indian urban planning: limits to economic growth and inclusion prof. smita srinivas, columbia...
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Indian Urban Planning: Limits to Economic Growth and Inclusion
Prof. Smita Srinivas, Columbia University Urban Planning and Technological Change Lab (TCLab)
Champaka Rajagopal, Principal, Planning and DesignGroupe SCE (India)
Roundtable on Inclusive CitiesJan 7-8 2011
New Delhi
Limits to growth and inclusion• Urban Economic and Industrial challengesexternalities interfering in way industries advance, lack of worker-work-site amenities, mobility constraints from home to worksite and of home as worksite, agglomeration challenges for knowledge and tech investments.
• Industrial employment, land, housing, and mobility challengesindustrial land planned without worker housing/transport/services; land “for growth uses” conflicts with environmental goals and other uses.
• Inclusive Industrial growth cannot occur without long-term planning for technological capabilities, employment, and land issues.
No nodal or other agency oversees the coordination between the goals for strategic economic urban, regional, and sector plans. Sectors advance neither efficiently nor equitably.
'Inclusion' and 'exclusion' go hand in hand. There are serious industrial, technological, employment and environmental problems with our current development model.
Recent changes for urban work
• NREGA• JNNURM
• Supreme court judgments/conflicts
• NCEUS/Social security for informal workers
• Affordable housing: – BSUP under JNNURM has many
complications. – Premium land currently occupied by the
migrant-urban poor in Mumbai, is landlocked [Phatak et al, 2011].
• Employment guarantee
• Urban fiscal devolution, and public infrastructure
• Right to work vs. right to urban space to work:
No provisions for externalities of activities related to production/ trade and for expansion of small and medium units in urbanized areas. Permissible uses often indicated as homogenous.
• Comprehensive social protections and minima• New counting/census informality statistics• New counting of informal workers
• Information New land and housing rules, financing, products, participation
Master Plan / Comprehensive Development Plan
CENTRE
Five year Plans – socio economic in
nature
STATE
Spatial Plans
District Plans –
non Spatial
LOCAL
No spatial plans Responsible only
for implementation
Superceded by the State
74th CAA
STATE
Districts
Taluka / Tehsil / Sub District
Spation + Socio
economic development of the
areaDPC
LOCAL
Spatial Plans by the Corporations and
the Municipal Councils.
Wards
Area Sabhas
Consolidation MPC or DPC
JNNURM
CENTRE
National Steering Group
Mission Directorate
Central Sanctioning & Monitoring
Committee
SLSC
SNA
ULBs / Parastatal
Administrative Section Urban
Local Body
TAG
STATE
LOCAL
Outsourced to private sector
Policy and Vision Participatory Mapped and environmentally regulated Development
SLSC State Level Steering Committee
SNA State Nodal Agency
TAG
Urban Local BodyULB
District Planning Committee
MPC Metropolitan Planning Committee
CENTRE
Five year Plans – socio economic in
nature
State and PlanningInstitutions and Plans at the three tiers
Source: Mohan, 2010, Groupe SCE India
Inclusive Cities
Holistic Planning Approach
Constitution of DPCs Village and Municipal level plans to be outlined
at PRI and ULB level respectively covering the functions devolved to them
Participatory planning
Constitution of Ward Committees Constitution of Area Sabhas
Accountability & transparency
Use of Right to Information Act (RTI Act, 2005) Use of internet, e-governance
Capacity Building
Encouraging partnership between CSOs and Local Govt. (mainly for rural areas)
Monitoring and evaluation
Tracking outcomes instead of outlays and expenditures
The 11th Five year plan calls for a need to restructure the role of Govt. by suggesting that scarce public resources best be channelized towards social sectors rather than sectors where private sectors operating under competitive market can deliver.Source: An Approach to the 11th Five Year Plan- Towards Faster and More Inclusive Growth, Planning Commission, Govt. of India
INDUSTRIAL GROWTH and INCLUSION: All models skirt ULBs and devolution
EXCLUSION OF INDUSTRIAL ZONES FROM THE DECENTRALIZATION AGENDA
• GREEN FIELD SITES: The Yamuna Expressway Region, NCR
• BROWN FIELD SITES: Bhiwadi, NCR• REGIONS AND CITIES: Bangalore Metropolitan
Region• HOUSING FOR THE POOR: BSUP Project,
Panaji, Goa
State and PlanningLaws and NormsFreight CorridorsThe Delhi- Mumbai Industrial Corridor: Excluded from the decentralization agenda and municipalization has a financial outlay of USD 90 billion, covers a length of length of 1483 KMs , nine Mega Industrial zones of about 200-250 sq. km., high speed freight line, three ports, and six air ports; a six-lane intersection-free expressway .
Located amidst agricultural lands and in environmentally sensitive areas. Example: Gujarat
State and PlanningLaws and NormsGrowth and land use versus other uses
Areas designated as ‘industrial’ in master plans are auctioned/ sold by industrial development authorities to private builders for residential/ entertainment uses.
YEIDA PLAN
Source: Public display of the Master Plan for YEA Region, YEIDA
Demographic analyses do not consider detail sector based employment scenarios for manufacturing and services. IT sector and retail ‘success’ seeps into all neighbourhoods, brings own externalities. Street vendors displaced. No innovative mixed use for low-income sellers.
Master planning does not account for housing for migrant labor.
Sub-standard construction workers one room tenement, shared unit, in Bhiwadi, NCR.
Residential area allocated: 21.6% and industrial areas 29% of the total land within the jurisdiction.
Development regulations promote gated multi-storied apartment units.
Policy and Schemes State and PlanningEmployment, Risk, and the city
State and PlanningLaws and NormsConflicts: Judicial and Enforcement wings
State’s different efforts segment the city– Regional and state government agencies– Central agencies– Urban Planning and development
bodies:
Developable
Settlements
State and PlanningLaws and Norms
Lands identified as environmentally sensitive in Structure Plan for the Bangalore Metropolitan Region notified for industrial use by industrial development authorities, here the KIADB.
Growth and land use versus other uses
Existing Land Use: 2003 Proposed Land Use: RMP 2015
Peenya Industrial Area and its vicinities: Mixed Land UsePermissible land uses: Main land use category: RAncillary land use category: C3, I-2,T2 and U4 Ancillary land use is permissible up to 30% of the total built up area
Parking: Buildings with a floor area not exceeding 100sqm are exempted from providing car parking. However, equivalent parking fee shall be levied as determined by the authority from time to time.
Externalities of mixed use zone, for example increased parking, not incorporated in the zonal regulations.
State and PlanningLaws and NormsGrowth and land use versus other uses
T. P. Scheme, Ahmedabad; Source: AUDA
Nation-city dysfunction: No relationship between 5 year Plans, economic growth projections and actual urban/regional industrial growth.
City-neighbourhood dysfunction: Master plans at scales of 1:50,000 and 1: 5000 for analyses as the only tool for planning and implementation does not capture change on the ground
Institutional dysfunction: Town planning scheme: The only planning tool for micro-level planning in the town & country planning acts woefully out of date and inadequate. Implementation of the TPS requires institutional restructuring in most ULBs, thereby a deterrent.
• Micro-needs of industry and workers impossible to spatially and physically embed in cities.
• Indian master plans have no micro-level analog for implementation, and no mechanisms in town and country planning acts.
State and PlanningLaws and NormsInadequate tools for implementation
State and PlanningLaws and NormsInadequate institutions and tools for implementation
Coordinated Planning Scheme (CPS)
Designated on lands occupied by industries under decline
- A tool for facilitating urban renewal and large scale infrastructure through coordinated land pooling
- The CPS Scheme was adapted by the development authority as a tool to reserve land for future acquisition by the development authority.
PEENYA: OLD SUCCESS STORYBut now: absence of a planning tool/ legal and institutional framework for coordinated micro-level planning.
Fragmented development across industrial and residential at the micro level.
No strategic view of optimizing skills, existing SMEs, training facilities, or expansion of private firms.
Municipal councils skirt ULBs and Development Authorities for subdivision and building permits
KIADB and BDA do not coordinate regarding subdivision regulations creating fragmented discontinuous urban areas.
State and PlanningLaws and NormsInadequate tools for implementation
No contiguity between Peenya industrial layout and adjoining residential layouts.
Infrastructure has not been integrated in the design of the layout.Eg: Logistics zone, truck parking, warehousing
Industrial area built upon environmentally sensitive area
Building on lake beds and watersheds causes flooding, health hazards- disease, decline in land price and neglect towards infrastructure.
Existing Land Use 2003 and RMP2015, Electronic City and Bommanahalli, Bangalore
Bangalore
Policy and Schemes State and Planning
Flooding 2005, Bangalore, Bommanahallihttp://www.hindu.com/2008/10/26/stories/2008102650140100.htm
Employment, Risk, and the city
Ground Reality
Zonal Regulations and building byelaws do not address the real demand for work spaces and mixed use in areas occupied by informal industrial sites such as Pete, Yeshwantpur etc, in Bangalore. These areas become semi-autonomous zones and skirt regulations through tenuous negotiations with power groups to meet their occupational land needs.
State and PlanningLaws and NormsPartial and selective implementationInformal industrial zones
Plot size: 9 sqmSetback: NoneGround coverage: 100 %Building height: G+4
Floor Area Ratio: 0.75
60% Ground Coverage
Plot size: 36 sqmSetback: 1m all aroundGround coverage: 60 %Building height: G+1 or 2
Ground reality
Regulation
REGULATIONS
ENFORCEMENT REQUIRES KEEN MONITORING THROUGH A ULB WITH CAPACITY.
FLEXIBLE MIXED USE ZONING DOES NOT ANTICIPATE NEGATIVE EXTERNALITIES IN TERMS OF TRAFFIC, PARKING, POLLUTION, SOLID WASTE AND HENCE
NO PROVISIONS HAVE BEEN MADE IN THE ZRREGARDLESS OF RIGID OR FLEXIBLE REGULATIONS IMPLEMENTATION IS SELECTIVE
State and PlanningLaws and NormsPartial and selective implementation
Migrant workers, Panaji, a city of 80,000
Tin shed houses, 80% of households no water connections, 93% with no toilet facilities of their own.
• BSUP Scheme used for resettlement of migrant workers
• Land designated outside Panaji jurisdiction on low lying flood prone area for the under-privileged
• Project approved by the Centre within 5 days of commencement of the task
• But beneficiary list un-definable due to vote bank politics, Project shelved, Site now being converted to affordable sector housing under PPP with mall as commercial use.
Policy and Schemes State and PlanningMigrant workers, BSUP Scheme housing
Mumbai has introduced affordable rental housing for the migrant laborers. A more desirable model that accommodates mobility of labor and spatial allocation
Tokyo:Urban-centered social investment-led industrial strategy
• Urban and regional Development– Neighbourhood-tied industrial investment coordination strategy for externalities– Social investments in healthcare, education and training, housing and transport– Social protections integrate corporate welfare and small and micro businesses
under health and welfare programs– Industrial and environmental strategies brought together under Tokyo Govt.– Industrial city act, Technopolis Urban rejuvenation program– Private finance initiative, park projects, Downtown (PFI) program in public
investments– Revitalisation Act, Minkatsu Act investment projects ((the use of the private sector
for public work)• Manufacturing production, Development of new technologies, from heavy to
knowledge- linked to environment, medical and incentive and to information welfare, nanotechnology and information technology
• Public investment, Physical infrastructure for R&D infrastructure, transport
• Source: Fujita (2003)
TAMA project:A model project of Industrial Cluster Program
• TAMA:– Technology Advanced Metropolitan Area• TAMA Association:– Intermediary organization between universities andfirms, and among firms in TAMA established in 1998
• Geographical location:– Southwestern part of Saitama Prefecture,– Tama district: of Tokyo Metropolis and– Central part of Kanagawa Prefecture.
Tokyo:Urban-centered social investment-led industrial strategy
Capacity building• Indian labour economists ignore urban and spatial context, physical planners have
little employment and industry focus and national economic plans and policies have little urban relationship. Sector plans and policies rarely have ULBs discussed.
• The municipal corporations and parastatals have no trained economic development planners to embed economic and industrial plans. Engineers dominate these decisions, and management consulting firms with little urban industrial experience dominate national priorities with little institutional analysis. E.g. Bangalore BDA vested with the responsibility to prepare the master plan for a city of 7 million population had 3 urban planners in its TP division [Mohan and Rajagopal, 2010] and none qualified to address long-term economic and social issues.
• In contrast, cities such as Tokyo, Frankfurt, Singapore or New York have far more integrated industrial and economic growth plans, urban and neighbourhood institutions for community participation and sector expansion, urban and regional plans for significant infrastructure and capability building for industries that helps, not hinders citizens. Urban economic and industrial restructuring is overseen by agencies with trained staff and significant consulting expertise by experts. This is over and above basic facilities for citizens such as water and sanitation, pavements, and safe roads.
Limits to growth and inclusion• Urban Economic and Industrial challengesexternalities interfering in way industries advance, lack of worker-work-site amenities, mobility constraints from home to worksite and of home as worksite, agglomeration challenges for knowledge and tech investments.
• Industrial employment, land, housing, and mobility challengesindustrial land planned without worker housing/transport/services; land “for growth uses” conflicts with environmental goals and other uses.
• Inclusive Industrial growth cannot occur without long-term planning for technological capabilities, employment, and land issues.
No nodal or other agency oversees the coordination between the goals for strategic economic urban, regional, and sector plans. Sectors advance neither efficiently nor equitably.
'Inclusion' and 'exclusion' go hand in hand. There are serious industrial, technological, employment and environmental problems with our current development model.
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