analysis of government policies on slums...
TRANSCRIPT
Analysis of Government Policies on Slums Upgradation
241
CHAPTER-V
ANALYSIS OF GOVERNMENT POLICIES ON
SLUMS UPGRDATION
5.1 INTRODUCTION
The present chapter deals with the evaluation of Government policies
on slum rehabilitation or upgradation in relation to the slum dwellers from
the national level to the city level. Attempt has been made to see what are the
Major projects and programmes by the government (Central, State and City)
has brought in done for solving the problems of slum dwellers. This chapter
presents the evolution of upgradation programmes in the Mysore City, its
present condition and causes for the same etc. It also made an attempt on
institutions involved in planning the city infrastructure, historic evolution and
growth of Municipal administration, impact of CAA on Municipal
administration in the present context for planning the city infrastructure. It
also addresses the inter agency co-ordination for planning the city
infrastructure and to ensure better outcomes.
5.2 SLUM UPGRADING PROGRAMMES
Slum upgrading is a process through which informal areas are gradually
improved, formalized and incorporated into the city itself, through extending
land, services and citizenship to slum dwellers. It involves providing slum
dwellers with the economic, social, institutional and community services
available to other citizens. These services include legal (land tenure), physical
(infrastructure), social (such as crime or education) or economic. Upgrading
activities should be undertaken by the local government with the participation
of all parties—residents, community groups, businesses, and national
authorities. Another key element is legalizing or regularizing properties and
providing secure land tenure to residents. People who are safe from eviction
with a sense of long-term stability—whether they own the land or not—are
much more likely to invest in their housing or community. Over time, these
incremental improvements by residents can upgrade the entire community.
Analysis of Government Policies on Slums Upgradation
242
The following list displays some of the most common issues addressed by
slum upgrading programs:
a) Legalization of tenure status for sites and houses, including
regularization of rental agreements to ensure improved tenure.
b) Provision or improvement of technical services e.g., water, waste and
waste water management, sanitation, electricity, road pavement, street
lighting, etc.
c) Provision or improvement of social infrastructure such as schools,
clinics, community centers, playgrounds, green areas, etc.
d) Physical improvement of the built environment, including
rehabilitation/improvement of existing housing stock.
e) Construction of new housing units (Housing construction can but
doesn’t necessarily form part of upgrading schemes. Often enhancing
and rehabilitating the existing housing stock is much more sensible and
effective and can be achieved at little cost through legalization of
tenure status or regularization of rental agreements.)
f) Changes in regulatory framework to better suit the needs and
opportunities available to the poor, as far as possible keeping to
existing settlement patterns.
People have a fundamental right to live with basic dignity and in decent
conditions. It is also in a city’s best interest to upgrade slums and prevent new
ones from forming. If slums are allowed to deteriorate, governments can lose
authority within a city, exposing slum dwellers to informal systems of service
provision and control, with slums becoming areas of crime and disease that
can affect the whole city. Moreover, in-situ slum upgrading is one of the most
viable, affordable
Ways to provide housing to the urban poor and can be implemented
incrementally.
The most important factors are strong political will on behalf of
government, strong buy-in on the part of communities, and a sense of
partnership among all parties. The slum upgrading initiative must meet a real
need; people must want it and understand why it is important. It is also
beneficial if upgrading activities are city-wide and involve partners beyond the
slums themselves, especially for implementation. And to keep slum upgrading
going, it should be a priority in financing, institutions and regulations.
Analysis of Government Policies on Slums Upgradation
243
5.3 SLUM UPGRDATION PROGRAMMES IN INDIA
Table-5.1: Slum Population 2001
Slum population 1991 46.26 million
Slum population 2001 61.28 million
No. of towns reporting slums in Census 2001
640
Reported slum population in 640 towns, 2001
42.58 million
Population of towns/cities reporting slums, 2001
184.35 million
Share of slum population to population of towns/cities reporting slums, 2001
23.1%
Source: Census of India 2001.
Table-5.2: Slum Housing scheme
Sl.No Name of the Scheme Started in
1
2
3
4
5
6
7
Indira Awas Yojana
EWS Housing Scheme for Beedi workers and Hamals
National Slum Development Programme
A two millison Housing Programme for EWS
PM Gramin Aqas Yojana
Valmiki Ambedkar Awas Yojana (VAMBAY)
JNNURUM (BSUP and IHSDP)
1990
1991
1996
1998
2000
2001
2005
Source: National Sample Survey organization (NSSO) Report2008-09
5.3.1 Urban Basic Services Scheme (UBS)
The Urban Basic Services Scheme (UBS) was initiated on a pilot basis in
1986, with the involvement of the UNICEF and the State Governments, for the
provision of basic social services and physical amenities in urban slums. The
primary objective was to enhance the survival and development of women and
children of urban low income families. It also aimed at provision of learning
Analysis of Government Policies on Slums Upgradation
244
opportunities for women and children, and community organization for the
slum population. The services to be delivered included environmental
sanitation, primary health care, pre-school learning, vocational training and
convergence of other social services at the slum level. UBS applied to all urban
slums.
5.3.2 Urban Basic Services for the Poor (UBSP)
During 1990-91, the previous UBS scheme was revised and enlarged
with 100% Central funding and came to be known under the new name of
Urban Basic Services for the Poor (UBSP). UBSP sought to bring about a
functional integration between the provision of social services under the
previous UBS, and the provision of physical amenities under the State sector
scheme of Environmental Improvement of Urban Slums (EIUS). It sought to
provide an integrated package of social services by creating neighborhood
committees of the residents at the slum level. Its emphasis lay on mother and
child healthcare; supplementary nutrition and growth monitoring, pre-school,
non-formal and adult education; and assistance to the handicapped or
destitute. In 1993-94, the UBSP mission was expanded to include the
achievement of the objectives of the National Action Plan for children. By the
end of the 8th Plan, the primary objective of UBSP programme was “to create
participatory based community structures which identify and prioritize social
service needs, and help implement, maintain, and monitor delivery”. UBSP
emphasized community based management. It envisaged the appointment of
Community Organizers (CO) and setting up of Neighbourhood level
Development Committees (NDCs) who would ultimately select the services to
be provided. Priority was given to women while setting up these committees,
and their participation was sought in selection of services. The onus of
choosing from competing social inputs lay with the Neighbourhood
Committees of the slum dwellers. The Scheme sought to empower
communities by allowing the creation of registered Community Development
Societies - drawing one representative each from ten Neighbourhood
Committees. UBSP was eventually subsumed under the Swarna Jayanti Shahari
Rozgar Yojana (SJSRY).
Analysis of Government Policies on Slums Upgradation
245
5.3.3 Nehru Rozgar Yojana (NRY)
NRY was a Centrally Sponsored scheme launched in October 1989 with
the objective of providing employment to the unemployed and
underemployed urban poor - targeted towards persons living below the
poverty line. Within the target group of the urban poor the Scheduled Castes
and the scheduled Tribes had special coverage through earmarking of funds
NRY activities included skill upgradation, assistance for setting-up micro-
enterprises, wage opportunity through construction of public assets and
assistance for Shelter Upgradation. The NRY consisted of three schemes.
Table- 5.3: Urban Poverty Programmes
URBAN POVERTY ALLEVIATION PROGRAMMES FROM UCD TO SJSRY TO BSUP/JNNURM
1958 Urban Community Development (UCD)
1972 Environmental Improvement of Urban Slums (EIUS)
1981 Low Cost Sanitation for Liberation of Scavengers
1986 Urban Basic Services(UBS)
1986 Self Employment Programme for the Poor (SEPUP)
1989 Nehru Rozgar Yojana (NRY)
1990 Urban Basic Services for the Poor (UBSP)
1995 Prime Minister’s Integrated Urban Poverty Eradication Programme
1996 National Slum Development Programme (NSDP)
1997 Swarna Jayanti Shahari Rozgar Yojana (SJSRY)
2005 Basic Services for Urban Poor (BSUP) /Jawarlal Nehru National Urban Renewal Mission (JNNURM)
Source: National Sample Survey organization (NSSO) Report 2008-09
5.3.4 Swarna Jayanti Shahri Rozgar Yojana (SJSRY)
The SJSRY was launched on December 1, 1997, to provide gainful
employment to the urban unemployed or underemployed (below the poverty
line) by encouraging setting up of self- employment ventures or provision of
wage employment. It subsumed the earlier three urban poverty alleviation
schemes, namely UBSP, NRY and PMIUPEP. The programme was based on the
same pattern of community organizations as prescribed under UBSP. SJSRY
Analysis of Government Policies on Slums Upgradation
246
consists of two major components, namely: (i) The Urban Self Employment
Programme (USEP) (ii) The Urban Wage Employment Programme (UWEP). A
subcomponent of USEP is the Development of Women and Children in Urban
Areas (DWCUA). The SJSRY rests on the foundation of community
Empowerment, and relies on creation of suitable community structures and
delivery of inputs through ULBs. Towards this end, community organizations
like Neighbourhood Groups (NHGs), Neighborhood Committees (NHCs) and
Community Development Societies (CDSs) are to be set up in the target areas
based on the UBSP pattern.
5.3.5 National Slum Development Programme (NSDP)
The objective of NSDP was the upgradation of urban slums by
providing physical amenities like water supply, storm water drains,
community bath, widening and paving of existing lanes, sewers, community
latrines, street lights etc. Besides, funds could also be used for provision of
community infrastructure and social amenities such as pre-school education,
non-formal education, adult education, maternity, child health and primary
health care including immunization etc. The programme also had a
component of shelter upgradation as well as improvement and convergence of
different social sector programmes through creation of sustainable support
systems. The focus was to be on community infrastructure, provision of
shelter, empowerment of urban poor women, training, skill up gradation and
advocacy and involvement of NGOs, CBOs, private institutions and other
bodies. NSDP was subsumed under Jawaharlal Nehru Urban Renewal Mission
(JNNURM) and was discontinued from the financial year 2005-2006.
5.3.6 Valmiki Ambedkar Awas Yojana (VAMBAY)
Launched on December 2, 2001 in the final year of the Ninth Plan, the
primary aim of the centrally sponsored scheme VAMBAY was to facilitate the
construction and upgradation of dwelling units for people living below the
poverty line in urban slums and who do not possess adequate shelter. It also
aimed to provide health services and an enabling urban environment through
community toilets under, Nirmal Bharat Abhiyan a component of the scheme.
Twenty per cent of the total allocation under VAMBAY was to be provided for
sanitation, and community toilets were to be built for the urban poor and
slum dwellers.
Analysis of Government Policies on Slums Upgradation
247
VAMBAY was the first scheme of its kind meant exclusively for slum
dwellers with a Government of India subsidy of 50 per cent, the balance 50 per
cent was to be arranged by the State Government with ceiling costs prescribed
both for dwelling units/community toilets. The upper limit for upgradation of
an existing unit was 50 per cent of the cost ceiling specified for the
construction of a new house. The programme was implemented in partnership
with State Governments, who were to set up the implementation machinery,
arrange for land where required, and arrange for the credit Component of the
housing programme. The entitlement of the States under the scheme was in
proportion to their slum population. The State's share may consist of funds
from any source in the form of subsidy or loan from Housing and Urban
Development Corporation Limited (HUDCO) or any other agency. Proposals
were submitted by the State nodal agencies to HUDCO who, in turn, processed
and forwarded them to the Ministry with their recommendations. The funds
were released by the Ministry only after a VAMBAY account was opened by the
State Nodal Agency and the share of the State/UT Government was deposited
in that account. The programme has since been subsumed under JNNURM.
5.3.7 Jawaharlal Nehru National Urban Renewal Mission (JNNURM)
The Ministry of Housing and Poverty Alleviation (MOHUPA) is the nodal
ministry for the JNNURM Sub-mission on Basic Services to the Urban Poor
(BSUP) covering the 82 identified mission cities, and for the Integrated
Housing and Slum Development Programmes (IHSDP) that covers non-mission
towns and cities. The programmes provide housing and basic amenities (such
as sanitation, water supply, sewerage, solid waste disposal, etc.) to the urban
poor, especially slum dwellers.
5.3.8 Urban Basic Services for the Poor (UBSP)
The previous UBS scheme was revised and enlarged with 100% Central
funding during this period to bring about functional integration with EIUS and
came to be known as, Urban Basic Services for the Poor (UBSP). Its emphasis
was on mother and child healthcare; supplementary nutrition and growth
monitoring, preschool, non- formal and adult education; and assistance to the
handicapped or destitute.
Analysis of Government Policies on Slums Upgradation
248
5.3.9 Environmental Improvement of Urban Slums (EIUS)
In terms of Plan outlay, EUIS remained the most significant programme
in the urban sector during the Seventh Plan and Annual Plans.
5.4 DEPARTMENT OF HOUSING-GOVERNMENT OF KARNATAKA
5.4.1 SLUM IMPROVEMENT SCHEMES Under this scheme, slum areas get the
basic amenities like Drinking water, Streetlight, community Toilet,
Community Bathroom, U.G.D. Storm water Drain etc. As per guidelines
of slum improvement schemes the per capita expenditure of Rs. 800.00
is incurred for development works in selected slums. The released
amount of Rs. 80.00 lakhs has been spent for these works.
5.4.2 HUDCO ASSISTED HOUSING SCHEME. During 2003-04, Valmiki
Ambedkar Awas Yojana housing scheme was sanctioned by Central
Govt. to the slum dwellers. HUDCO assisted housing scheme was
temporarily discontinued.
Table-5.4: Upgrdation Programmes
Sl.No Name of the Scheme Started in
1
2
3
4
5
6
7
Indira Awas Yojana
EWS Housing Scheme for Beedi workers and Hamals
National Slum Development Programme
A two millison Housing Programme for EWS
PM Gramin Aqas Yojana
Valmiki Ambedkar Awas Yojana (VAMBAY)
JNNURUM (BSUP and IHSDP)
1990
1991
1996
1998
2000
2001
2005
Source: Ministry of Housing and Urban Poverty alleviation. GOI
5.4.3 OTHER UPGRDATION SCHEMES
NATIONAL SLUM DEVELOPMENT PROGRAMME (NSDP) Central Government
is allotting the funds to States for welfare of the slum dwellers. During the
year 2003-2004 an amount of Rs. 20.61 Crores was released under NSDP to
the State Government. Out of this 30% as grant and remaining 70% as loan.
The NSDP funds are not released directly to the Board, but the State
Government in its annual budget 2003-04 allocated an amount of Rs.29.20
Analysis of Government Policies on Slums Upgradation
249
Crores to KSCB. Out of this Rs. 27.58 crores has been released of which Rs.
25.00 crores is towards repayment of HUDCO loan. Nirmala Jyothi Rs 1.60
crores, slum Improvements Rs. 0.80 crores and Site and Service Rs. 0.18
crores. This amount has been spent by the Board to the said purposes.
ASIAN DEVELOPMENT BANK SCHEME: During the year 2003-04 slum
improvement works for an amount of Rs. 420.42 lakhs has been proposed and
approved by the KUIDFC Bangalore. In this programme an amount of Rs.
198.06 lakhs for Mysore II stage works and Rs. 222.36 lakhs for Mandya and
Maddur slum areas. An amount Rs. 466.56 lakhs has been spent upto March
2004 and Works have been completed.
NIRMALA JYOTHI PROGRAMME
The Nirmala Jyothi programme was sanctioned in Govt. Order No. HD 13 KSCB
2000 Bangalore Dated 15-01-2001. The project cost is Rs.274.00 to develop
998 slums in 21 Class - I cities of the state. The state Govt. grant is Rs. 54.00
crores and Rs. 220.00 crores is the Hudco loan. The programme was launched
during August 2002. In the first phase of the programme 260 slums have been
taken up to provide the basic amenities like drinking water, roads, and drains,
streetlights, toilets and UGD. The Works have been completed in 4 cities and
the remaining works in 17 cities is expected to complete by Nov.-Dec. 2004.In
the 2nd Phase of the Nirmala Jyothi programme all preparatory works has
been completed to call for tenders to provide basic amenities in 265 slums of
18 Class I cities at an estimated cost of Rs.66.94 Crores. This is a massive
slum improvement programme initiated by Govt. of Karnataka to provide
basic amenities to the Slum dwellers to keep the slums in hygienic and better
living conditions.
1. Rajiv Gandhi Rural Housing Corporation Limited – a registered
company set up under the Companies Act.
2. Karnataka Housing Board – a Board set up under the Karnataka
Housing Board Act.
3. Karnataka Slum Clearance Board – a Board set up under the Karnataka
Slum Areas Improvement and Clearance Act.
4. Karnataka Rajya Nirman Kendra – a registered society set up by the
state government under the Societies Registration Act.
Analysis of Government Policies on Slums Upgradation
250
Table-5.5 : Comparison of Housing and Slum Dweller Programs
Program To State To Beneficiaries
NSDP 70% Loan
30% Grant
For special category states, the
amount is given as 90% grant
and 10% loan.
Selection and development of
one slum in each city as a
“model slum” in the case of
Karnataka
10% of NSDP funds can be used
for housing construction
and/or upgradation (the rest
should be used for physical and
social infrastructure).
Housing provided on loan (Rs.
50,000); amenities free of cost
VAMBAY 50% Central subsidy
50% matching funds from State
From GOI routed through
HUDCO
80% of total amount received
from GOI spent on housing of
which:
50% given as subsidy
50% as loan.
20% to be invested in the
provision of water supply and
sanitation (toilets) within the
assisted slums
IAY 80% federal grant
20% state grant
Rs. 20000 in housing grants
(Rs. 22000 in hilly and difficult
areas) for housing construction.
The amount to be used for
construction of sanitation
facilities and ‘clean’ cooking
facilities.
Infrastructure to be provided
by the implementing agency.
Urban
Ashraya
GOK takes loans from HUDCO
Housing loans ranging from Rs.
25,000 to 40,000 provided per
the size of city, excluding Rs.
5,000 upfront deposit
100% loan
Analysis of Government Policies on Slums Upgradation
251
Program To State To Beneficiaries
Mythri Program
Gov. of Kerala takes loans from HUDCO
Total subsidy Rs. 28000 of which 19000 in loans at 5.5 % interest rates (HUDCO interest rates of 13.5%) and cash grant of Rs. 9000.
Beneficiary contribution of Rs. 2000
Bhavanashree Programs
From various financial institutions
Loans between Rs. 30000/- to Rs. 40000/-
No subsidy in loan interest rates (between 7% to 8% interest rates).
Sources: KSCB and RGRHCL, Bangalore, March 2003 and KSHB and, January 2004. Ministry of Rural Development website.
5.5 EVALUATION OF SLUM UPGRADATION PROGRAMS IN THE CITY
Five criteria were used in the analysis of these programs: Targeting,
Efficiency, Transparency, Administrative Simplicity and Sustainability. In the
absence of highly specific data, It is fully in the spirit of the way the World
Bank undertakes ex-post evaluations of its projects – assigning a level of
performance based as much as possible on quantitative measures. Moreover,
this approach not only sheds light on the strengths and weaknesses of these
programs, but it also requires policy-makers to consider explicitly how and
why they believe a program performs against a specific standard.
Each of the programs are rated on the five criteria on a scale of 1 to 4 in
increasing order of excellence. A program that rates poorly gets a score of 1
while a program that satisfies all the concerns under specific criteria gets a
score of four. While some of these programs can be vastly improved by some
small changes in the program structure, other programs need wholesale
reform in the way they are designed.
Analysis of Government Policies on Slums Upgradation
252
Table-5.6: Rating of Housing and Sanitation Programs
Targeting
Transparency
Efficiency
Administrative
Sim
plicity
Sustainability
Total Rating
Vambay 1.67 2 1 1 1 6.67
Nsdp 1.33 2 1 1 1 6.33
Iay 2 3 3 1 1 10
Urban Ashraya 1.5 2 2 2 1 8.5
Mythri 3 1 2 2 1 9
Bhavanashree 3.5 2 3 3 2 13.5
Pune Program 3 3.5 2 3 2 13.5
NBA 3 2 2.5 2 2 11.5
*The targeting rating is the average of the ratings each program got for each of the three targeting components. See Table 2.
(Key: 4 – Excellent, 3 – Good, 2 – Fair, 1 – Poor)
The twin sanitation programs rate better than the low-income housing
programs. The most notable improvement of these sanitation programs are
better targeting through greater community participation and better efficiency
through the institution of user fees. However, there is much room for
improvement in the sanitation programs. The capital costs in both programs
are either fully or very heavily subsidized. Given the demand for sanitation
facilities in India, it might be more sustainable and more efficient to include a
beneficiary contribution element to the funding of capital costs. This will
necessitate that the local government work with CBOs in designing and
building these programs. Such collaboration will not only ensure that these
programs are more sustainable but also improve consumption efficiency.
5.5.1 Criteria for Evaluating Subsidy Programs
Targeting: Targeting is traditionally measured in three ways:
(1) How much of a transfer actually goes to beneficiaries, in these case
poor urban slum dwellers, as opposed to those for whom the subsidies
Analysis of Government Policies on Slums Upgradation
253
were not intended? In other words, how much of the expenditure can
be viewed as “leakage” from its intended target. The higher the leakage
of resources to, for instance, higher income families, the lower is the
effectiveness of targeting on this scale;
(2) How much of the intended audience, in this case all poor urban slum
dwellers, receives a transfer? That is, how much “coverage” of the
intended audience is allowable with the resources available; and
(3) How much of the resources given to the intended beneficiaries actually
goes to housing improvements? When a subsidy is for a specific and
expensive good, such as housing, the subsidy per beneficiary must be
sufficient to achieve a reasonable improvement in their housing
conditions or at least enough to leverage other resources, which
together bring about a significant change in housing consumption.
Moreover, there are many levels at which targeting can be examined. At
the national level, how are the funds disbursed to the various states? At the
state level, what criteria are used for disbursing funds to the local
governments? And finally, at the local government level, how are the
beneficiaries identified and how much of their needs are addressed by the
programs? Hence, the study measures how each program fares on the three
levels: national, state and local. Then it gets an average score for targeting
based on the scores for each level of targeting. Though there is a degree of
subjectivity in the scores given to the programs, the paper argues that such an
ordinal rating of programs is possible based on program design and
implementation and that such a rating sheds light on program strengths and
deficiencies.
Sustainability: Any definition of sustainability runs the risk of being taking
out of context. Thus in defining sustainability, it must be clear what the
objective of the definition is, and conclude what it means in a particular
context. In this particular context, sustainability refers to whether the
government can scale up the housing subsidy program (and continued) to
Analysis of Government Policies on Slums Upgradation
254
effectively address all the intended beneficiaries. In addition, more often than
not, sustainability will mean financial sustainability. There might be programs
that make a real difference in the housing consumption patterns of the
beneficiaries. However, if these programs provide per unit subsidies far in
excess of the financial wherewithal of the state, then such programs would
rank low on this sustainability index.
5.5.2 Rating of Housing and Sanitation Programs
Targeting. Targeting refers to the extent to which the programs reach
the intended beneficiary as well as to scope and scale of such benefits. Here
the paper examines the success of each program at three levels: national, state
and local targeting.
National Targeting For national targeting, the paper rated national
programs (VAMBAY, NSDP and IAY) on their ability to target the right state
according to need. GOI program funding is based on a perceived measure of
need in each state. For both the urban programs, GOI allocated funds based
on the number of slum dwellers in a particular state. The IAY allocates funds
based on the proportion of the rural poor in each state. The design of the
programs, therefore, appears to be well targeted in terms of avoiding leakage
of benefits. However, until the latest census, the measurement of the number
of slum dwellers was often left to the state governments who therefore had an
incentive to manipulate their numbers. Moreover, given the total number of
slum dwellers/rural poor relative to the level of resources, this targeting
spreads funds very thinly, and only a relatively small portion of those in need
can be served effectively. In effect, the targeting goal of maximum coverage
conflicts with the targeting goal of meaningful
Table 5.8 provides the ratings for the different programs under the
different levels of targeting. The last column provides the average targeting
rating.
Analysis of Government Policies on Slums Upgradation
255
Table-5.7 : Targeting Ratings for Housing Subsidy Programs
National
Targeting
State
Targeting
Local
Targeting
Average
Targeting
VAMBAY 2 2 1 1.67
NSDP 1 2 1 1.33
IAY 2 2 2 2
Urban Ashraya 2 1 1.5
Mythri 3 3 3
Bhavanashree 3 4 3.5
Pune Sanitation Project 3 3
Nirmal Bharat Abhiyan 3 3
Source: NSSO report 2010.
Transparency: For rating the transparency of the programs , how much of the
costs of the program the Government accounts for in the budget. If most of
the subsidies are implicit and absent in the budgeting then the program gets a
poor rating. If however, most of the subsidies are explicit, then the program is
rated higher on this ordinal rating system.
Table-5.8: BSUP Sanctioned Schemes
(Rs. in Crores)
Sl. No
Project Name CSMC
Approval Date Approved Project Cost
No of Sanctioned
Du's
1 Rehabilitation of 20 slums - Phase -I
11.10.06 67.58 2788
2 Rehabilitation of 46 slums - Phase -II
06.10.07 90.93 2500
3
Construction of houses and providing infrastructure works in the slums - Phase -III
20.02.09 47.78 1040
4
EWS Housing & Infrastructure Development in Mysore Corporation
28.02.09 52.35 1806
Total 258.64 8134
Source: KSCB Report 2008-09.
Analysis of Government Policies on Slums Upgradation
256
The SJSRY scheme was found to have been unsuccessful in providing
effective employment opportunities to the urban poor, and was sought to be
revised in keeping with the fact that urban areas have developed new skill
requirements. In the light of the above, in 2005-06, a programmatic shift
under eleventh Five Year plan was sought to be undertaken, with the revised
SJSRY to be a market-led approach, combined with an integrated provision of
backward and forward linkages. The scheme was to be revised in terms of all
three components: self-employment, wage-employment, and the structural
and organizational component.
After the launch of the Jawaharlal Nehru National Urban Renewal
Mission (JNNURM), housing and basic amenities to urban poor, especially slum
dwellers are to be delivered via the BSUP and IHSDP. These
schemes/programmes, in addition to improved housing, also cater to other
basic
5.6 INSTITUTIONAL ARRANGEMENTS FOR SLUM IMPROVEMENT IN
KARNATAKA
There are several legal instruments and state agencies directly or
indirectly concerned with slum Improvement and rehabilitation in Karnataka.
The Karnataka Slum Areas (Improvement & Clearance) Act, 1973 (KSAIC Act) is
the only instrument directly concerned with slum redevelopment. The KSAIC
Act of 1973 stipulates the procedures and rules for declaration or notification
of a slum and all the other related procedures for slum improvement and
rehabilitation and lays down the constitution of the Karnataka Slum Clearance
Board (KSCB), the agency exclusively entrusted with the responsibility of slum
improvement and rehabilitation. The second law that has significant
implications for the lives and livelihoods of slum dwellers is the one that deals
with evictions known as the Karnataka Public Premises Eviction of
Unauthorized Occupants Act 1974.
Analysis of Government Policies on Slums Upgradation
257
Table-5.9: Special Purpose Agencies
Sl. No
Agencies Founding Year
Functions Assigned Co-ordination Over lapping
1 City Improvement Trust Board (CIRB) and later
1903 • Acquiring the land, developing with all amenities.
• Selling it to the general public for residential purpose
• Construction of Group houses for public
CITB has been repealed after MUDA came in to existence
----
Mysore Urban Development Authority (MUDA)
1987
• Acquiring the land, developing with all amenities.
• Selling it to the general public for residential purpose
• Construction of Group houses for public
Lack of co-ordination with MCC, KUWS &DB and PWD
Functions overlap with KHB,KSCB and also with KIADB
2 Karnataka Urban Water Supply and Drainage board (KUWS &DB)
1975 • To provide protected Water supply and drainage system for all the urban areas.
Lack of coordination with MCC, MUDA, KHB, KIADB and KSCB.
Functions overlap with MCC and MUDA.
Analysis of Government Policies on Slums Upgradation
258
Sl. No
Agencies Founding Year
Functions Assigned Co-ordination Over lapping
3 Karnataka Slum Clearance Board (KSCB)
1973 • Improve the slum areas.
• Removal of unhygienic places and buildings
• Re developing of slum areas
• Clearance of slums and rehabilitation of slum dwellers
Lack of co-ordination with MCC, KUWS &DB and PWD
Functions overlap with MCC
4 Karnataka Housing Board (KHB)
1962 • Acquire the land and develop it with all amenities for residential purpose and Construction of group houses.
Lack of co-ordination with MCC, MUDA, KUWS&DB AND PWD
Functions overlap with MUDA, KSCB.
5 Karnataka State Industrial Area Development Board (KIADB)
1966 • Acquires the land and develops it as fully developed industrial plots
Lack of coordination with MCC, MUDA, KUWS & DB and PWD.
Nil
6 Public Work Department (PWD)
1947 • Plan design construction and maintenance of buildings, roads and bridges of various State Government Departments.
Lack of coordination with MCC, MUDA, KUWS & DB and PWD.
Overlaps with MCC & MUDA
Analysis of Government Policies on Slums Upgradation
259
5.7 KARNATAKA SLUM CLEARANCE BOARD
5.7.1 Constitution of the Board The Karnataka Slum Clearance Board was
constituted during July 1975 under the Provisions of the Karnataka Slum
Areas (Improvement and Clearance) Act 1973. The Board consists of 5 non
official members and 8 official members and the Chairman is the Head of the
Board. The commissioner of the Board is the Chief Executive Officer and
responsible for implementation of programmes of the Board. Certain
amendments to Karnataka Slum Clearance Board Act as passed in the
Legislature have been issued in the Govt. Order dt. 06/09/2002.
5.7.2 Objectives: The main objectives of the Board are: -
1. To take up Socio-Economic survey of the slums in order to study the
socio-economic conditions of the slum dwellers.
2. To identity and declare the slum areas as per Karnataka Slum Areas
(Improvement & Clearance) Act 1973.
3. To take up environmental improvement, clearance and redevelopment
of slums.
4. To enable the slum dwellers to live in hygienic condition by providing
basic amenities, such as drinking water, street lights, roads, drains,
community bathroom, storm water drain and community halls
wherever possible.
5. To construct houses for the Slum Dwellers by utilizing the amount
from Central and State Government grants and loan from HUDCO.
6. To under take environmental improvement, clearance and
redevelopment of slums,
7. To construct tenements for slum dwellers from loan assistance from
external agencies
8. To enable slum dwellers to live in hygienic conditions by providing
basic amenities like drinking water, toilets, street light, drains, roads,
community bath rooms, community toilets, etc.,
9. To prevent unauthorized constructions in said slum areas.
10. To take up environmental improvement clearance and redevelopment
of the slums
Analysis of Government Policies on Slums Upgradation
260
5.7.3 Environmental Improvement of Slums: As per KSCB Act 1973, the
Board is providing basic amenities namely drinking water, street light,
community latrines, community bathroom, drains, roads, storm water drain to
the declared slums.
Constructions of EWS Houses: The Board has a programme of
construction of the houses for the slum dwellers. This programme is being
implemented mainly in the existing slum dwellers. This programme is being
implemented mainly in the existing slums by removing the existing huts and
construction houses in the same place, further some of water logging and low
lying areas slums are rehabilitated.
5.7.4 Schemes and projects implemented by KSCB
The KSCB is a para- statal agency entirely dependent on funds and
grants allocated by the state and central Governments and loans extended by
the multilateral agencies. The governmental grants and loans are invariably
tied to various pre-designed schemes that perpetuate the conventional piece-
meal approach to development and limit the autonomy of KSCB in evolving a
comprehensive and integrated approach to slum improvement and
rehabilitation. Until the launch of VAMBAY in 2001, there was no
comprehensive central sector housing scheme for the slum dwellers.
Between the late 80s and 2004, the KSCB has implemented the following
schemes and programmes (KSCB 2004; CAG 2006):
Subsidized housing programmes with financial assistance from
HUDCO, a central government,
• National Slum Up-gradation Programme (NSDP), a central government
scheme primarily meant for environmental improvement for urban slums
• Housing and slum up-gradation programme in 10 slums of Mysore under
the Asian Development Bank funded KUIDP between 1998 and 2004;
• Valmiki Ambedkar Malin Basthi Yojana (VAMBAY) launched in 2001 and
considered as the First central sector comprehensive subsidized housing
scheme;
Analysis of Government Policies on Slums Upgradation
261
• Slum Upgradation and Development Programme (SUDP), jointly funded by
the Karnataka state Government and HUDCO launched in 2001 for 21 cities
and towns each having more than 100,000 population; and - Nirmal Bharat
Abhiyan, a sub-component under VAMBAY for construction of toilet
complexes in slums and Nirmal Jyothi scheme also meant for sanitation
infrastructure.
The schemes generally aim at providing one or more of the services
such as housing, water supply, sanitation, electricity, storm water drains,
roads etc suffer from duplicity of objectives. Many irregularities such as
implementation delays, targeting non declared slums, lack of transparency in
contracting the works, poor quality works etc. have been reported. For e.g. in
the execution of VAMBAY and SUDP in Karnataka (CAG 2006: 57-68).
The components of the schemes also keep changing periodically and
the schemes themselves keep resurfacing with new names. Two major
schemes currently being implemented by the KSCB are:
Jawaharlal Nehru National Urban Renewal Mission (JNNURM):
Hailed as the single largest and comprehensive urban sector
programme under taken by the central government to date, JNNURM was
launched in 2005 to foster comprehensive and integrated development of
select cities with a major emphasis on fast track urban sector reforms with a
time horizon of 25 years (2005-2030).
The Basic Services for the Urban Poor (BSUP) , a major component of
JNNURM promises to be the most integrated and comprehensive approach
ever in India for slum rehabilitation and improvement and includes provision
of housing, water supply, street lighting, sanitation, underground drainage,
storm water drain, community centers, and skill up-gradation programmes.
Sixty three cities across India have been selected as mission cities under
the JNNURM of which Mysore and Bangalore are the only cities from
Karnataka. Ten slums in Mysore were recently declared on a fast track basis to
enable their eligibility for the JNNURM. In Mysore, about 2800 Households
have been identified as beneficiaries across twenty declared slums for the first
Analysis of Government Policies on Slums Upgradation
262
phase of JNNURM to be implemented at an estimated cost of US$ 9 million. In
the second phase, Infrastructure improvements are proposed in 41 slums.
Integrated Housing and Slum Development Programme (IHSDP) Launched in
2005, IHSDP aimed to achieve convergence of all the other existing schemes in
operation. It is a centrally funded scheme for housing and provision of basic
services such as water supply, sanitation, street lighting, underground
drainage etc. The housing component is covered under VAMBAY. All cities and
towns except those already covered under JNNURM are eligible to avail
benefits under the scheme (MHUPA 2005).
5.7.5 Basic Services to the Slum Dwellers in Mysore City (BSUP) Phase-1
Table-5.10: Basic Services to the Slum Dwellers in Mysore City (BSUP)
Phase-1
KARNATAKA SLUM CLEARANCE BOARD
AT GLANCE
State KARNATAKA
District Mysore
City / Towns Mysore
Type of Scheme BSUP Phase-I under JNNURM
Number of Slums Covered 20 Slums
Number of People likely to be benefited 13940
Number of Houses to be built 2788
PROJECT COST & MEANS OF FINANCE Rs. In Lakhs
1 Housing
Cost of Project for Housing 2788+2230.40=5018.40
Means of Finance
Central Assistance 2230.40
Beneficiary Contribution 501.84
State Government Contribution 2286.16
Analysis of Government Policies on Slums Upgradation
263
2 Infrastructure Cost of Roads, Drains, Water, UGD, Electrical ( Int & Ext )
1352.721
Means of Finance
Central Assistance 1082.1768
State Govt. Contribution 270.5442
3 O & M Assets
Cost of O & M of Assets 186.40
Means of Finance
Central Assistance -
State Govt. Assistance 186.40
4 IEC & Community Participation 200.80
Means of Finance
Central Assistance -
State Govt. Assistance 200.80
Total Central Assistance 3312.5768
Total State Govt. Contribution 2943.9042
Beneficiary Contribution 501.84
Total Project Cost ( 1 +2+ 3+4) Rs : 6758.321 Lakhs
Source: JNNURM REPORT (BSUP PHASE-1)
According to BSUP Project, there are totally 82 slums are there in
Mysore city. The total population of these slums in the city is 56946 with
10606 families Karnataka slum clearance Board has constructed 2623 houses
under Hudco, 647 houses under VAMBAY and 144 houses under S.C.P.
Schemes. The total houseless families residing in the slums of Mysore city are
5288 Karnataka slum clearance board has build 3414 houses under above said
schemes in Mysore city
At the time of preparation of Detailed Project Report discussions held
with slum dwellers and some suggestions are given by the beneficiaries have
been incorporated in the detailed estimate as below. The water supplies to
beneficiaries are partly provided by Mysore City Corporation through public
stand posts and the slum dwellers are urging for individual water supply.
Many of the Slums already have Anganavadi, Primary Schools, Primary Health
Center and Samudaya Bhavan within a radius of 1km.
Analysis of Government Policies on Slums Upgradation
264
The phenomenal growth of Mysore city has lead to mushrooming of
slums. The vulnerable places for slum development are mostly
environmentally fragile areas namely marshy and swampy areas, low lying
areas, vacant of Government and its agencies, Railway lands, Defense lands,
Road margins, lands under high tension lines etc., In habitants of these slums
are basically Urban poor, who are a legitimate part of the city. They contribute
to its growth and deserve a share of the benefits of that growth.
The plan is to build houses with RCC framed typical structure in (G+2)
unit configuration in Slums& in nearby open lands provided by Revenue
dept/MCC &MUDA, Mysore. Each house will be having a Living Room, Bed
Room, Kitchen, and separate Bathroom &Toilet.
These houses will have all the basic amenities required for a
comfortable living. This will includes Individual Drinking water supply
connection, Roads, Drains, Culverts, Under Ground Drainage & Internal
&External Electrification.
The basic house is designed/planned as per the guide lines laid down
by GOI under BUSP scheme, so that each house has an overall area of 300
Sq.fts. Area of each amenity if as follows with internal dimensions.
Table-5.11: Area of Houses
1 Living Room 9.00 Sq. Mtr.
2 Bed Room 8.605 Sq. Mtr.
3 Kitchen 3.565 Sq. Mtr
4 Both Room 2.04 Sq. Mtr
5 Water Closet 0.855Sq.Mtr
Source: KSCB Report 2009
INFRASTRUCTURE COMMUNITY CENTRE
Wherever the Community Centre, Primary School, Primary Health
Centre are near by the slums, these provisions are not provided in the scheme.
Analysis of Government Policies on Slums Upgradation
265
DRINKING WATER SUPPLY
In this slums/Housing colonies water supply distribution Network has
been proposed as per the requirement and individual sumps and overhead
tanks with Mono block pumps has been proposed and the same will be
connected to ULB’s distribution network.
ELECTRIFICATION
Lump some provision for layout electrification has been made and
provision for individual house connection has been in this project and
obtaining Electricity Service Connection will be the responsibility of the
dweller obtaining NOC from KSCB and observing necessary the formalities in
CESC by metering. The houses will be provided with internal wiring for
lighting and necessary UG cable work for getting Service in this scheme, with
necessary External Electrification.
5.7.6 Scenario of Slums in Mysore City
The overall condition of the slums is very bad and Pathetic with respect
to Fresh air, proper Sun light, housing, water supply, drainage, sewerage and
roads etc. Most of them do not have proper water supply, drainage and
Sewerage system and the slum dwellers have to face hardships during rainy
season especially the life of slum dwellers situated adjacent to storm water
drains and low lying areas are critical and the situation is not different in the
case of dwellers residing below Electric High tension lines and Road margins.
Also due to lack of proper drainage diseases are also rampant in slums,
affecting their healthy living. Most of the Slum dwellers live in makes shift
arrangement with no protection from sunlight, rain, wind and other weather
conditions.
STATUS OF DEVELOPMENT WORKS IN SLUMS BY KSCB
Since Inception KSCB has constructed 3414 houses in Mysore City
under different Schemes in various slums of the city. Infrastructure facilities
such as roads, drains, culverts, sanitary, electrification, community facilities
and water supply, have been provided in many of the slums under ADB grants,
State grants, NSDP, Nirmala Jyothi (SUDP).
Analysis of Government Policies on Slums Upgradation
266
DETAILS OF IDENTIFIED SLUMS
KSCB has identified 20 slums for up-gradation/Rehabilitation by
providing housing and infrastructure under BSUP PHASE-1 on in-situ basis
Wherever slums are situated on Govt/ MCC/MUDA Lands and Feasible for
construction of houses and human habitation and relocation proposed in the
case of slums situated Below High tensions lines, road margins, , low lying
areas adjacent to storm water drains etc. The list is given I the following table.
Table-5.12: Slums Identified For Upgradation/Relocation in Mysore City
under BSUP Phase-I
Sl. No
Name of the Slum
1 Hanchya Sathagally Layout
2 Roopanagara Bogadi
3 Medars Block-1 slum
4 RMY Yard A-Block slum
5 RMY Yard B-Block slum
6 RMY Yard C -Block slum
7 RMY Yard D-Block slum
8 Manjunathapura slum
9 Raja Soap Factory slum
10 KSRTC Depot neat slum
11 Metagalli Ambedkar Jnanaloka slum
12 KSRTC /MUDA Land
13 Dharmasing colony B-block slum
14 Usmania Block slum(kesare)
15 Savitha Ambedkar colony slum
16 Hebbal Colony slum
17 Nachanahalli palya
18 Medars block-II slum
19 Rajarajeswari Rice mill
20 Behind Public Hostel
Source: KSCB annual report 2010.
Analysis of Government Policies on Slums Upgradation
267
COMMUNITY INTERACTIONS:
The community was consulted while preparing the DPR under this
program. The field officers of the KSCB had detailed discussions/Interactions
with the beneficiaries/ Slum dwellers, women self help groups and NGOs prior
to preparation of project Report to provide them shelter with in the stipulated
time and are eager to see an end to their decade problem and expressed their
willingness to pay the Beneficiary contribution as per GOI Guidelines with
active cooperation and participation from the community people. The
beneficiaries are also ready to pay property Tax, Electricity charges, Water
supply charges to the concerned Authorities by maintaining the assets created
from this programe properly after construction of the house and allotment.
PROPOSED SCHEME
The plan is to build houses with RCC framed typical structure in (G+2)
unit configuration in slums and in nearby open lands provided by Revenue
dept/MCC &MUDA, Mysore. Each house will be having a Living Room, Bed
Room, kitchen, separate Bathroom & Toilet.
These houses will have all the basic amenities required for a
comfortable living. This will includes Individual Drinking Water supply
connection, Roads, Drains, Culverts, Under Ground Drainage and Internal &
external Electrification.
The infrastructure generally considered is only as per the requirements
with the slum areas.
PROPOSED HOUSES IN IDENTIFIED SLUMS
KSCB has Notified Slums under KSA (I&C)Act/allotted land from
MUDA/MCC/Revenue dept for developing the housing projects for slum
dwellers. The list of sites &proposed houses are as follows.
Analysis of Government Policies on Slums Upgradation
268
Table-5.13: Slum wise details of Proposed Houses and Configuration
Sl. No.
Name of Slum/Housing colony Houses Accommodated
1 Hanchya Sathagally layout MUDA 366
2 Roopanagara Bogadi GOVT 144
3 Medars Block –I slum MCC/MUDA 72
4 RMY Yard A-Block slum KSCB Acquired 36
5 RMY Yard B-Block slum KSCB Acquired 24
6 RMY Yard C-Block slum KSCB Acquired 24
7 RMY Yard D-Block slum KSCB Acquired -
8 Manjunathapura slum MCC 18
9 Metagally Ambedkar Jnanaloka slum
GOVT 276
10 Raja soap factory PVT 25
11 KSRTC depot near slum MCC 60
12 KSRTC/MUDA land MUDA 45
13 Dharamsing Colony B-Block slum MUDA 108
14 Usmania Block slum(kesare) MCC 132
15 Savitha ambedkar Colony slum PVT 105
16 Hebbal Colony slum PVT 55
17 Kuppalur Sy no.51 of Nachanahally MUDA 252
18 Medars Block –II slum MCC/MUDA 60
19 Mandakally MCC 480
20 RajaRajeshwari Ricemill near slum MCC/MUDA 108
As already indicated earlier, The Karnataka Slum Clearance Board is
responsible for Improvement/Upgrdation of identified slums. Under the
proposed project the KSCB will take up construction of housing and
infrastructure.
5.7.7 IEC Activities
It is not enough only to provide housing & infrastructure for these slum
dwellers. We should make them economically independent and health
Analysis of Government Policies on Slums Upgradation
269
conscious through Information Education and Communication (IEC) activities.
This will enable the slum dwellers to become on par with other sections of the
society and maintenance of assets created under the project.
COMMUNITY CARE
Information Education and Communication is an education endeavor
targeted in slum dwellers for improving quality of life by increasing the
standard of health, by utilizing the appropriate methods and support of
adequate media to bring out behavioral changes. Overall IEC formulation is
expected to help in the following ways in respect of health awareness.
� Sensitization of the target groups
� Enhancing the awareness levels
� Participation of the different target groups
� Adoption
� Changes in the attitude resulting in behavioral change
ENVIRONMENTAL ASSESSMENT
Identification and assessment of the likely environmental impact and
analysis of alternatives to minimize them. The environmental benefits after
project implementation are tabulated as under.
Table-5.14: Summary of Environmental Benefits
Sl.. No.
Envisaged Measure Environmental impact
1 Provision of Toilet/Bath for each & every House
Ensures hygienic living for the slum dwellers
2 Solid waste management- The Municipal body will take care of solid waste cleaning
3 Underground drainage
Ensures hygienic living of slum dwellers and reduce risks of epidemic diseases in summer thereby reducing mortality & morbidity rates in these slums
4 Piped water supply Water borne diseases will be reduced considerably
5 Tree planting in coordination with forest Department
Improves environmental condition in these slums
Analysis of Government Policies on Slums Upgradation
270
The sustainability of the program is maintained & increased by
achieving convergence with related schemes of the State/ Central
Governments such as “Shri Shakthi”, “Prime Minister’s Shaharee rozgar” and
other schemes. The level proposals for water supply sewage treatment, storm
water drains, solid waste management is converged with Municipal body
schemes.
Chart-5.1: Allotment of BSUP Scheme
The Mysore city has 11% of population residing in slums and is bound
to rise in the coming years as a result of the growth of the city. Most of the
population do not have adequate housing & infrastructure facilities viz. Road,
water. The current project envisages to improve the slums on a
comprehensive basis covering houses & infrastructure. As a result of this
project a population of 13940 will be benefitted with Housing & infrastructure
facilities. As a result of the project the 31% of the slum families will be
benefited.
5.7.8 Achievement of BSUP Projects:
The following objectives of BSUP will be achieved by implementation of
the projects.
� Housing as the scheme envisaged in the slum areas will be provided with
all infrastructural services like sanitation, streetlights, etc.
Analysis of Government Policies on Slums Upgradation
271
� This will lead to a qualitative improvement in the living condition of the
urban population living below the poverty line.
� The qualitative improvement in the living condition of these people will,
consequently, reduce the epidemic diseases, facilitate the reduction in
crime rate in the overall urban scenario.
� The project will create vast employment opportunities to the urban poor
leading to an improvement in local economy.
� Adequate Investment is identified to fulfill deficiencies in the urban
infrastructural services.
� Co-operative societies formed in the newly developed areas through the
provision of community centr3es in the project will lead to an effective
linkage between asset creation and asset management.
� Since the beneficiaries are also contributing to the development there will
be an effective participation and the infrastructure will be managed
efficiently leading to a self sustaining system.
� The project areas are selected in such a way that the urbanization takes
place in a dispersed manner.All the families residing in the identified
slums will be rehabilitated and get better civic amenities emphasizing
universal access to the urban/semi-urban poor.
� Social security, education, health are provided through convergence of the
schemes available in the concerned Departments.
� Skill upgradation for the slum dwellers will ensure better earning
prospects & thus improving their standard of living.
� The project will quantitatively and qualitatively enhance the living
condition of the urban population living below the poverty line.
Analysis of Government Policies on Slums Upgradation
272
Table-5.15: BSUP Schemes
Approved Status Sl. No
Name of the Project Project cost
Name of Appraisal Agency Outcome Date
1 2 3 4 5 6
1 BSUP Scheme covering 46 slums in Mysore, Phase-II
89.97 HUDCO Approved 06-10-06
2 Scheme of BSUP at Ekalavya Nagar Slum area for construction of 1040 houses in Mysore
47.77 HUDCO Approved 30-1-2009
3 BSUP Scheme for Mysore city (Phase-IV) Mysore Municipal Corp.
52.36 HUDCO Approved 28-2-2009
4 EWS Housing &infrastructure Development in Corporation limits (Phase-II), Mysore
80.79 HUDCO Approved 13-3-2009
Source: DPR BSUP REPORT
Table-5.16: JNNURM-BSUP PHASE-II Biometric Card Details
Sl. No
Name of the slum No of houses
1 Haleemnagar 147
2 Raja Soap Factory 21
3 Bovi colny -Kesere 20
4 Kesere Ambedkar colony 17
5 Gokulam 3rd Satge 124
6 Kudure mala 13
7 Hanumanthnagar 32
8 V V Mohalla 16th cross 178
9 Kesere II stage 48
10 Kesere III stage 64
Analysis of Government Policies on Slums Upgradation
273
Sl. No
Name of the slum No of houses
11 Sonia Gandhinagara 123
12 Dharamsingh "A" Block 75
13 Nachanhalli Pally 32
14 Shivaratresswarnagar 98
15 Chamundeswari road Gandinagar 43
16 Behind P.K. Sanitorium 27
17 Dongri Colony 32
18 KSRTC slum 94
19 Siddappaji Cross 96
20 Kalyanagiri usmaniya block 165
21 kyathamaranahalli 48
22 Joganakere 24
23 Kesre Park 128
24 Kesare 1st Stage 55
25 Gopika gudiselu 85
26 Gousiyanagar "A" Block 45
27 Chamundi Bettada Pada 59
28 Nurse Quarters -KRS Road 37
29 BB Keri, Pulikesiroad 60
30 Asoka puram 25
31 Behind Jail 26
32 In front of mysore sawmill 164
33 Yallamma Slum 201
34 Vandematharam 94
TOTAL 2500
Source: BSUP DPR Report 2010.
Analysis of Government Policies on Slums Upgradation
274
Table-5.17: Progress for BSUP-MYSORE – 31.10.2011
Project Phase-I Phase-II Phase-III Total
No. of sanctioned dwelling units
2788 2500 1040 6328
Total Project Cost (Rs.in crores )
67.58 90.93 47.77 203.97
No.of Slums 20 46 1 67
Date of sanction by CSMC
11-10-2006 06-10-2007 30-01-2009
Start Date Dec - 2008 Jan - 2009 Jan - 2011
No. of DU's Completed 2436 1636 0 4072
No. of DU's in Progress 132 724 1024 1880
Work to be started 220 140 16 376
Amount Released (Rs. in crores)
30.81 58.03 10.11 98.95
Expenditure (Rs.in crores)
51.08 48.06 10.99 110.13
Source: BSUP DPR Report 2010.
Analysis of Government Policies on Slums Upgradation
275
Table-5.18: Physical and Financial Progress of Mysore City-1st Phase JNNURM/BSUP
Work in Progress Sl. No.
Name of the project No. of Houses
Entrusted Amount
Date of Starting
No. of Houses Started Fn Pl. RF Fin. Comp
Expenditure Rs. in lakhs
1 2 3 4 5 6 7 8 9 10 10 12
1 Mandakalli 576 1130.61 1/12/2008 576 0 0 0 576 1184.76
2 Roopanagar 156 301.87 22-12-2008 156 0 0 156 314.37
3 Metagalli 368 699.37 1/1/2009 304 0 16 288 529.19
4 Hanchyasatagalli-1 180 384.32 23-12-2008 180 0 0 180 361.51
5 Hanchyasatagalli-2 240 521.38 23-12-2008 240 0 0 240 450.00
6 RMC Yard - A B C 84 180.61 18-6-2009 84 - 28 24 32 - 48.00
7 Kuppalur Sy. No. 5 336 822.60 2/5/2009 336 - - - 336 324.59
8 Manjunatha pur, Savitha Ambedkar & RMC D Block
100 350.00 25-2-2009 100 100 0 12 0 88 106.36
9 Slum adjacent to KSRTC Depot.
74 200.00 8/5/2009 80 0 0 0 80 119.64
10 Medar Blocks 96 200.00 25-6-2009 96 0 - 0 0 96 120.80
11 Usmania Block 176 352.49 18-7-2009 176 0 - 16 0 160 251.64
12 Rajarajeshwari Rice Mill 144 294.28 18-7-2009 112 - - 20 - 92 100.20
13 Dharmasingh colony 144 302.48 18-7-2009 144 - - - - 144 57.80
14 Different Slums Yadavagiri
114 108
TOTAL 2788 5970.01 2568 2436 3968.86
Analysis of Government Policies on Slums Upgradation
276
Table-5.19: Statements Showing the Details of Projects under BSUP-Mysore
Work in Progress Sl. No
Name of the project No. of Houses
Entrusted Amount
Date of Starting
No. of Houses Started Fn Pl. RF Fin. Comp
Expenditure Rs. in lakhs
1 2 3 4 5 6 7 8 9 10 10 12
1 Mandakalli 576 1130.6 12/1/2008 576 0 0 0 576 1184.76
2 Roopanagar 156 301.87 12/22/2008 156 0 0 156 314.37
3 Metagalli 368 699.37 1/1/2009 368 0 0 368 529.19
4 Hanchyasatagalli-1 180 384.32 12/23/2008 180 0 0 180 361.51
5 Hanchyasatagalli-2 240 521.38 12/23/2008 240 0 0 240 450
6 RMC Yard - A B C 84 180.61 6/18/2009 84 28 24 32 - 48
7 Kuppalur Sy. No. 5 336 822.6 5/2/2009 336 92 0 20 224 324.59
8 Manjunatha pur, Savitha Ambedkar & RMC D Block
100 350 2/25/2009 100 20 0 0 0 80 106.36
9 Slum adjacent to KSRTC Depot. 74 200 5/8/2009 74 0 0 0 74 119.64
10 Medar Blocks 96 200 6/25/2009 96 0 8 0 0 96 120.8
11 Usmania Block 176 352.49 7/18/2009 176 0 32 0 0 144 251.64
12 Rajarajeshwari Rice Mill 144 294.28 7/18/2009 144 48 16 0 48 32 100.2
13 Dharmasingh colony 144 302.48 7/18/2009 144 112 8 24 57.8
Different Slums 14
Yadavagiri 114 268 Started
TOTAL 2788 5970 2624 3968.86
Analysis of Government Policies on Slums Upgradation
277
BSUP-II
1 Maragowdana Halli 320 871.73 2/25/2009 154 0 0 160 457.25
2 Shivaratreshwara - 1 208 524 4/30/2009 208 0 0 208 362.34
3 Package -2 - 396 Houses ( G+2) Dongri Colony
48 48 0 0 48
Behind P.K. Sanitorium 24 24 0 0 0 24 250.42
V.V. Mohalla 16th cross 192 136 32 0 104
In front Mysore Saw mill 132
1102.3 2/23/2009
4 Package -3 348 Houses (G+2) K.M. Hally,
48 924.6 2/2/2009 48 0 0 48 370.64
Siddappaji Cross 84 96 96
Kalyanagiri Usmania Block 72 144 0 0 128
Behind Jail Building 24
Chamundeshwari nagar 60
Durgamba Gandhi nagar 60 60
5 Package -7 52 193.95 2/27/2009 Toilet Completed Infrastructure under Progress
Ondemataram Slum 96 254.25 96 96 75
6 Different Slums 132 - - 132 12 120 36.59
7 Differece Slums - G+3 DBT 1000 3637.2 - 1000 720 280 936.22
GRAND TOTAL 2500 7508 2252 2645.5
BSUP-III
1 Ekalavya nagar 1040 3285.4 10/30/2010 992 628 344 20 - - 489
TOTAL 1040 3285.4 992 628 344 20 489
Source: BSUP DPR Report 2010.
Analysis of Government Policies on Slums Upgradation
278
Chart-5.2: Status of the Projects
Chart 5.3 Financial Progress: Allocation, Released & Utilised
Analysis of Government Policies on Slums Upgradation
279
5.8 SLUM EVALUATION BY MYSORE CITY CORPORATION
The Mysore City Corporation is the implementing agency for centrally
funded “Swarna Jayanthi Shehari Rozgaar Yojana” and the state government
funded Urban Shri Shakthi programme, both of Which aim to empower urban
poor women through formation of savings and microfinance groups. MCC
plays an important role in the slum declaration process since it is entrusted
with the authority to Issue a ‘No Objection Certificate’ for slums coming under
its jurisdiction. According to a recent amendment to the Karnataka Slum
Areas (Improvement & Clearance) Act of 1973, MCC is now authorized to issue
title deeds to slums located on its properties. MCC is required to allocate18%
of its annual budget towards the welfare of communities and persons
belonging to one of the Scheduled Castes (SC). Since a large number of slums
are composed of people and communities belonging to SC, they receive a part
this budgetary allocation which is popularly known as ‘18%’. MCC also
undertakes construction of houses and provision of basic services in slums
out of its own budget from time to time. MCC is the implementing agency for
the “Nirmal Nagar” (clean city) Scheme which aims to harness the self help
groups created under the “Urban Stree Shakti” (women power) Programme for
solid waste management in cities and towns.
The elected councilors of the MCC act as the informal nodal points of
interaction between the slum dwellers and the MCC and in mediating the
accrual of benefits to select slum communities. The Involvement of councilors
and/or councilor aspirants and through them their parties in the slum
redevelopment process has fostered patron-client relationships between local
political leaders and slum leaders
5.8.1 Slums in City Plan Documents
The Revised Comprehensive Development Plan for Mysore (RCDP)
prepared by the Mysore Urban development Authority in 1996 makes only
scant references to slums and their rehabilitation. Slums are listed under
subsection (A) of Chapter III of the RCDP titled “slums and unauthorized
Constructions” where 30 declared slums are listed followed by a list of 29
areas as unauthorized constructions on government land which however have
made their entry into the current official list of slums maintained by the KSCB.
Analysis of Government Policies on Slums Upgradation
280
Under Subsection (B), titled “main problems of the city”, slums are listed as
one of the main problems (MUDA 1996). It is not clear whether estimates of
housing stock required in Mysore include slums as part of the demand
assessment. The very notion of slums as “problems and unauthorized
constructions” as recorded in the RCDP report leads to infer that slums are by
and large excluded from the prevailing formal planning processes.
5.8.2 Other Laws, Agencies and Schemes for Slum Rehabilitation and
Improvement in Mysore
Apart from the KSCB and MCC, the following agencies of the
Government of Karnataka also play a significant role in slum housing and
basic infrastructure. They are:
- Mysore Urban Development Authority (MUDA) is responsible for
construction of houses for Economically Weaker Sections (EWS) under
“Ashamandira” housing scheme (MUDA 1996).
- Karnataka Housing Board (KHB) and the Rajiv Gandhi Housing
Development Corporation for construction of EWS houses under
“Ashraya” housing scheme.
- Chamundeshwari Electricity Supply Company for household electricity
and street lighting
- Department of Primary Education for schools.
- Department of Health for primary health care centers.
- Department of Women and Child Welfare for “Anganwaadis” (day care
centers) and nutritional programmes for children in slums.
- Department of Social Welfare for vocational and skill training.
5.8.3 Slum Improvement Cess
The Government of Karnataka introduced Slum Improvement Cess (SIC)
in 1996 to be collected by development authorities and municipal bodies at
the time of approving building plans, commercial complexes and group
housing schemes as a revenue generation measure for slum rehabilitation.
Accordingly, a Slum Development Fund has been set up in Mysore in the form
of joint bank account operated by MCC, MUDA and the KSCB to which both
Analysis of Government Policies on Slums Upgradation
281
MUDA and MCC are mandated to transfer 70% of the SIC collected on an
annual basis. The KSCB is authorized to utilize these funds for slum
redevelopment projects in Mysore. Both the MUDA and the MCC are allowed to
utilize the remaining 30% for administrative expenses as well as towards slum
improvement activities on their own (Government of Karnataka notification
no.UDD:812: MIB: 95 dated 8.07.96).
5.8.4 Slum Improvement Arena: A Multi Institutional and Schematic
Terrain
As is evident, the slum improvement and rehabilitation in Mysore lacks
an integrated approach driven by a multitude of institutions and schemes with
out appropriate mechanisms for interagency coordination. More than fourteen
agencies or line departments are involved in slum improvement and
rehabilitation either directly or indirectly such as MCC, KSCB, MUDA,
CHESCOM, DC’s Office, KHB, RGHDC, State Government Ministries and the
departments of housing, urban development, revenue, education, health,
women & child welfare, social welfare etc. Each one of them is entrusted With
the task of implementing one or the other scheme. The problem of
institutional multiplicity is not limited to the state alone. The numerous civil
society organizations, caste-based identity groups, local community groups,
and public charitable organizations etc. active in slums have rendered the
slum improvement arena into a complex terrain.
5.8.5 Civil Society Associations and Slum Rehabilitation in Mysore
From the database of civil society associations generated during the
exploratory phase of field research and based on the findings of the collective
empowerment survey, one external and professionally managed civil society
association and two of its affiliates that are community based federated
associations were identified and selected as the case study associations. The
term ‘external’ in this context means organizations which are not founded on
community membership. They may be voluntary or externally funded with
fulltime paid staff etc. The Rural Literacy and Health Programme Doctoral
Dissertation: Manjunath Sadashiva (October 2004 to February 2008) Faculty of
Spatial Planning, Technical University of Dortmund, Germany 150 (RLHP), an
external association and the Mysore Slum Dwellers Federation (MSDF) and
Analysis of Government Policies on Slums Upgradation
282
Dhwani Mahila Okkoota (DMO, a federation of women’s groups in slums of
Mysore), both founded by RLHP Were chosen as the case study associations to
study the nature of the institutional effects they induce on inclusive
governance for the slum dwellers in Mysore.
5.8.6 Rationale for Selection of Case Study Associations
There are several external civil society associations intervening and
operating in the slums of Mysore. RLHP elicited the highest recall rate (25%)
during the exploratory phase of the field research for all associations working
with the urban poor. Amongst all the associations documented during the
exploratory phase, RLHP emerged as the only association which appeared to
have adopted an integrated and holistic approach to slum improvement and
rehabilitation not only in Mysore but also in the two neighboring districts
(Section Seven). RLHP is currently working in 56 slums across three districts
with 34 slums in Mysore city alone. RLHP is also active in the policy arena and
acts as an interface between the state institutions and the slum communities.
RLHP was instrumental in the creation of MSDF as a federation of community-
based associational representatives from various slums to function as a
sustainable grassroots people’s institution and as a legitimate voice of the
communities. Similarly DMO was also created by RLHP as a forum of
representatives of women’s groups in slums. RLHP, MSDF and DMO will
henceforth be referred to as the “RLHP Combine” One of the most compelling
reasons for selecting the RLHP Combine for empirical analysis is provided by
the findings of the collective empowerment survey in which the community
members across the fourteen sampled slums intervened by RLHP attained
significantly higher empowerment scores than four other associations working
with the urban poor including slum dwellers
Associations such as GUARD, Pratham and ODP are focused on
providing specific services in the areas of education, health services, savings
and micro-credit etc. The Karnataka Kolache Nivasigala Samyuktha Sanghatane
(KKNSS), a state level federation of slum dwellers headquartered in Bangalore,
the state capital, is also active in several slums of Mysore, though its presence
is rather scattered and its approach, less holistic than the RLHP combine. The
Analysis of Government Policies on Slums Upgradation
283
caste-based identity associations like Dalit Sangarsh Samithi (DSS), Akhila
Bharatha Jana Jagruthi Maha Sabha (AJMS) etc. are
Involved in mobilizing the members of the Scheduled Castes on a range
of issues and are also known to have significant impact on community life in
slums. However, declaration and rehabilitation of slums is of marginal
importance in their activities. Husband-wife duo, qualified as a sociologist and
a nurse respectively, with the support of a few Italian Catholic nuns who were
already involved in social welfare activities for the poor in Mysore district.
Before their relocation to Mysore, the couple had work experience in a slum in
Mumbai called Dharavi, known as the largest slum in Asia. With the husband
currently involved as a member of the Governing Council and the wife as the
Director, the Couple continues to be RLHP’s prime moving force. Though RLHP
had commenced work in Jyothinagar slum as early as 1982, it was formally
registered as a Society only in 1984 and is known to be the first ever external
civil society association to have intervened in Mysore’s slums Currently RLHP
has a team of 40 staff, both part and full time and works in 56 slums spread
across three districts of Karnataka namely Mysore, Mandya and
Chamarajanagar. From amongst the three senior most staff, one works as the
Assistant Director and the other two as Programme Coordinators of various
projects and as supervisors of field-level coordinators n charge of activities in
various slums. The three senior staff and the Director together constitute the
Core Group for day-to-day decision
5.8.7 Mission and Focus Areas of RLHP
RLHP’s stated mission is, “to bring about positive changes in the lives of
poor people in slums, especially women and children and help them lead their
lives with dignity”. The present focus is on four areas: people’s development
through building people’s associations; child rights and child protection;
women’s empowerment through women’s groups and self help groups for
savings and micro-credit; and community health (RLHP 2002).
Over the years, the scope of RLHP’s intervention has expanded from a
single slum in 1984 to 14 slums in 1989, 24 slums by 1992, 30 slums by 1996,
46 slums by 1999 and 56 slums as on date. The transformation of Jyothinagar
slum (the first slum RLHP intervened) into a healthy and vibrant neighborhood
Analysis of Government Policies on Slums Upgradation
284
spread the word around and attracted other slums to their fold RLHP
strategies towards empowerment and holistic development RLHP has an
integrated approach to slum redevelopment that encompasses a focus on all
aspects of a community life starting with declaration of slums and provision
of basic amenities such as housing, water supply, street lights, underground
drainage, sanitation, electricity, schools, community halls, community health,
socio–economic empowerment of women, vocational training for youth and
women, eradication of child labor, domestic violence, alcoholism etc. RLHP’s
main strategy is to help the community help themselves. The emphasis is on
capacity building of communities through training of community leaders on
effective leadership, human rights, gender issues, environmental awareness,
awareness of government schemes and projects. Their approach to non-formal
education has won accolades from various quarters. RLHP encourages the
community to fight for their rights and entitlements by facilitating a dialogue
between the service providers and the communities, thus empowering them in
the process. Confrontation as a strategy is selectively used to open the doors
for negotiation. By and large, RLHP acts as a facilitator to stimulate the
communities to help themselves except in rare, distressful situations caused
by natural calamities or accidents; it also becomes a service provider (RLHP
2002 and 2004). Facilitating people’s associations and federations: A collective
voice In its endeavor of empowering people, RLHP has adopted an
associational approach to the development of communities by facilitating
creation of people’s organizations and their federations through which to
negotiate, bargain and advocate inclusion of the urban poor in the formal
planning and service delivery structures and processes. Apart from facilitating
formation of community development associations, women’s associations,
youth associations and women’s self help groups in slums, RLHP also fostered
formation of federations of these associations. The Mysore Slum Dwellers
Federation (MSDF) was formed in 1991 initially with 13 community
development associations each representing a slum. Dhwani (Voice) Mahila
Okkoota (DMO), a federation of women’s associations was established in 1993.
Kirana, a federation of women’s self help groups for savings and micro-credit
was created in 1995. These federations have lent a collective voice to the
problems and issues of slum dwellers. All the federations are formally
Analysis of Government Policies on Slums Upgradation
285
registered and membership based organizations with a Board of Directors
elected from amongst members annually or once in two years. None of the
federations have paid full time employees. Of particular importance is MSDF
which is far more actively involved in mobilizing various communities in the
process of declaring slums and gaining access to government schemes and
projects (RLHP 2004).
5.8.8 Mysore Slum Dwellers Federation
The membership of Mysore Slum Dwellers Federation (MSDF) is
currently estimated to be around 40,000 and the General Body comprises of
members of various local community development associations working in
slums as well as those from the two women’s federations. Beginning with 13
associations, MSDF has gradually widened its membership base to more than
50 slums. Elections are held either annually or once in two years to elect the
office bearers like president, working president, treasurer, secretary etc. The
governing council comprises of 20 to 25 members. Though the governing
council has traditionally been male heavy, women’s representation on the
Council has gradually increased from none in 1991 to seven in 2003. The
financial needs are met with membership fee which is supplemented through
periodical contributions by RLHP. Book keeping and financial audits are fairly
regular which are presented to the Annual General Body for approval (MSDF
2004; FGD with MSDF leaders 24.01.07). Community mobilization, protests,
demonstrations and conventions: Actions in the public sphere MSDF has used
protests and demonstration as an effective strategy in attaining its objectives.
With the support of RLHP, the MSDF, in tandem with DMO has been
instrumental in mobilizing the Communities in slums through the local
associations and women’s groups to not only help them organize themselves
but also to participate in protests and demonstrations from time to time. Ever
since its inception, the RLHP Combine have organized seven city level and
several community level protests and demonstrations against arrack (cheap
liquor) shops, domestic violence, child abuse, police atrocities, evictions, lack
of basic services etc. MSDF has also supported protests by local associations at
the slum level. Two large conventions were organized in 1993 and 2004
respectively which saw participation of more than 5000 slum dwellers each
time. These conventions and protests have helped MSDF gain identity in the
Analysis of Government Policies on Slums Upgradation
286
public sphere and strengthen its mass base in individual slums. MSDF has
intervened in the process of slum declaration on several occasions and helping
local associations’ to gain access to government schemes for slum
improvement through mass contact programmes with officials.
5.8.9 Dhwani Mahila Okkoota
Like MSDF, Dhwani Mahila Okkoota (DMO) is a federation of local
women’s associations in the slums and has emerged as a strong forum
fighting for women’s issues. DMO is formally registered as a society with an
elected governing council and rotating frontline leadership with more than
10000 members from 56 slums across three districts. DMO has played an
active role in resolving family disputes, restoring women’s rights and
complimented MSDF’s efforts in securing access to basic amenities and
services and education of children. In some slums, the member associations of
DMO have been instrumental in fostering solidarity and stimulating the male
leaders to form community development associations. While the caste factors
have not yet assumed divisive proportions, the political orientation of DMO is
largely influenced by that of MSDF. DMO leaders who represent various slums
exuded more confidence than their MSDF counterparts about achieving self
reliance for sustaining their struggles.
5.8.10 Chronology of Developmental Events: Role of the Community
Development Association
1990: With the support of RLHP, the Vasanthnagar Community Development
Association was formed as a registered society with twelve Executive
Committee members representing the various religious and caste groups.
Every family by default is considered as a member of the development
association. The current membership fee is Rs.2/- per month. As expressed by
one of the leaders, the proportional representation of different ethnic groups
in the Executive Committee “helps prevent multiple nodes of leadership and
acts as a safeguard against inter-caste/religious conflicts” (Interview 27.01.07:
Executive Committee Member MSDF).
1991: The Vasanthnagar Community Development Association became
affiliated to MSDF as one of the founding members. During the same year, the
Analysis of Government Policies on Slums Upgradation
287
works for chip carpeting of the roads and construction of ‘L’ shaped box type
storm water drain were taken up.
1992: Shakthi Mahila Sangha, the women’s association was formed initially to
oversee community awareness activities with regard maternal and child
health. Subsequently the women’s association has become an integral part of
all other development activities in the slum.
1993: The women’ association became affiliated to Dhwani Mahila Okkoota, a
federation of women’s associations created by RLHP. Streetlights were
installed followed by provision of electricity connections to households and
construction of the underground drainage system.
1994: Due to sustained petition by the Community Development Association,
the Mysore City Transport Service created a new transport route number 52
and commenced plying of buses on this route thus providing public transport
connectivity to the residents of Vasanthnagar.
1995: The Community Development Association succeeded in getting a
primary school for the slum and also availed funds from the Mysore City
Corporation for construction of individual household toilets for the 65
families belonging to the Scheduled Caste under the 18% grant for the welfare
of Scheduled Castes.
1997: A new slum consisting of 18 huts put up by families who were relatives
(extended families) of the Vasanthnagar community members made its
appearance on the vacant land next to the Vasanthnagar. The new slum which
was believed to have enjoyed the support of some leaders of the Vasanthnagar
slum grew in time to host 97 families by 2004. The creation of a new slum is
understood to have created a rift amongst the senior leaders of the
association.
1998-2000: A community hall was constructed for holding community
meetings and other public functions. Paving of streets and construction of
individual household toilets for the remaining 110 families were taken up and
Analysis of Government Policies on Slums Upgradation
288
completed under the KUIDP funded by the ADB. During this period three
women’s self help groups were formed for savings and micro credit which
became affiliated to Kirana a federation of women’s self help groups
promoted by RLHP. Also an Urdu (medium) Primary School was constructed
for children of religious minority groups.
2001: The individual households were provided piped water supply. A
neighborhood Citizen-Police Committee was formed to prevent unwarranted
harassment of the community members by the police officials.
2004: The new slum was demolished by MUDA since it was an encroachment
upon the land allotted for a private housing lay out and the process of
resettlement of slum dwellers is currently underway.
2006-07: During the by-elections to the Chamundeshwari Assembly
constituency of which Vasanthnagar is a part of, there were rumors and
allegations against some senior leaders of indulging in discriminatory
practices with regard to the distribution of money collected from the political
parties as incentives to vote in their favor. This is believed to have triggered
off a rift between the senior and some of the youth leaders in the community.
5.8.11 EWS Housing and Infrastructure Development in Corporation
The Jawaharlal Nehru National Urban Renewal Mission (JNNURM) is an
ambitious programme launched by Ministry of Urban Development
Department. as per the direction of Government of India (GOI) to bring about
improvement in the existing urban service levels and Slum upgrdation in a
financially sustainable manner. The primary objective is to take up
environmental improvement, clearance and redevelopment of slums and
enable the slum dwellers to live in hygienic condition by providing basic
amenities, such as drinking water, street lights, roads, drains, community
bathroom, storm water drain and community halls wherever possible.
Analysis of Government Policies on Slums Upgradation
289
NEED OF THE PROJECT:
Mysore, being the heritage epitome of the Southern Karnataka,
landscapes through rich profiles of urban infrastructure and its growth
together with fringes of backward area / revenue pockets in its belt. The ever
increasing number of dwellers in backward and revenue areas has caused
tremendous pressure on urban basic services and infrastructure.
Under the JNNURM, Karnataka Slum Clearance Board has taken up
rehabilitation of 63 Declared slums in the city. In the present scheme, 62 slum
areas have been identified for providing housing and infrastructure services.
These backward areas are scattered throughout the city of Mysore.
The houses in these areas are mainly pukka houses having thatched,
tiled or asbestos sheet roofing. The roads in these areas are mainly mud road
or metalled road with bitumen toppings. There are no proper road side
drains. The present condition of the houses and roads are annexed in the form
of photographs. As the apex body at the City level for development of housing
and infrastructure, Mysore City Corporation has the primary objective of
enabling its citizens to live in hygienic conditions through providing of basic
amenities. The vision of MCC is to provide shelter and basic amenities to all
people living in the city and strive for a society having shelter in the coming
years. However, the development of backward and revenue pockets have not
improved much on the constraints of internal revenue of the Municipal
Corporation. Although an approximate 20% of the budget is approved and
expenditure done using the internal accruals of Corporation, the speed of
providing infrastructure facilities in the backward areas is not upto the
benchmark. In the background of this, there is an urgent need to fulfil the
housing and infrastructure requirements in these backward areas.
Under the Structural reforms of the Municipal Corporation, nine zonal
offices have been set up within the ambit of the limits of Municipal
Corporation. The backward areas fall within the jurisdictional limits of the
nine zonal offices. Following details presents the backward areas in the
Mysore city.
Analysis of Government Policies on Slums Upgradation
290
MAP- 5.1: Upgrdation Programmes of Slums in Mysore City
Analysis of Government Policies on Slums Upgradation
291
Table-5.20: Zonal wise Upgrdation of Slums by JNNURM Project
Analysis of Government Policies on Slums Upgradation
292
5.8.12 Social Status of the Backward Areas
The urban poor living in the heart of the backward areas and its
peripherals have living standards far below the standards. Socio-economic
survey was conducted on 5490 households in the limits of the zones of MCC.
Socia-economic survey of households including the occupations or livelihood
profile of beneficiaries essential for inclusion was conducted during December
2008 and January 2009. The socio-economic survey on the households
included the following criteria.
a) Caste details
b) Income details
c) Employment details
d) Literacy details
e) Ownership of house details
Following parameters were accounted in the identification of the beneficiary’s.
a) Physical Indicators
1) Quality of houses whether RCC structured, AC sheet one with
dilapidated condition or thatched roof houses.
2) Lack of insufficient living areas / spaces
3) Access to sanitation facilities such as open air, street drain, public toilet
4) Access to water supply such as individual piped network, stand post,
hand pump, well and others.
5) Availability of street lighting.
b) Economic Indicators
1) Income levels / categories of the households
2) Security of tenure
3) House ownership as to whether own house, rented /leased
c) Social Indicators
1) Literacy level
2) Socially advantaged as to belonging to BPL / APL, SC /ST/OBC/Others
Analysis of Government Policies on Slums Upgradation
293
With the physical, economic and social parameters, out of the surveyed
5490 households, 4305 households were identified for housing requirements.
The balance of 1185 households were left off on the criteria of having Pacca
houses in the form of RCC structure, access to sanitation facilities, access to
piped water supply and having higher income.
The Mysore city corporation has been administratively divided into nine
zones. Revenue pockets and backward areas are existing in all the nine zones.
The scale of priority for selection of backward areas for providing
infrastructure was predominately due to the need of housing for people of
below poverty level and lack of basic infrastructure. Scio-economic survey has
been carried out on all the nine zones of Mysore City Corporation. A total of
5490 houses have been surveyed in which 4305 have been listed as the
beneficiary’s for housing. The balance of 1185 houses is of RCC structure.
These structures are sound with light and ventilation. The present detailed
project report confines to providing houses to Identified beneficiary’s and
providing infrastructure facilities in the form of bituminous roads and surface
drainage in zones of utter requirements.
The other infrastructure requirements in the form of piped water
supply, underground drainage network, storm water drainage, solid waste
management have not been included in this project as these infrastructure’s
are being undertaken in the city through the projects approved and being
under approval by Government of India under the sub-mission Urban
Infrastructure and Governance of the Jawaharlal Nehru National Urban
Renewal Mission.
Table-5.21: Caste wise details of Beneficiaries
Analysis of Government Policies on Slums Upgradation
294
PROPOSED SCHEME
The plan is to build houses typically single floor configurations in this
area and resettle the beneficiary’s in these houses. Each will have a bedroom,
living room, and kitchen, bath room and toilet. These houses will have all the
basic amenities required for comfortable living. The list of surveyed people
who do not own land have not been considered as beneficiary’s in this project.
They will be suitably considered for housing in the in-house schemes of
Mysore City Corporation such as Ashraya yojana and also through the EWS
houses for applicants from the Mysore Urban Development Authority.
The infrastructure generally considers the requirements of providing
bituminous road surface with proper road side drainage system. The water
supply and underground drainage system shall be connected with the nearest
service connections. Cross drainage works have been proposed on each cross
roads for proper drainage network. The infrastructure works such as water
supply, storm water drainage, and solid waste management have not been
considered as these have already been approved for improvement under the
JNNURM further, detailed project report in respect of missing links of
sewerage network for Mysore city has been submitted to Government of India
for approval under JNNURM. As approval from Mission directorate is awaited,
the project of Underground drainage system has not been considered for
inclusion under this project.
The socio-economic survey carried out reveals the following
Analysis of Government Policies on Slums Upgradation
295
Chart- 5.4: Castewise Detials for Indivdual Zones
Chart-5.5: Income wise Details of Individual zones
Analysis of Government Policies on Slums Upgradation
296
Chart-5.6: Employment Details for Each Zone
Analysis of Government Policies on Slums Upgradation
297
Chart-5.7: Literacy Details for every Zone
In this project the basic infrastructure facilities such as bituminous
roads and surface drains on both sides has been proposed. The revenue
pockets/backward areas of the zones of Mysore City Corporation are
predominantly void of infrastructure facilities. However, as development
work has been taken by Mysore City Corporation in providing infrastructure
facilities in few of the pockets of revenue/ backward areas, those areas with
very few infrastructure facilities have been proposed for bituminous surface
roads as well as for surface drainage network together with cross drainage
network for effective drainage of rainwater. Further, as community buildings,
livelihood buildings, shri shakthi buildings, hospitals, anganwadi, schools are
existing in the proposed backward areas for infrastructure, social
infrastructure components have not been proposed. Unit facilities like school,
health center, anganwadi, community center and shri shakthi bhavan etc are
existing in nearest place from the individual houses would be utilized by the
beneficiaries.. Distribution of water shall be made to all individual houses
through pipelines. Internal water supply system shall be provided. The
sewerage drain will join to a main drain from where it will be carried to
Analysis of Government Policies on Slums Upgradation
298
underground drainage system of the city and metering will be the
responsibility of local electricity Distribution Company after the beneficiary
has paid appropriate connection charges, deposits etc. The flats however will
have internal wiring from the proposed metering cubical to every room and
will also have a few power points for TV. The existing roads will be improved
to bituminous roads. Roads will be of 4 to 6 meters width and these will lead
to a main road.
5.8.13 Initiatives taken by Various Agencies
The main objective of Government is to take effective steps in meeting
the minimum needs of housing, water supply, underground drainage, health
care besides maintaining peace and security in the community.
For the identification and improvement of the lives of people in urban
areas and to tackle urban poverty related issues in general, various agencies
and institutions have been working together with the Government of
Karnataka. Mention may be made of Department of Town and Country
Planning, Urban Development Department, Urban Local Bodies in the state,
Asian Development Bank, Rural Literacy Health Programme and Karnataka
Slum clearance Board.
Department of Town and Country Planning The Karnataka Town and
Country Planning Act was passed in the year 1961.The head office of the
Department of Town and Country Planning is at state capital with offices at
divisional head quarters.
The main objective of the Department of Town and Country planning is
to prepare “Master Plan’ for cities of the state aiming at the planned
development and extension of cities providing clean environment in the
residential areas
MYSORE URBAN DEVELOPMENT AURTHORITY
The Mysore City Improvement Trust Board Act was enacted in 1903,
which was first of its kind in the country. The extensions formed by it were
vontikopal,Jayalakhmipuram, Yadavagiri, Saraswathipuram, Vidyaranyapuram,
jayanagar, N R Colony, etc.
Analysis of Government Policies on Slums Upgradation
299
The Town and Country Planning Act, 1961was enacted to provide for
regulation of planned growth of land use, development, for the making and
execution of Town Planning Schemes and the Act came in to force from 15-01-
1965. The State Government declared the Mysore Local Planning Area On 30-
04-1966 in accordance with Section 4(A) of the Act for an area of 233 Square
Kilometers, comprising of Mysore City Municipal area, and 13 villages of
Srirangapatna Taluk and 43 villages of Mysore Taluk.
The Government of Karnataka established the Urban Development
Authorities for the planned development of major and important urban areas
in the State and the area adjacent thereto and to matters connected therewith
under the Karnataka Urban Development Authorities Act 1987. As per the said
Act, the City Improvement Trust Board (C. I. T. B), Mysore and Local Planning
Authority of Mysore was amalgamated and the present Mysore Urban
Development Authority came into existence. The Mysore Urban Development
Authority (MUDA) was constituted on 16th May 1988.
As per the KUDA Act 1987, the Commissioner of the Authority is the
Chief Administrator and Chief Executive of the authority. The Chairman heads
the authority. He can call the meeting of the authority and put policy issues
before the authority for decision.
The authority has formed many layouts and distributed nearly 35,000
sites and 10,000 houses after it came into existence. Also it has handed over
the developed layouts to Mysore City Corporation for further maintenance.
Vijayanagara Layout Ist, IInd, IIIrd and IVth Stage, formed by the Authority, is
the biggest layout in South Asia, covering an area of nearly 2000 acres having
25,000 sites.
HOUSING STATUS
The Problem of housing in Mysore city is not as acute as in other fast
growing cities. Mysore city, being the former capital of the State, has better
planned extensions and better housing conditions compared to any other city
where congestion, mixed land uses and unorderly developments are observed.
The old city area has the maximum concentration of population namely
parts of residential areas of Mandi Mohalla and Lashkar Mohalla between
Analysis of Government Policies on Slums Upgradation
300
Bangalore Nilgiri Road and Sayyaji Rao Road. Some areas between Albert
Victor Road and Pulikeshi Road and the areas between Chamundeswari Road
and Basaveswara Road are having a very high density of population up to 500
persons per hectare.
In general, between the high-density areas and normal density areas,
viz., some parts of Mandi Mohalla, Lashkar Mohalla and Krishnaraja Mohalla
areas, which can be considered as the core area of the city, do not have a very
high density. In fact, the density seems to vary according to the distance from
the central area and also the prevailing land value. The existing public use
areas such as, palace, hospitals, educational institutions etc. have also played
key part in the determination of the density pattern. Thus, in extension areas
like Sarswathipuram, Kuvempunagar, Kesare, Ittigegudu, Jayalakshmipuram,
Kirshnamurhtypuram, Rajendranagar the density is between 125 persons per
hectare to 250 persons per hectare. In areas like Gokulam, Yadavagiri,
Nachanahalli, the density is between 100-125 persons per hectare. The new
extensions such as Vijaynagara, Devanur, Sathagalli, Alanahally,
Kyathamaranahally, Sri Rampura, Dattagalli, Bogadi, Hebbal,
Chikkaradanahally layouts have very low density.
The agencies involved in building housing stock are Mysore Urban
Development Authority, Karnataka Housing Board, Karnataka Slum Clearance
Board, Private Co-operative Housing Building Societies and Private Developers
etc.
An attempt has been made to estimate the shortage and demand for
house in Mysore city. For calculation purposes an average of 5 persons per
family has been assumed. The number of houses required by 2011 Ad is 2.8
Lakhs for an expected total population of 14, 00,000.
The number of houses of stock as per 1981 Census is 79000. Assuming
the construction of 2000 houses per year from 1981 to 1991, the number of
houses that would have been constructed are 20000. Thus, the number of
houses on stock is equal to 99000 say 1.00 lakh. This means another 1.8 lakh
houses are required by 2011 AD. Hence, sufficient irrigation land and planning
should be undertaken to career to the rising demand.
Analysis of Government Policies on Slums Upgradation
301
The agencies involved in building housing stock are Mysore Urban
Development Authority, Karnataka Housing Board, Karnataka Slum clearance
Board, Private Co-operative Housing Building Societies and Private Developers
etc.
During 1987-89, the city Improvement Trust Board/Mysore Urban
Development Authority has constructed 9210 houses under HUDCO
assistance as noted below.
1. Mahadevapura Layout 419
2. Gangothri 523
3. Jayanagar T Koppal I stage 504
4. Jayanagar T Koppal II stage 807
Total 2304
These houses have been handed over to the identified beneficiaries.
2. The Mysore Urban Development Authority has constructed 107 EWS houses,
64 LIG houses and 21 MIG houses at Bade Makan for physically Handicapped
people under HUDCO Scheme. The houses have been handed over.
3. Apart from the above, the Mysore Urban Development Authority has taken
up the construction of 6714 houses under ‘ASHRAMANDIRA’ scheme:
NAME EWS LIG MIG HIG TOTAL
Bogadhi 180 1191 710 325 2406
Devanur 271 463 231 88 1054
Hebbal 477 867 383 116 1843
Kyathamaranahalli 424 610 306 71 1411
Total 1353 3131 1630 600 6714
In addition to the above, the Mysore Urban Development Authority has
taken up schemes to construct houses under Bank aid under Self Financing
Schemes.
The Karnataka Housing Board has built 1000 houses for Beedi workers
and 500 houses under Composite Housing Scheme in Kyathamaranahally
which are occupied. The Karnataka Housing Board has taken up a huge
project of building 3000 houses in Hootagally.
Analysis of Government Policies on Slums Upgradation
302
The Slum Clearance Board has constructed houses in Bogadhi and
Satagally and Gokulam for rehabilitating the Slum Dwellers of the City.
In addition to these agencies/s Bharath Earth Mover Limited, M/s Rare
Material plants have completed the Industrial Housing Scheme for their
employees. The total of all these works out to nearly 6000 houses/sites.
All the above, works out to nearly 20000 houses which almost tallies
with the expected number of houses between 1981-91.
Thus, taking into account the above, provision has to be made to
another 1, 80,000 housing units by 2011 AD. Hence, housing programme will
have to be worked to ensure sufficient housing stock by 2011 AD.
After 1991, in addition to the number of houses constructed by Private
developers and individuals, the Mysore Urban Development Authority has
constructed houses under Own Your Housing Scheme and also distributed the
sites as follows:
a) Houses allotted under Own Your Housing Scheme:
During 1994 1762
During 1994 1774
Total 3534
b) Sites Allotted
During 1994 12528
Number of sites available for allotment. 8403
Total 20931
Total a+b = 24465
The Mysore Urban Development Authority has prepared 7 new schemes
as shown below which are already approved by the Government. The
acquisitions of lands for these schemes are under progress.
Analysis of Government Policies on Slums Upgradation
303
Extent No. of. Sites
1.Bogadi Layout III stage I Phase 372.06 3623
2.Bogadi Layout III Stage II Phase 299.40 3588
3.Bogadi Layout III Stage III Phase 371.75 2645
4.Nachanahally Layout III stage 208.00 3796
5.Rajivnagar III Stage 690.92 7758
6.Satagally Layout II stage 486.60 4929
7. Alanahally Layout II Stage 339.00 4098
Total 2766.73 30737
All these works out to 55202, say 55000 sites and houses. Therefore
the balance number of sites by 2011AD is 125000.For providing different size
plots, it requires another 5000 acres.
Hence, provisions are made to reserve areas at Koorgally, Kergally,
Madagally, Madgally, Ajjayanahundi, Lingambudi, Srirampura, and Kuppalur,
Nadanahally, Hanchya, Satagally, Kesare and Belavattha for residential
purposes in the revised Comprehensive Development to meet this demand.
SLUMS AND UNAUTHORISED CONSTRUCTIONS
There are 69 declared slums in Mysore City out of which 37 of them are
situated in Municipal Land, 16 are in Mysore Urban Development Authority
land, eleven slum are in Govt land and the remaining are in the private lands.
Under improvement scheme, the Karnataka Slum Clearance Board has
constructed 1390 tenaments for the benefit of the following 11 slums:
1. Medar’s Block
2. Ashokapuram
3. Raja Soap Factory
4. Doddakere Maidan
5. Govinidarao Memorial Hall
6. Jyothinagar
Analysis of Government Policies on Slums Upgradation
304
7. Viswesaranagar
8. Slum between Railway line and RMC premises
9. Chamundeswari Block
10. Janatha Saw Mill
11. Durgamba Temple
In addition to the slums, number of unauthorized constructions in
revenue land has come up on 29 pockets up to 1994. The names of
unauthorized layouts and number of houses existing thereon are as
follows.
Name of the Layout No of the House
1.Kanakagiri 334
2.Gunduraonagar (Muneswaranagar) 471
3. Vijayashreepura 534
4.Kumberakoppalu, Metagally, 1541
5.A J Block 364
6.Ghousianagar 1284
7.Kyathamarnahally 2621
8.Kurubarahally 14
9.Panchagavimath 109
10. Madhuvana 20
11.K.S.R.T.C Bus Stand 01
12.Nachanahally 81
13.Srirampura 209
14.Chinnagirikoppal 302
15.Dattagally 1530
16.Bogadi, Janathanagar 1416
17.Hinkal 27
18.Shadanahally 03
Analysis of Government Policies on Slums Upgradation
305
Name of the Layout No of the House
19.Siddalingapura 06
20.Belvantha, Kesere 247
21.Shanthinagar (Devanur) 1414
22.Rammanahally 04
23.Sathagally 01
24.Raghavendra Nagar 530
25.Yaraganahally 416
26.Alanahally 06
27.Kadakola 01
28.Veeranagere 638
29.Koorgally 05
Total 14129
BSUP SCHEME SANCTIONED
Sl. No
Project Name
CSMC Approval
date
Approved project cost
No of Sanctioned
D’ us
1 Rehabilitation of 20 slums- phase-I
11.10.06 67.58 2788
2 Rehabilitation of 46slums- phase-II
06.10.07 90.93 2500
3 Construction of houses and providing infrastructure works in slums phase-III
20.02.09 47.78 1040
4 EWS Housing & Infrastructure Development in Mysore Corporation
28.09.09 52.35 1806
TOTAL 258.64 813406
Analysis of Government Policies on Slums Upgradation
306
REHABILITATION OF SLUMS IN MYSORE CITY
Analysis of Government Policies on Slums Upgradation
307
Analysis of Government Policies on Slums Upgradation
308
61
SONIA GANDHI BADAVANE -
MYSORE
62
SONIA GANDHI BADAVANE -
MYSORE
Analysis of Government Policies on Slums Upgradation
309
67
KESARE USMANIYA BLOCK -
MYSORE
68
ROOPA NAGAR – MYSORE
Analysis of Government Policies on Slums Upgradation
310
69
ROOPA NAGAR – MYSORE
73
SIDDAPPAJI CROSS - MYSORE
Analysis of Government Policies on Slums Upgradation
311
74
SIDDAPPAJI CROSS - MYSORE
76
VANDEMATHARAM MYSORE
Analysis of Government Policies on Slums Upgradation
312
81
81
DBT PROJECTS - SATAGALLI, MYSORE
57
Analysis of Government Policies on Slums Upgradation
313
REFERENCES
Basu, Ashok Ranjan, 1988, Urban Squatter Housing in Third World, Mittal
Publications, Delhi
Cherunilam, Francis and Heggade, Odeyar D, 1987, Housing in India, Himalaya
Publishing House, Bombay
Desai, Vandana. 1995, Community Participation and Slum Housing- A Study of
Bombay, Sage, New Delhi
George Vernez, 1974, a Housing Services Policy for Low-Income Urban Families
In Underdeveloped Countries, Rand Corporation, California
Michael Dewit and Hans Schenk, 1989, Shelter for the Poor in India: Issues in
Low Cost Housing, Manohar Publications, New Delhi
Mukhija, Vinit, 2003, Squatters as Developers?, Ashgate Publishing Ltd,
Hampshire
Muttalib, M A and Khan, Dr. Mohd Ali, 1986, Public Housing, Regional Centre
for Urban and Environmental Studies, Hyderabad
R N Morris and John Mogey, 1968, the Sociology of Housing: Studies at
Berinsfield, Routledge and Kegan Paul, London
Sivaramakrishnan K C; Kundu, Amitabh and Singh, B N, 2007, Oxford
Handbook of Urbanization in India- Second Edition, Oxford University
Press, New Delhi
Stokes and Charles, 1962 (quoting Basu), A theory of Slums, Land Economics,
Vol.38
Sudha Mahalingam, 1998, the False Ceiling, Frontline, Vol. 15, No. 16, Aug 1-14
Swapna Banerjee-Guha, Neoliberalising the ‘Urban’: New Geographies of Power
and Injustice in Indian Cities, Economic and Political Weekly, May 30-
June 5, 2009
Swati Ramanathan, 2007, Ground Rules: Challenges to the Implementation of
Security of Land Title in Urban India, Urban Space Foundation,
Bangalore
UN Habitat, 2003, the Challenge of Slums, United Nations Human Settlement
Program
UN Habitat, 2006, State of the World’s Cities 2006/7, United Nations Human
Settlements Program
Wakely, Schmitzer and Mumtaz, 1976, Urban Housing Strategies- Education
and Realisation, Pitman Publishing Ltd, London.
Analysis of Government Policies on Slums Upgradation
314
DOCUMENTS:
AVAS, 2003, Report on Wahab Garden, procured from Housing and Urban Development Corporation, Bangalore
Census 2001, Slum Census, Vol.I, Office of the Registrar General and Census Commissioner, procured from IIM Bangalore library
DPAL, 1961, Karnataka Town and Country Planning Act, Department of Policies and Legislations, Govt. of Karnataka, available at dpal.kar.nic.in
DPAL, 1963, Karnataka Housing Board Act, Department of Policies and Legislations, Govt. of Karnataka, available at dpal.kar.nic.in
Data from Indiastat (www.indiastat.com)
UDCO, 2009, Scheme No. 17444 and 17445, procured from Housing and Urban Development Corporation, Bangalore
Karnataka Human Development Report, 2005, Planning and Statistics Dept, Government of Karnataka, procured from IIM Bangalore library
Labournet, 2004, “Labournet- a study”, available at www.labournet.in
NUHHP (National Urban Housing and Habitat Policy), 2005, Ministry of Housing and Urban Poverty Alleviation, available at mhupa.gov.in
NUHHP (National Urban Housing and Habitat Policy), 2007, Ministry of Housing and Urban Poverty Alleviation, available at mhupa.gov.in
STEM, 2005, Infrastructure Development and Investment Plan for Bangalore: 2006-30, procured from MINDS library, Bangalore