sft. at IMT stage Amenities: (a) Education - Nursery - 12 (run by Mahila schools Samity) Primary - 23 schools High schools - 8 Private schools in township Primary- 7 High - 6 (proposed) : Total number of existing schools - 50 (including nursery) Total strength of all schools - 23000 Number of schools per 1000 population - Nursery - 0.12 Primary - 0.30 High - 0.15 All schools overcrowded and running in 2 shifts (b) Medical : 1 Hospital of 590 beds - one central hospital No. of beds/1000 population - 5.9 4 health centres No. of health centres/1000 population - .04 1 or 2 more health centres proposed 8.5 (c) Community Facilities: 4 community centres 3 Auditoria/Halls and 1 more auditorium proposed 1 cinema 3 clubs (one for senior officials and two for junior) (d) Shopping - 6 shopping centres 134 convenience shops Total number of shops in township - 284 No. of shops per 1000 population - 3 400 shops proposed in Chandidas Market Rehabilitation scheme 75 shop plots offered in A-zone zonal centre Open Space: Continuous parkstrips through each sector (totally undeveloped) 3 children's park 2 adults' Park 3 Playgrounds including as ASP sports complex with small stadium 1 stadium (20000 capacity) 1 Central Park being developed 1 swimming tank in B-zone park 1 proposed swimming pool Circulation: Total length of metalled road - 225.8 MM 170' arterial Road - 68.43 Km. (22' blacktop) 130' secondary road - 41.41 Km. (do-) 18' neighbourhood Road - 115.96 (6' blacktop) Cycletracks & pedestrian paths - 115.96 Km. (undeveloped) Basic modes of transport : Company Bus, Car, Scooter, Cycle Total number of company buses - 93 (capacity 50 passenger) Average number of buses on road - 55 (strips) Out of these 55: school trips, doctors' Home services (50 trips) Gross total - 420 trips per day 14000 pass holders 8 hired buses for Nachan, Gopalmath and other surrounding areas trips per day. Landuse: Total land - 3968 AC Buildable land - - 3448 AC Residential - 1666 AC (48.30%) Educational - 94 (2.73%) Commercial - 110 AC (3.19%) Open Space - 477 AC (13.53%) Public Buildings - 123 AC (3.59%) Circulation - 678 AC (19.66%) Vacant - 300 AC (9.00%) 8.6 Proposed Landuse: AC Residential - 1966/ (57.00%) Educational _ 145 AC (4.18%) Commercial - 196 AC (5.51%) Open Space - 340 AC (10.00%) Public uses - 123 AC (3.59%) Circulation - 678 AC (19.66%) Vacant - 0 Total 5448 AC Utilities: Power : From DTPS through 2 ´10 Megawatt transformers to sub-stations in township. 3 distribution feeders of 11 Kv. Water : Prom DVC Canal through 18 Mgd. raw water pumphouse and 15 Mgd.Water treatment plant - 80 GPCPO. Sewerage : Sewage disposal plant - 4 MGD Bio Filter - 4 MGD Oxidation pond - 1 MGD Effluent discharged in Rajhir Nallah Conservancy : Street collection 8.7 8.1.4 Bokaro Plinth area (sq.ft). No. of Pay Range in Rs. DUs 370 2464 Upto 110 390 6020 406 4454 111-300 608 2472 301-600 912 1000 601-1250 1520 with 471 outhouse 314 1251-2000 2127 with 471 outhouse 26 2001 and above Total 16750 (permanent dwellings) Temporary and semi-permanent of 4173 BSL - Permanent dwellings of other agencies: HSCL - 474 Soviet 732

Instrumentation KOTA 30 MECON 120 Garga Dam 24

HSCL Semi-permanent 20 Co-operative housing 1500 Grand Total = 23823 DUs Total township area - 1231 acres Gross density - 19.35 acres Housing satisfaction - 70% Total capital cost of development of residential - Rs.231.7 buildings at 1.7 MT stage million

8.8 Amenities: (a) Education - No. of primary schools .. 17 No. of high schools .. 7 Total 24 (b) Medical: 1 Hospital of 500 beds – 1 central hospital No. of beds per 1000 population - 4 6 health centres - No. of health centres per thousand population ..04 (c) Community Facilities _ 1 community centre City centre with cinema, club, etc. (d) Shopping: Neighbourhood shopping Sector-level shopping City Centre shopping Areawise distribution of shopping hierarchy Open Space: Neighbourhood park in all neighbourhood Sector park City Park Recreational resort near Garga Dam Areawise distribution of open-space hierarchy Circulation: Arterial road with central media - 200' (6 lanes) wide Sub-arterial road with central media - 160' (6 lanes) wide Major roads - 100' (4 lanes) wide Figure and collector road - 80' (4 lanes) wide Residential streets - 44' ( 2 lanes)wide Cul-de-Sac /loop - 30' (1 lane) wide Access street/survice lane - 20' (1 lane) wide Pathways - 10 to 15' wide Standard road section has 6' to 10' cycletrap and walkways. Single row lighting for sector roads, double row for major road. Arterial and sub- arterial with 4 row trees planting, others 2 rows . Landuse: Total developed land - 1231 acres Residential - 588 acres (47.76%) Educational 133.1 acres (10.81%) Commercial - 29.6 acres (2.43%) Open Space - 181.3 acres (14.72%) Circulation - 261.1 acres (21.20%) Others - 35.3 acres (2.87%) Utilities: Water - From - 12 MGD for city, rapid gravity filtration plant with 6 beds with a capacity of 12 MGD and provision for 24 MGD - 60 GPCPD Sewerage : Collection by gravity method. Quantity of sewage to be handled 200 M/Hour. Treatment by oxidation pond. Drainage : Underground, surface, outfall drains and pumping station. APPENDIX - 8.1.5 8.9 Comparative statement of density norms and space standards for community facilities, prescribed by committees of plan projects & Bureau of Public Enterprises, Ministry of Finance. Norm As prescribed by As prescribed by Bureau of COPP Public Enteriorises DENSITY Gross Density (a) Town level 9-12 DU/Acre 12 DU/Ac., and 45-55 persons/AC 15 DU/Ac. for 2-storeyed 20 DU/Ac. for 3-storeyed 25 DU/Ac. for 4-storeyed (b) Sector 14-20 DU/Ac. 20 DU/Ac. in general Level 65-95 persons/AC 10-14 DU/Ac.for single storeyed 19-25 DU/Ac. for 2-storeyed 26-34 DU/Ac. for 3-storeyed 34-45 DU/Ac. for 4-storeyed Community Facilities Educational Facilities: (a) Nursery School No separate As per COPP provision (b) Primary School 1 for 3500 pop. 1 for 3000-4000 pop. area : 3 AC 400-350 300-400 seats/Schools* Seats/School (*primary-cum- Nursery. (c) Higher Secondary School 1 for 9000-10000 As per COPP pop. Area; 6-8 Ac. 650-1000 seats/School (d) Academic College 1 for 150000 pop. As per COPP Area: 15 Acres (e) Technical & Vocational School 1-2 depending on As per COPP size of township Health facilities: - (a) Hospital beds 3 beds/1000 pop. for 25000 pop. As per COPP 2.5 beds/1000 pop. for 50000 pop. 2 beds/1000 pop. for 100000 pop. Health Clinic Not prescribed Not prescribed (b) Health Centre 1 for 20000 pop. Areas 1-1.5 Ac. AS PER COPP (c) Hospital area 25 bedded: 5 Ac. AS PER COPP 50 bedeed: 10 Ac. 100 bedded: 15 Ac.

8.10 Norm As prescribed by As prescribed by Bureau of COPP Public Enterprises

Commercial facilties: (a) Retail shopping 6 shops/1000 pop. As per COPP centre (b) Hierarchy of Convenience shops 6-10 Area 150 As per COPP shopping centre sft/shop site area not prescribed. Sector Shop Area 150-200 sft/shop As per COPP Number and site area not prescribed Community shopping not prescribed Central shopping 250-300 sft/shop As per COPP Number & site area not prescribed

Recreational Open Spaces 3-4 acres/1000 pop. As per COPP Sector level Tot-lots:-200 sft.for 500 pop. As per COPP Children park: 500.0 sft. As per COPP N.H. Playground : 2.00 Ac. N.H. Park : 2.5 Ac. As per COPP Sector Park : 10-5 Ac.

Town level Central Park 30 Ac. As per COPP Civic & Cultural-cum- a) One Civic centre for 20000 As per COPP entertainment facilities. pop. b) One clubs for 20000 to As per COPP 30000 pop. Area 1½ to 2 Ac. c) Town centre of an area @ As per COPP 0.75 to 1 acre/ 1000 pop. 9.1 APPENDIX 9: List of Social/Voluntary Organisations who responded to our questionnaire survey in Durgapur and Jamshedpur

9.1. Durgapur: 1. Darbari 33. MAMC Swimming Club 2. School of Music 34. Durgapur Youngmen's Assn. 3. Rabindra Parishad 35. Apanjan Club 4. Souvik 36. Amra Tarun 5. Silpayan 37. Harshabardhan Modern Boys' Club 6. Mahua 38. Coke Oven Dyma Club 7. Fine Arts Club 39. Benachity United Club 8. Nari Kalyan Samity 40. Agragami Athletic Club 9. Nagarjun Extension 41. Young's Sporting Club 10. Janakalyan Samity 42. Durgapur Sporting Assn. 11. Society for the Welfare 43. SDO's Office Recreation Club of Retired & Aged Persons 44. Durgapur Agragami Sangha (after-care) 45. Referees' Association, Durgapur 12. Indian Red Cross Society 46. Alloy Steel Plant Sports Association 13. Bidhan Bhavan - Community 47. Durgapur Sub-divisional School Centre 'B' Zone Sports Assn. 14. Netaji Bhawan - Community 48. Burdwan District Table Tennis Centre 'A' Zone Assn. 15. Gopalmath Unnayan Samity 49. District Khokoo Assn. 16. Durgapur Sub-division 50. AVB Sports & Recreation Club Gramin Unnayan & Bekar Sangha 51. Ujjal Sangha 17. Andhra Samity 52. Jatin Sangha 18. Adibasi Mahakalyan Samity 53. Nachan Kakali Sangha 19. Karnataka Sangha 54. Ramnath Smrith Pathagar 20. Gurudwara Jagatsudhar 55. Dishari Sangha Pathagar 21. Matri Mandir Ashram 56. Anurupa Devi Smriti Pathagar 22. Mishra Ispat Sanghatani 57. Ajana Sab-payechir Asar 23. MAMC Officers' Association 58. Meghdoot Sab-Payechir Asar 24. MAMC Staff Club 59. Chandidas Sab-Payechir Asar 25. MAMC Ladies' Club 60. Anupama Sab-Payechir Asar 26. ACC-Vickers-Babcock Senior 61. Sfulinga Sab-Payechir Asar Staff Assn. 27. Durgapur Cine Club 62. Balaka Manimela 28. Durgapur Club 63. Smriti Manimela 29. Coke Oven's Club 64. Jiban Smriti Sangha 30. White Border Club 65. Jagrata Sangha 31. Sunday Club 66. Utkal Samaj 32. MAMC Youth Club 67. Durgapur Malayali Samajan 68. Vivekananda Sporting Association

9.2 9.2 : Jamshedpur 1. Singhbhum Chamber of Commerce & 33. Madrasi Sammelani Industry 2. Pragna Bharati Naritya Kalakendra 34. Singhbhum Chandrabanshi Kshatriya Zilla Sabha 3. Rabindra Sangsad 35. Bhojpuri Sahitya Parishad 4. Jamshedpur School of Art 36. New C.P. Club 5. The Tagore Society 37. Singhbhum Zilla Bhojpuri Samaj 6. The Milanee 38. Singhbhum Zilla Pichra Bargi Sangha 7. Lion's Club of Jamshedpur 39. Harijan Azad Club 8. Bharatiya Samaj 40. Andhra Sangha -Agrico Sidgora & Baridih 9. Baradwari Civic Association 41. Andhra Club (Tinplate) Golmuri 10. Dhatkidih Civic Association 42. Bihar Association 11. Sidhgora Nagarik Sangha 43. Razak Nabayubak Sangha 12. Sonari Civic Association 44. Andhra Vijnana Samity 13. Union Mohalla Kalyan Samity – 45. Andhra Bhakta Kolata Samajam Sidhgora 14. Agrico-Civic Association 46. Utkal Bandhaba Samity 15. Thakkar Bapa Club 47. Hindustan Sangh 16. District Depressed Classes League 48. Milan Samity 17. Adibasi Socio-Educational- Cultural– 49.The New Baradwari Assn. Association 18. Adibasi Association 50. New Sidhgora Club 19. Rajkand Club 51. Kagalnagar Sporting Assn. 20. C P. Nautanki Club - Sonary 52. Agrami Sangha 21. Kerala Club 53. B.M.C. Club 22. Hindustan Mitra Mandal 54. Bihar Badminton Assn. 23. Utkal Association 55. Jamshedpur Gymkhana 24. Andhra Association - Kadma 56. Udayan Sangha 25. Bihar Maitri Sangha 57. Agrico Sporting Club 26. Andhra Dramatic & Literary Society 58. Jamshedpur Athletes Club 27. Uttar Pradesh Sangha 59. Club 28. Shri Bala Ganapati Vilas 60. Jamshedpur Young Sporting Club 29. Khalsa Club 61. New Ranikudar Sporting Club 30. Ramgharia Sabha 62. Shining Club 31. Hindustan Mitra Mandal 32. Aruna Samity

9.3 Jamshedpur (contd.) 63. Young Hiranagpur Athletic Club 96. Arya Samaj 64. Citizen Sporting Assn. 97. Ramayan Pracharini Samity 65. Tarun Sangha 98. Khiomat - E'khaque Com. 66. Vivek Sangha 99. Tinplate - Mulsim Club 67. Sonari Tarun Sangha 100. Chinmaya Mission – Jamshedpur 68. Andhra Sporting Assn. 101. Pragati Sangh 69. Burma Mines Sports Club 102. Dhatkiri Flats Assn. 70. Chitta Sangham 103. Dhatkiri Workers' Flats Assn. 71. New Cricket Club 104. Inner Circle Flats Assn. 72. Yuba Shakti Club 105. Tisco Supervisors' Flats- Resident Members, Assn.- Golmuri 73. Modern Cricket Club 106. Beldih Club 74. Sakchi Blues Cricket Club 107. The Bengal Club 75. Mohammedan Sporting Club 108. United Club 76. Tarun Sangha – Sidhgora 109. Telco Club 77. Club 110. Telco Recreation Club 78. Sakchi Athletic Club 111. The Evening Club - Golmuri 79. Birsa Sporting Club 112. Sandhya Sammelani 80. Yubak Parishad 113. Govt. Colony Cultural Assn. 81. Sabuj Sangha - Sonari 114. General Office Recreation Club 82. Colony Club 115. Bihar Photographic Assn. 83. Jai Jawan Club 116. Jamshedpur Philatelic Society 84. Kalyan Samity 117. Amal Sangha 85. Sonari Community & Welfare Centre 118. Bharatiya Tarun Sangh 86. G. Town Community Centre 119. Dinshaw Memorial Library 87. Jyoti - St.Joseph's Welfare Centre 120. Vidyapati Club Pustakalaya 88. Didibhai Siksha Niketan - Children 121. Muslim Library & Women's Welfare Centre 89. Biswajit Manimela 122. Jamshedpur Mahila Samity 90. Chandan Arun Sangha – Sitaramdera 123. Jamshedpur Parsee Strimandal 91. Chandan Arun Sangha -Shram Kalyan 124. New Sidhgora Mahila Samity Kendra 92. Kadma Nursery School 125. Bharatiya Bhakta Mahila Mandal 93. Kishore Sangh – Sonari 126. All India Women's Conference 94. Kishore Sangh - Bhalubasa 127. Dakshim Bharatiya Mahila Samaj 95. Anjuman Behar - E-Islam 128. National Council of Women in India

9.4 Jamshedpur (contd.) 129. Nritya Kala Kendra 130. Jamshedpur Civic Assn. 131. Seva Samity Many other associations also responded. Later, on verification we discovered that they were no longer in existence but their former members had filled up our questionnaire; for example - 1. Vijaya Co-operative Association 2. Punjab Sporting Association

APPENDIX 10 : Specimen of questionnaire addressed to social organizations at Durgapur and Jamshedpur QUESTIONNAIRE 1. GENERAL 1.1. Name of the Association : 1.2. Date of establishment : 1.3. Address : 1.4. Affiliations to other Institutions (if any) : 1.4.1 All-India level - - Name :- 1.4.2 State level - - Name:- 1.4.3. District level - - Name :- 1.4.4. Local level - Name : - 1.4.5. Others (pl. specify) - Name :- 1.5. Type of Association : Please mark appropriate box :- 1.5. 1. Merchants, Hawkers, Traders, etc. - 2. Music, Drama & other Fine Arts - 3. Community Welfare - 4. Caste, Language or Region based - 5. Professional - 6. Officers Association - 7. Sports Association - 8. Youth Club - 9. Religious Institutions, Ashrams, etc. - 10. Housing, Ownership, Flat Asson. - 11. Recreation Clubs, Cine Clubs, etc. - 12. Others (pl. specify) -

: 9.2 : 2. MEMBERSHIP 2.1. Total Strength : BREAKDOWN

Age Men Women Children Families Break-up 15-20 21-30 31-40 41-50 2.2. Initial Strength (Year) 1965 1970 1975 1976 2.3. Reasons for changes in strength (if any) :- 2.3. 1. Transfer out of town 2. Change of residence within town 3. Retirement 4. Joining other Clubs 5. Others 2.4 Types of Membership Membership fees 2.4. 1. Life 1. 2. Ordinary 2. 3. Association 3. 4. Guest 4. 5 . Temporary/Seasonal 5. 6. Others 6. 2.5. Qualifications for Membership : 2.5.1. Minimum period of Residence required – 2.5.2. Educational qualifications required - 2.5.2. 1. Primary -. 2. Secondary - 3. Graduates - 4. Other educational qualifications, if any.

9.3 : 2.5. Qualifications for Membership (Contd.) 2.5.4. Workplace Position (e.g. Officer, Supervisor, Worker, etc.) 2.5.5. Membership in other clubs - 2.5.6. Caste/Religion 2.5.7. Regional (state of origin) - 2.5.8. Employment in a particular company/organization (name) :- 2.6. Please give break-up of membership in percentage, as follows; Statewise Languages (Hindi) (Bengal, Bihar, Bengali, Oriya, English, Income-wise Orissa. etc.) etc. Upto Rs. 500 500 to 1000 1001 to 2000 Above 2000 3. ACTIVITIES. 3.1. Please describe briefly the objectives of the Association as given in its Articles/Memorandum of Association: 3.2. Special Activities : (special to certain categories of members such as Ladies,Children, etc.) Category Activities No. usually Indicate special facilities participating offered by Club (e.g. Teachers, coaches funds, equipment, others) 3.2.1. 1) Handicrafts Ladies 2) Library 3) Sewing School 4) Family Planning 5) Cooking 6) Literary programmes 7) 8)

: 9.4 : Category Activities No. usually Indicate special facilities participatin offered by Club (e.g. g Teachers, coaches funds, equipment, others) 3.2.2. 1) Children's (Teachers for school, school Children Library furniture, Milk for children, etc.) 2) Creches 3) Primary School/KG/ Nursery

3.2.3. Others 1. Medical Facilities: 1) Shop for Medicines 2) Clinic 3) Health advise 4) Hygiene education 5)

2. Educationa l 1) School (free) 2) Payment of fees 3) Book loans 4) Scholarship 5) Educational loans 6) Free tuitions 7) Library

3. Others (specify):

3.3. Activites (open to all) Category Activities No. usually Facilities provided by the (e.g. matches, participatin Assn. (e.g. ground, with other g equipment, coaches, etc.) clubs, among members)

3.3.1. Sports Name : 1. Cricket 2. Football 3. Hockey 4. Badminton 5. Volleyball 6. Basketball 7. Tennis 8. Indoor game 9. Swimming 10. Others

9.5 : 3.3. Activities (open to all) (contd.) Category Frequency No. usually Facilities offered by (Name) participating Club 3.3.2. Films Petes Picnics Get-together Dinners Musical evening etc. Organised tours Plays/Dramas Others 4. Relationship with other clubs/Associations: 4.1. Does such a relationship exist : Yes : No: 4.2. If yes, with which organizations when formed (state year)

4.3 Nature of relationship: Common Members Reciprocal Members

4.4. Joint Frequency Activities . & facilities Weekly Monthly Per qtr. Per spent annum 1. Film shows 2. Fetes 3. Melas 4. Tours 5. Using Club Premises 6. Library 7. Aid 8. Others

4.5. Financial Arrangements for Joint Activities Fund raising (methods Ratio of Utilization of Profits used) contribution (purposes )

: 9.6 : 4.6.1. In the past few years has there been any Yes No event of much significance in your association ? 4.6.2. Please describe briefly six (6) events organized by your Association, which you consider very significant, during the past five (5) years: 5. Administration & Finance: 5.1. How is the association administered: (If there are nominees of company management, please give their number) Variouas bodies Frequency of Duties Languages used Strength meetings 1. General Body 2. Executive body 3. Committees (if any) 5.2. Executive Committee (Composition): By Designation Company, Official, Civic Official, Donors, Number Management nominees, others, please specify:

Age: Mother tongue: Education: Background 1. President 2. Vice-President 3. Secretary 4. Section/Asstt. Secy. if any 5. Treasurer 6. Members 7. Others 5.3. Utilization of Funds/Profits 5.3.1. Common Trust - 2. Securities 3. Investment in shares 4. Bank Deposit 5. Others (specify) 5.4. Expenditure: Items Monthl Yearly Items involving more than 20% y expenditure 5.4.1. Staff 1. 2. Taxes 2. 3. Equipment 3. 4. Others 4.

: 9.7 : 6. Relationship with INDUSTRIAL/CIVIC/TOWNSHIP management 6.1. Does your Association have any relationship with the following: 6.1.1. Companies:- Private Sector/Public Sector (Please list below name/names of the company/companies) Name (s) of Amount of Frequency of assistance i.e. Company Assistance fixed, monthly, quarterly, annual etc.

6.1.2 Development Authority 6.1.3 District Administration 6.1.4 State Administration 6.1.5 Township Authority 6.1.6 Notified Area Authority 6.1.7 Municipal Authority 6.1.8. Any others:- 6.2. Does your Association receive any material help from any of these bodies ? Please specify:- 6.2.1. Material help taken: Transport : 2. Furniture : 3. Electrical Equipment : 4. Microphone : 5. Staff Assistance : 6. Others 6.3. In return for Financial/Material help taken, are any special facilities offered, or services rendered, apart from the usual activities of your Association ? If so, please specify: : 9.8: 7. Concluding Remarks: 7.1. What are your considered views on the effectiveness and participation of your Association in the social life of your town: 7.2. Please indicate five or six problems faced in the running of your Association; e.g. financial, lack of space, shortage of staff, lack of active support from members, etc. (According to importance) 7.2.1. Problem One *** (The purpose of this questionnaire is to assume the role of voluntary organizations in the social life of New Towns. We deeply appreciate your patience and co-operation). K.C. Sivaramakrishnan 11.1 APPENDIX – 11 Population projections for the New Towns 11.1 Rourkela Urban Agglomeration 1971 1981 1991 2001

Age- Persons Males Females Persons Males Females Persons Males Females Persons Males Females

Group

Total 172502 98667 73835 208153 117028 91125 251497 138851 112646 303963 164723 139240

0-14 69200 36111 33089 83395 43302 40093 100514 51931 48583 121208 62307 58901

15-19 11777 6486 5291 15774 8689 7085 20918 11529 9389 27580 15204 12376

20-24 18287 8975 9312 21047 10711 10336 24166 12788 11378 27642 15235 12407

25-29 22171 12322 9849 23964 13295 10669 25751 14147 11604 27185 14809 12376

30-39 31203 21847 9356 35008 23339 11669 39068 24518 14550 93363 25209 18154

40-49 11675 8391 3084 15607 10648 4959 20666 13190 7476 27155 16299 10856

50-59 4578 2680 1898 7294 4168 3126 10950 6167 4783 15842 8818 7024

60+ 3547 1620 1927 6064 2876 3188 9464 4581 4883 13988 6842 7146

Note : Unspecified figures have also been included in the total. 11.2 11.2. Durg-Bhilainagar Urban Agglomeration 1971 1981 1991 2001

Age- Persons Males Females Persons Male Females Persons Males Females Persons Males Females

Group

Total 245124 137087 111037 370974 201476 169498 409662 220890 188772 444886 238163 206723

0-14 103253 53924 49329 156106 81466 74640 172140 89798 82342 186785 97369 89416

15-19 16585 9265 7320 28269 15804 12465 34657 19336 15321 41326 23043 18283

20-24 21663 9700 11963 33054 15878 17176 36788 18845 17943 40259 21842 18417

25-29 26438 12389 14049 36355 17584 18771 36132 18148 17984 34921 18328 16593

30-39 44385 28764 15621 60691 37765 22926 59893 35354 24539 57430 31540 25990

40-49 18815 12901 5914 29715 19142 10573 34207 20729 13478 38657 22064 16593

50-59 7886 4386 3500 14505 8087 6418 18762 10528 8234 23221 13123 10098

60+ 6019 2712 3307 12279 5750 6529 17083 8152 8931 22287 10854 11433

11.3- Durgapur City Total 206638 117135 89503 279061 158562 120499 376829 214626 162203 508797 290559 218238

0-14 80840 42131 38719 105763 55114 50649 138197 72019 66178 180423 94054 86369

15-19 14836 8058 6778 22882 12613 10269 34747 19371 15376 52116 29315 22801

20-24 20820 9423 11397 27336 13451 13925 35953 19145 16808 47129 27178 19951

25-29 20903 15966 10937 32539 19329 13200 38817 23102 15715 45500 27076 18424

30-39 37761 26814 10847 48055 32762 15293 60902 39571 21331 76954 47180 29774

40-49 12447 8697 3750 20846 14204 6642 33617 22499 11118 52727 34863 17864

50-59 6375 3006 3369 10967 5916 5051 18014 10515 7499 28552 17559 10993

60+ 6651 3045 3606 10633 5163 5470 16582 8404 8178 25396 13334 12062

11.4 Bokaro Steel City Urban Agglomeration 1971 1981 1991 2001

Age- Persons Males Females Persons Males Females Persons Males Females Persons Males Females

Group

Total 107159 64750 42589 168222 98601 69621 273767 156008 117759 458817 253956 204861

0-14 37003 19277 17726 61412 32144 29268 105384 55389 49995 185730 98004 87726

15-19 9701 5371 4330 15256 8561 6695 24888 14155 10733 41798 24088 17710

20-24 14196 8874 5322 19815 12027 7788 28200 16482 11718 40560 22482 18078

25-29 15007 10251 4756 20252 13204 7048 27571 16783 10788 37118 20234 16884

30-39 17937 12700 5237 26661 17813 8848 40960 25545 15415 64556 37027 27529

40-49 7251 4808 2443 12985 8309 4676 23738 14758 8980 44047 26749 17298

50-59 3408 1953 1455 6442 3768 2674 12266 7283 4983 23582 14177 9405

60+ 2656 1336 1320 5399 2775 2624 10760 5613 5147 21426 11195 10231

11.5 Jamshedpur Urban Agglomeration

Total 456146 254002 202144 601635 334361 267274 663667 368173 295494 732132 405242 326890

0-14 177363 92573 84790 237189 124250 112939 265228 139451 125777 296426 156414 140012

15-19 43397 24424 18973 56439 32010 24429 61395 35111 26284 66711 38445 28266

20-24 44131 24688 19443 56499 31529 24970 60466 33651 26815 64734 35882 28852

25-29 427I8 23641 10977 53731 29603 24128 56417 30930 25487 59168 32220 26948

30-39 66164 39183 26981 86404 50663 35741 94383 54758 39625 103032 59095 43937

40-49 41589 25234 16355 55837 33875 21962 62657 38032 24625 70299 42692 27607

50-59 24367 15356 9011 31769 19735 12034 34580 21173 13407 37639 22627 15012

60+ 16398 8890 7508 23767 12696 11071 28541 15067 13474 34123 17867 16256

11.6 Bhubaneswar City 1971 1981 1991 2001

Age- Persons Males Females Persons Males Females Persons Males Females Persons Males Females

Group

Total 105491 61190 44301 127383 72268 55115 153892 85359 68533 185884 100734 85150

0-14 40824 21449 19375 49801 25971 23830 60745 31450 29295 74123 38103 36020

15-19 10194 6174 4020 12068 7098 4970 14285 8143 6142 16866 9298 7568

20-24 11581 7181 4400 13190 7914 5276 14963 8636 6327 16904 9317 7587

25-29 10355 6197 4158 12132 7060 5072 14208 8020 6188 16624 9056 7568

30-39 15591 9790 5801 18618 11405 7213 22229 13270 8959 26518 15416 11102

40-49 8660 5765 2895 10768 6920 3848 13393 8313 5080 16606 9967 6639

50-59 4584 2859 1725 5900 3530 2370 7558 4356 3202 9689 5393 4296

60 + 3660 1753 1907 4906 2370 2536 6511 3171 3340 8554 4184 4370

Note: Unspecified figures have also been included in the total. 11.5 11.7 Assumptions made for population projections of the New Towns 1. Changes in the administrative boundaries were taken into account and necessary adjustments were made. 2. Rate of natural increase for the cities Pt+10-M were estimated. excluding Bokaro using the relation er Pt 3. Estimates of future migrational population for each city were separately made after the trend and level of migration and the developing prospects. 4. Final projection for the total population were made using the relation Pt+10=Pt er+Mc. 5 For age sex break-up it was assumed that gradually the city will achieve the state's existing urban age, sex distribution by 2001 and accordingly the expected age-sex distribution for the cities in 1981, 1991 and 2001 were estimated. 6. Finally the estimates of future population for male, female and total for the broad age group are 0-14,14-19, 20-24, 25-29, 30-39, 40-49 and 60+ were made using the figures obtained in 4 & 5. APPENDIX - 12 LIST OF PARTICIPANTS IN THE DISCUSSION SESSION ON THE ISSUES PAPER (20th April, 1977 ) CHAIRMAN : Prof. Bhabatosh Dutta Government of India : Government of-West Bengal (contd.) 1. Shri R.G. Gokhale 10. Shri, P.K Banergee, IAS Adviser (Construction) District Magistrate Ministry of Finance Burdwan. Bureau of Public Enterprise 11. Shri G.K. Choudhury New Delhi. Senior Planner (CMPO) 2. Shri C.S. Chandrasekhara Calcutta Metropolitan Planning Orgn. Chief Planner Govt. of West Bengal Town & Country Planning Orgn. Calcutta. Ministry of Works & Housing 12. Shri M.K. Moitra, IAS New Delhi. Secretary -CMDA 3. ShriS. Shafi Calcutta Metropolitan . Additional Chief Planner Development Authority Town & Country Planning Orgn. Calcutta. New Delhi. 13. Shri S.K. Roy Government of Bihar: Director of Planning 4. Shri Ram Upadesh Singh, IAS Calcutta Metropolitan Secretary Development Authority Local Self-Government Calcutta. Patna 14. Shri M.S. Moitra Government of Orissa: Director (Area Dev.) 5. Shri D.R.K. Pattanayak Calcutta Metropolitan Director Development Authority Town Planning Calcutta. Bhubaneswar. Academic Institutions: Government of West Bengal: 15. Prof. Abhijit Dutta 6. Shri J.C. Talukdar, IAS Professor of Urban Member, Board of Revenue Administration & Development of Municipal Finance, Calcutta, West Bengal. Indian Institute of Public Administration 7. Shri. S.P. Mallik, IAS New Delhi. Special Secretary 16. Prof. Mohit Bhattacharyya Board of Revenue Indian Institute of Public Administration Calcutta. New Delhi. 8. Shri S. Chowdhury, IAS Commissioner Town & Country Planning Deptt. Calcutta. 9. Shri P.V. Shenoy, IAS Secretary Department of Cooperation Calcutta.

12.2 : Academic Institutional (contd.) Durgapur (contd.) 25. Shri Maitra 17. Prof. C.R. Pathak Durgapur Steel Plant Deptt. of Architecture & Durgapur. Regional Planning Indian Inst. of Technology 26. Shri H.P. Roy, IAS Kharagpur. Chief Executive Officer Durgapur Development 18. Dr. Bhabatosh Dutta Authority Centre for Studies in Durgapur. Social Sciences Calcutta.. Bokaro Steel City: 19. Dr. Barun De 27. Shri K.D. Jha Director Chief Town Administrator Centre for Studies in Social Sciences Bokaro Steel City. Calcutta. 28. Shri A.K. Srivastava 20. Prof. Sunil Munsi Chief Architect & City Centre for Studies in Planner Social Sciences Bokaro Steel Plant Calcutta. Bokaro. Participants from the New Towns: Jamshedpur: Rourkela: 29. Shri H.P. Bodhanwalla 21. Shri P.C. Hota, IAS Director & General Manager Town Administrator (Services) Rourkela Steel Plant Tata Iron & Steel Company Rourkela. Jamshedpur. 22. One representative of Town Admn. 30. Shri A. Jankinath Department Rourkela Steel Plant Director (Town Services) Rourkela. TISCO, Jamshedpur Bhilai: 31. Shri R.N. Master 23. Shri G.C. Raghavan Chief Architect & Superintendent - B.E .D.B. Town Planner Bhilai Engineering & Design Bureau Town Planning Department Bhilai Steel Plant Town Administration Bhilainagar. TISCO, Jamshedpur. Durgapur: 24. Shri J. Gaur 32. Shri C.D. Dwivedi Town Administrator Education Officer Durgapur Steel Plant TISCO Durgapur. Jamshedpur. 12.3 : Others The following who could not attend the discussion very kindly sent their comments in writing: 33. Shri G. Jagatpathy, IAS 1. Mr. Jac Smit Chairman University of Damodar Valley Corpn. Berkeley, USA. Calcutta. National Bldgs. Orgn. 34. Shri V.K. Dhar, IAS 2. Shri G.C. Mathur Administrator Indian Iron & Director NBO Steel Co. Burnpur, West Bengal. 3. Shri B.N. Nair 35. Shri N.G.K. Murty Jt. Director (SE). MECON Metallurgical & Town & Country Plg.Orgn. Bihar. Engineering Consultants (India) Ltd. Ranchi, 4. Shri R.L. Bawa Chief Town Bihar. Planner 36. Shri S.K. Sinha 5. Shri B. Prasad Dy. Director of Census Others: Operations West Bengal. 6. Prof. Deva Raj, Director Indian Institute of Management National Inst. of Urban Calcutta: Affairs, New Delhi. 37. Shri Hiten Bhaya, Director 7. Shri Asok Sen 38. Dr. (Mrs.) Kamini Adhikari Centre for Studies in Social Sciences, Calcutta. 39. Prof. Sanat K. Bose 8. Shri S.N. Acharyya 40. Prof. R.P. Aiyar Jt. Secretary 41. Prof. Surendra Munshi Ministry of Steel & Mines Govt. of India, 42. Shri B. Chakrabarty New Delhi. Project Team: 9. Prof. A.D. Singh 43. Shri K.C. Sivaramakrishnan, Director of Industrial Project Director Relations 44. Sm. Meena Subramaniam Sr. TISCO, Jamshedpur. Project Assistant 45. Shri P.C. Kumar, Project 10. Shri S.B. Mukherjee Assistant Chief Economic Planner Calcutta Metropolitan Planning Organization, Calcutta. 11. Shri Ardhendu Bhattacharyya Economist B.M.R.D.A., Bombay. 12. Shri D.N. Basu Operations Research Group Baroda. 13. Miss M. Mazumdar Institute of Social & Economic Change Bangalore. Appendix 13 : List of persons contacted in the New Towns and elsewhere in connection with the study. 1. Rourkela Organization Officers with whom Designation contacted discussions were held Rourkela Steel Plant 1. Dr. P.L. Agarwal Managing Director 2. Shri K.C. Singhdeo, Dy. General Manager IAS 3. Shri P.C. Hota, IAS Town Administrator Rourkela notified 4. Shri A.K. Mishra, IAS Addl. District Area Committee Magistrate (Rourkela) (Civil) 2. Bhilai Bhilai Steel Plant 5. Shri S.R. Jain Managing Director 6. Shri P.M. Pandya Chief of Industrial Relations 7. Shri T.D. Bhatia Chief Town Administrator 8. Shri S.T. Gosavi Town Administrator (Engg.) 9. Shri G.C. Raghavan Superintendent B-E-D.B. 3. Durgapur Durgapur Steel Plant 10 Shri P.K. Paul Managing Director 11. Shri M.K. Moitra Personnel Manager 12. Shri S.K Asstt. Personnel Sarbadhikari Manager 13. Shri A.C. Pandia Sr. Personnel Officer (Welfare) 14. Shri J. Gaur Town Administrator 15. Shri Saxena Sr. Architect Planner 16. Shri Kumar Estates Manager 17. Shri B.D. Dixit Education Officer 18. Smt. Geeta Ghosh Asstt. Education Officer

13.2

Organization Officers with whom Designation contacted discussions were held Durgapur (contd.) Alloy Steel Plant 19. Shri C.K. Nandy Sports Officer Durgapur Development 20. Shri H.P. Roy, IAS Chief Executive Authority Officer Durgapur State 21. Shri R.K. Tripathi, IAS Vice-Chairman and Transport General Manager Corporation 22. Shri A. Chattopadhyay ACC-Vickers-Babcock 23. Shri S. Sengupta Administrative Manager Ltd. Fertilizer 24. Shri N.L. Basak, IAS General Manager Corporation of India Mining & Allied 25. Shri A.C. Chatterjee Managing Director Machinery Corpn. Ltd Durgapur Projects 26. Major Gen. B. Chowdhury Managing Director Limited PVSM 27. Shri Kalyan Dasgupta Dy. General Manager 28. Brig. Mitra Chief Administrative and Personnel Officer Others 29. Shri N. Jagannathan, Sub-divisional Officer IAS (upto August, 76) 30. Shri B. Mahapatra Sub-Divisional Officer (Durgapur) 31. Shri Ananda Gopal Social worker Mukherjee 32. Shri Labanya Ghatak "

13.3

Organization Officers with whom Designation contacted discussions were held 4. Bokaro Steel City Bokaro Steel Plant 33. Shri S .Samarapungavan Mg. Director 34. Shri K.D. Jha Town Administrator 35. Shri A.K. Srivastava Chief Architect and City Planner 36. Shri B.K. Gupta Dy. Chief Planner 37. Shri S.K. Paul Officer -Cost & Estimates Section 5. Bhubaneswar Govt. of Orissa 38. Shri A.L. Nair, IAS Secretary Urban Dev. 39. Shri D.R.K. Pattanayak Director Town Plg. 40. Shri K.C. Mahapatra Dy. Secretary - Transport Deptt. 41. Shri Mohanti Director of Estates 6. Jamshedpur Tata Iron & Steel 42. Shri H.P. Bodhanwalla Director & General Company Ltd. Manager (Services) (TISCO) 43. Shri P. Anand Director & General Manager (Operations) 44. Shri A. Jankinath Director -Town Services 45. Dr. Mahalingam Director -Technical Services 46. Prof. A.D. Singh Director -Ind. Relations 47. Dr. (Miss) J.D. Daboo Director -Social Services 48. Shri R.N. Master Chief Architect & Town Planner 49. Shri D.N. Mistry Dy. Chief Architect & Town Planner

13.4

Organization Officers with whom Designation contacted discussions were held 6. Jamshedpur (contd.) TISCO 50. Shri B.N. Saxena Dy. Town Administrator 51. Shri R.G. Phadnis Asstt. Town Administrator 52. Shri G.P. Rao Land Officer 53. Dr. C.D. Dwivedi Education Officer 54. Dr. Y.P. Biswakarma Dy. Education Officer 55. Shri Daljit Singh Community Dev. & Social Welfare Officer 56. Shri P.L. Fernandez Superintendent of Training -Jamshedpur Technical Institute. 57. Dr. Utpal Banerjee Manager - Management Dev. Services 58. Shri I.A. Panakkal Manager - T.M.D.C. Tata Robins Frazer 59. Shri S.J. Dalal Managing Director Limited Telco 60. Shri S. Ghandy General Manager 61. Shri H.L. Verma Personnel Manager 62. Mrs. Siloo Surty Welfare Officer Xavier Labour 63. Rev.Fr. Tome Principal Relations Instt. 64. Rev.Fr. Norman 65. Mrs. N. Acharjee Professor Sociology Deptt.

13.5

Organization Officers with whom Designation contacted discussions were held 7. New Delhi (Govt. of India) Ministry of Steel 66. Shri Saran Singh, IAS Secretary 67. Shri S.N. Acharya, IAS Jt. Secretary 68. Shri K.J.M. Shetty, IAS Jt. Secretary 69. Shri D.D. Borwankar, IAS Jt. Secretary Ministry of Works & 70. Shri N.K. Kamath, IAS Secretary Housing 71. Shri R. Gopalswamy ,IAS Jt. Secretary 72. Shri Nasrullha, IAS Jt. Secretary 73. Shri Kalyan Biswas, IAS Director Town & Country 74. Shri C.S. Chandrase- Chief Planning Orgn. khara Planner 75. Shri.S. Shafi Addl. Chief Planner National Buildings 76. Shri G.C. Mathur Director Organization 77. Shri B.N. Nair Jt. Director (SB) Bureau of Public 78. Shri R.G. Gokhale Advisor (Constn. Enterprises Divn.) (Ministry of Finance) Steel Authority of 79. Shri R.P. Billimoria Chairman India 80. Shri S.K. Nanda Dy. General Manager 81. Shri A.C. Banerjee Tech. Director 82. Shri K.M. Agarwalla Sr. D.G.M. Others Shri Ram Centre for 83. Shri B.M. Kapur Director of Industrial Training & Relations & Human Resources 8. Ranchi Consultancy Hindustan Steel Ltd 84. Shri K. P. Saxena Secretary MECON 85. Shri M.B. Silgardo Jt. Mg. Director 86. Dr. S.R. Pramanick Chief Engineer (Technical) 87. Shri N.G.K. Murthy 13.6

Organization Officers with whom discussions Designation contacted were held 9. Patna Govt. of Bihar Deptt. of Local 88. Shri Ram Upadesh Singh Secretary Self Govt. 89. Shri Abhimanyu Singh, IAS Secretary (Board of Revenue) Bihar State 90. Shri Ranchhor Prasad, ICS Dy. Chairman Planning Board (Retired) Industries Deptt. 91. Shri U.K. Bharadwaj, IAS Commissioner 92. Shri R.L. Bawa Chief Town Planner Bihar State Road 93. Shri V. Prabhakaran, IAS Mg. Director Transport Corpn. Census 94. Shri Kalra Dy. Director (Census) 10. Madhya Pradesh Govt. of M.P. Deptt. of Housing & 95. Shri M.N. Buch, IAS Secretary Environment, Bhopal Deptt. of Town Plg. 96. Shri K. Kaplish Addl. Director Bhopal (Town Plg.) Town Planning, 97. Shri Pahlajani Jt. Director Raipur Special area Dev. Authority, 98. Chairman and Chief Executive Durg 11. West Bengal : 1. Calcutta Centre for Study in 99. Dr. Barun De Director Social Sciences 100. Dr. Bhabatosh Dutta 101. Prof. Ashok Sen Indian statistical 102. Prof. Ashok Mitra Economics Deptt. institute TISCO (Calcutta 103. Shri R.P. Gupta P.R.O. Br.) Census 104. Shri S.K. Sinha Dy. Director (Census) 11.2 Kharagpur Indian Institute of 105. Prof. R.L. Muni Chakrabarty Deptt. of Technology, 106. Prof. C.R. Pathak Architecture & Kharagpur Reg. Plg. 107. Prof. B.C. Chattopadhyay

13.7 Organization Officers with whom Designation contacted discussions were held 12. Others Census 108. Shri Tirath Dass Dy. Director (Census), MP 109. Shri B.C. Das Dy. Director (Census), Orissa. Calcutta Education 110. Shri S.P. Niyogi Dy. Director of Statistics Directorate C.M.P.O. 111. Shri S.B. Mukerjee Chief Economic Planner C.M.D.A. 112. Shri S.K. Roy Director of Planning 113. Shri B. Sengupta Demographer Statistician 114. Shri M.B. Ghosh Director, Area Dev. Office of the 115. Shri Som Registrar Registrar of Societies, West Bengal

APPENDIX - 14 : REFERENCES 14.1

Chapter - I

1. Census of India - 1971 - (1971) : General Population Tables - Pt. IIA, Series 16 - Orissa, Cuttack.

2. Census of India - 1971 - (1975) : General Population Tables - Series 1, INDIA, Pt. IIA. (i), New Delhi.

3. Bose, Ashish -(1973) - Studies in India's Urbanisation (1901-1971), Tata McGraw Hill, Bombay.

4. Third Five-Year Plan, Report of Planning Commission, New Delhi.

5. Golany, Gidion- ( 1976) - New Town Planning, Wiley, .

6. Bed Prakash - (1969) - New Towns of India - Monograph and Occasional Paper Series, Monograph No. 8, Duke University, U.S.A.

Chapter -II

7. Steiler, Konrad - 'Rourkela' - Indo-German Krupp & Demag - IGKD, German Plan. (Mimeo).

8. Hindustan Steel Limited - (1976) - Regional Distribution of Economic Benefits Arising from a Steel Plant - A Case Study of Rourkela Steel Plant. (Mimeo, Ranchi).

9. Hindustan Steel Limited - (1967) -Resolutions of the Committee of Management, (Mimeo, Ranchi).

11. Indian Institute of Technology, Kharagpur - (1964) - Master Plan for 'Rourkela' Notified Area Committee (Civil Township)- (Mimeo), Kharagpur).

12. Indian Institute of Technology, Kharagpur - (1966) - A Master Plan for Bhilai, (Mimeo, Kharagpur).

13. Choubey, H.K. : (1975) - Bhilai Steel Project and Its Impact on the Towns of Chhattisgarh, Indian Institute of Geography, Secunderabad.

14. Government of Madhya Pradesh - (1959) - Socio-Economic Survey of Bhilai Region, Pt. I (First Round :1955-56) Director of Economics & Statistics, Madhya Pradesh, Bhopal.

15. Indian Institute of Technology, Kharagpur - (1963) - Durgapur Regional Master Plan, Draft Report, Mimeo, Kharagpur. 14.2 Chapter - II (contd.)

16. Master Plan for Durgapur, Mimeo, Calcutta.

17. Sivaramakrishnan, K.C. - Durgapur as a New Town, Mimeo, APO, Asansol.

18. Sivaramakrishnan, K.C. - Durgapur - A Decades Growth, Mimeo, APO, Asansol.

19. Govt. of West Bengal, APO and DDA - (1970) - Basic Plan and Design Report on the City Centre for Durgapur, Mimeo, Durgapur.

20. Govt. of West Bengal, APO and DDA - (1969) - City Centre for Durgapur, Mimeo Durgapur.

21. Govt. of West Bengal, APO - (1966) - Interim Development Plan, Asansol - Durgapur, Calcutta.

22. Govt. of West Bengal, APO, CMPO, DDA - (1968) - A Perspective Structure Plan for Durgapur, Mimeo, Durgapur.

23. Basu, D.N.- (1969) - The Socio-Economic Survey in the Asansol-Durgapur Region - A Background Paper describing the Survey Design and Analysis, Mimeo, APO, Asansol.

24. Bhattacharyya, A. - (1965) - Inter-industry Transaction in Asansol- Durgapur-Chittaranjan Belt, Mimeo, APO, Asansol.

25. Bhattacharyya, A. - A Comparative Analysis of the Industrial Mix of Asansol-Durgapur Belt, Mimeo, APO, Asansol.

26. Bokaro Steel Limited, Architecture & City Planning Department (1974), Bokaro Steel (Urban Complex) - An Approach to 4.5/5.5 - 10 MT Master Plan, Mimeo, Bokaro Steel City.

27. Bokaro Steel limited, Architecture & City Planning Department (1966), General Plan, Bokaro Steel City.

28. Roychowdhury, P.C. - (1964) - District Gazetteer, Dhanbhad, Secretariat Press, Patna.

29. Gipromez - (1966) - Bokaro - A Detailed Project Report, Mimeo.

30. Govt. of Orissa, Urban Development Department - (1975), Report of the State Municipal , Orissa, Pt. I, Report & Recommendations, Cuttack.

31. Roychowdhury, P.G., (1959) - Singhbhum District Gazetteer, Secretariat Press, Patna.

32. Misra, B.R. - (1954-55) -The Socio-Economic Survey of Jamshedpur City during 1954-55, Patna. 14.3 Chapter -II (contd.)

33. Koemingsberger. Dr. O.H.O. Jamshedpur Development Plan - unpublished (1944).

34. Temple, F.C. - (1919) - Planning of Jamshedpur - Temple's Report, Town Administrator's Office, Jamshedpur (unpublished).

35. Government of Bihar, Town Planning Organization, LSG Department, 1973, Draft Master Plan 1966-1986, Jamshedpur - Adityapur Industrial Complex, vol. I text, Patna.

36. Government of Bihar, Town Planning Organization, LSG Department, 1973, Draft Master Plan 1966-1986, Jamshedpur-Adityapur Industrial Complex, Vol. II drawings, Patna.

37. Nayak - (1954) - Report of the Special Committee on 'Town Administration, Jamshedpur.

Chapter - III

38. Government of India Town & Country Planning Organization, Project Planning Division, 1973, Note on Norms and Space Standards for Planning of Public Sector Project Townships, New Delhi.

39. Hindustan Steel Limited - (1971) - Report on Township Construction Costs, Mimeo, Ranchi.

40. Committee on Plan Projects - 1963 - Report on Industrial Townships, New Delhi.

41. Committee on Public Undertakings - (1965)—The Townships and Factory Buildings of Public Undertakings, Third Lok Sabha Eighth Report, Lok Sabha Secretariat. New Delhi.

42. Govt. of India, Ministry of Finance, Bureau of Public Enterprises, - (1976) - Compendium of BPE Circulars, Vol. 1, Mimeo, New Delhi.

43. Committee on Public Undertakings - (1975) - Seventy seventh Report on Steel Authority of India Limited, Fifth Lok Sabha (1975-76) - Lok Sabha Secretariat, New Delhi.

44. Committee on Public Undertakings - (1974) - Report on Hindustan Steel Limited, Lok Sabha Secretariat, New Delhi.

45. Steel Authority of India - (1975) - Third Annual Report, 1974-75, New Delhi.

46. Hindustan Steel Limited, Annual Reports, 1957-1975. 14.4 Chapter - IV

47. Government of India, Ministry of Steel & Mines - (1976) - White Paper on Steel Industry, Deptt. of Steel, New Delhi.

48. Committee on Public Undertakings, - (1973) - Personnel Policies and Labour Management Relations in Public Undertakings, Fifth Lok Sabha Thirtieth Report, New Delhi.

49. Bureau of Public Enterprises - (1976) - Government Policy for the Management of Public Enterprises - A compendium of BPE Circulars, Vol. I and Vol. II, New Delhi.

50. Tisco, Jamshedpur - (1976) : Annual Administration Report - Medical and Plant Medical Departments, 1975-76, Jamshedpur.

51. Steel Authority of India Limited - (1976) - SAIL News - Bhilai Special, New Delhi.

52. Steel Authority of India Limited - (1976) - SAIL News -Rourkela Special, New Delhi.

53. Bokaro Steel Limited, Public Relations Department (1976) - Bokaro the Human Story, Calcutta.

54. Public Relations Department, Rourkela Steel Plant - (1976) - Rourkela - the nation's prides, Mimeo, Rourkela.

55. Bhilai Steel Plant, Public Relations Department - (1973) - Bhilainagar, mimeo, Calcutta.

56. Tata Iron & Steel Company - Community Development & Social Welfare, Annual Reports, mimeo, Jamshedpur.

57. Telco - Community Development Programmes, Annual Reports, Jamshedpur.

58. - 1976 (April 30) - Bokaro Steel Limited, Social Welfare and Other Amenities, article, Calcutta.

59. Hindustan Steel Limited, Annual Reports - 1957-1975, mimeo, Calcutta.

60. Report of the Education Commission - 1964-1966 - Min. of Education 1966. New Delhi.

61. Govt. of India, Ministry of Labour & Rehabilitation - 1969 - Report of the National Commission on Labour, New Delhi. 14.5 Chapter IV (contd.)

62. UNICEF - Statistical Profile of Children and Youth in India - Annual Reports - 1974, 1975, mimeo, New Delhi.

63. NCERT - 1967 - Second All-India Educational Survey, New Delhi.

64. National Buildings Organization Report on Survey of Family Structure and Community Facilities in Townships of Public Sector Undertakings mimeo, New Delhi.

Chapter - V

65. Golani, Gideon - (1976) - New Town Planning, Wiley, New York.

66. Glass, Ruth - two visits to Durgapur - letters to Shri Tarlok Singh, Member, Planning Commission.

67. Layton, Elizabeth - Administration of New Towns in the United Kingdom, the Netherlands and Canada - article published.

68. Jankinath, A. - A paper on "The Town Administration of Jamshedpur, Tisco, Jamshedpur".

69. Nayak - 1954 - Report of the Special Committee on Town Administration, Jamshedpur.

70. Tisco - Town Administration Department - Annual Reports, Jamshedpur.

71. Unpublished papers of Notified Area Committees of Bhubaneswar, Rourkela, Durgapur and other documents relating to the Town Administration of the New Towns under study have also been consulted.

Others: (part - I)

1. Basu, D.N. - (1968) - Income Distribution and Expenditure Pattern in Durgapur, mimeo, APO, Asansol.

2. Bhatt, N.B., 1957 - Landuse Pattern in the Durgapur Region, M. Tech. Thesis, IIT, Kharagpur, unpublished.

3. Bhattacharyya, A. - Problems and Possibilities of Growth of Ancillary Industries in the Industrial-cum-Mining Belt of Chittaranjan, Asansol - Durgapur area, APO, mimeo, Asansol. 14.6. 4. Burton, Ian - Resource Management. Project Design for a Pilot Study of Water Management in Asansol-Durgapur.

5. Chakrabarty, Dr. Asutosh - The Story of Durgapur.

6. Chattopadhyaya, B.C., et al - (1967) - Planning for A Coal Steel Complex, mimeo, APO, Asansol.

7. Das, Rai Charan - (1976) - Report of the Land Organisation (Town Administration Department), Rourkela Steel Plant, mimeo, Rourkela.

8. Durgapur Development Authority - (1969) - Administrative Reports, Durgapur.

9. Ghosh Bijit - Master Plan of Durgapur - Design - Vol. 7, No.7, unpublished.

10. Govt. of India - Publications Division - (1976), India Reference Annual, 1976, New Delhi.

11. Govt. of West Bengal, APO, 1969, Socio-Economic Survey in the Asansol - Durgapur Region.

12. Indulkar, I.S. - (1957) - Durgapur Development Projects, Administration and Legislation, M. Tech. Thesis, III, Kharagpur, unpublished.

13. Karim, A and Nazmul, K - (1956) - Changing Society in India and Pakistan, a study is in social change and social stratification.

14. London Council - (1961) - The Planning of a New Town.

15. Pakrasi, Kanti - (1962) - A study of some aspects of Structural Variation among immigrants in Durgapur. (Man in India), Calcutta.

16. Rangachari, K. (Statesman) - New Initiatives needed to promote investment - Durgapur.

17. Rangachari, K.- Neglegted problems of an Industrial Complex - Durgapur, mimeo.

18. Roy, Turner (ed.) - (1962) - India's Urban Future - Selected studies.

19. Schaffer, Frank - (1970) - The New Towns Story.

20. Sharp, Thomas - (1918) - Town and Townscape.

21. Sovani, N.V. - (1966) - Urbanization and Urban India, New York, Asia Publishing House.

22. Viet, Gean - (1960) - New Towns - A selected annotated bibliography, UNESCO, Paris. 14.7 Others : (part-II)

Census publications:

1. Census of India, 1971 (1975) - General Population Table - Series I, India, Pt. IIA (i), New Delhi.

2. Census of India, 1971 - (1972) -District Census Handbook, Singhbhum District, Part X (A) & X (B), Series 4, Bihar, Patna.

3. Census of India, 1971 (1972) - District Census Handbook, Dhanbad District, Part X (A) and X(B), Series 4, Bihar, Patna.

4. Census of India, 1971 - (1972) - Economic Tables, Madhya Pradesh, Part II-B (1), Series 10, Madhya Pradesh, Bhopal.

5. Census of India, 1971 - (1973) : General Population Tables, Madhya Pradesh II-A, Series 10, Madhya Pradesh, Bhopal.

6. Census of India, (1972) - District Census Handbook, Parts X (A) and X (B), Durg District, Series 10, Madhya Pradesh, Bhopal.

7. Census of India, 1971 (1972) - District Census - Handbook, Sundergarh District, Part X (A), Series 16, Orissa, Cuttack.

8. Census of India, 1971 (1972) - District Census Handbook, Sundergarh District, Part X (B), Series 16, Orissa.

9. Census of India, 1971 - (1975) -General Population Tables (Standard Urban Areas), Part II, A Supplement, Series-16, Orissa, Cuttack.

10. Census of India, 1971 (1972) -District Census Handbook, Puri District, Part X (A), Series -16, Orissa, Cuttack.

11. Census of India, 1971 - (1972) - District Census Handbook, Puri District, Part X (B), Series-16, Orissa, Cuttack.

12. Census of India, 1971 (1971) - General Population Tables, Part II-A, Series-16, Orissa, Cuttack.

13. Census of India, 1971 - (1973) - General Population Tables. West Bengal, Part II-A, Series 22, West Bengal, Calcutta.

14. Census of India, 1971 - (1973) - District Census Handbook, Burdwan District, Part X (A & B) Series 22. West Bengal, Calcutta.

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