Cdp Raipur

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RAIPUR , CHHATTISGARHRAIPUR , CHHATTISGARH

CITY DEVELOPMENT PLANCITY DEVELOPMENT PLANUnder Jawaharlal Nehru National Urban Renewal MissionUnder Jawaharlal Nehru National Urban Renewal Mission

(2006(2006 2013)2013)

STATE URBAN DEVELOPMENT AGENCYSTATE URBAN DEVELOPMENT AGENCY

CHHATTISGARHCHHATTISGARH

IN JOINT VENTURE WITH

June, 2006

Final Report

Operation Research Group Pvt. Ltd.


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City Development Plan, Raipur City Vision, key Priorities & Sectoral Strategy Framework

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TABLE OF CONTENTS

Page No.

CHAPTER I : CITY DEVELOPMENT FRAMEWORK AND PROCESS 1 - 14

1.1 RAIPUR A PROFILE 1

1.2 CITY DEVELOPMENT STRATEGY (CDS) RAIPUR 2

1.3 THE CDP INITIATIVE 4

1.4 CITY DEVELOPMENT PLAN (CDP) OBJECTIVES 6

1.5 SCOPE OF CDP 7

1.6 THE PROCESS 7

1.7 CONSULTATIVE PROCESS IN RAIPUR 11

1.8 CITY DEVELOPMENT PLAN UNDER JNNURM 13

CHAPTER II : DEMOGRAPHY, ECONOMY AND LANDUSE 15-26

2.1 DEMOGRAPHY 15

2.2 ECONOMIC BASE 19

2.3 LAND USE, SPATIAL GROWTH AND PLANNING 22

2.4 DEVELOPMENT CHALLENGES 26

CHAPTER III : GOVERNANCE, INSTITUTIONAL FRAMEWORK AND

REFORMS

27-42

3.1 LEGAL FRAMEWORK 27

3.2 FUNCTIONAL DOMAIN 283.3 INSTITUTIONAL FRAMEWORK 29

3.4 STRUCTURE OF GOVERNANCE IN RAIPUR 32

3.5 KEY ISSUES IN GOVERNANCE 35

3.6 REFORMS 40

CHAPTER IV : MUNICIPAL INFRASTRUCTURE 43-67

4.1 INTRODUCTION 43

4.2 WATER SUPPLY 44

4.3 SEWERAGE AND SANITATION 52

4.4 STORM WATER DRAINAGE 55

4.5 SOLID WASTE MANAGEMENT 57

4.6 TRAFFIC AND TRANSPORTATION 60


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Page

CHAPTER V : BASIC SERVICES TO THE URBAN POOR 68-77

5.1 INTRODUCTION 68

5.2 GROWTH OF SLUMS AND SLUM POPULATION 68

5.3 SOCIO-ECONOMIC CHARACTERISTICS OF SLUM POPULATION 70

5.4 UNORGANIZED AND INFORMAL SECTOR 73

5.5 POVERTY REDUCTION INITIATIVES 74

5.6 COMMUNITY STRUCTURES 75

5.7 INSTITUTIONAL STRUCTURES 75

5.8 KEY ISSUES AND CHALLENGES 77

CHAPTER VI : VISION, KEY PRIORITIES AND SECTORAL STRATEGY

FRAMEWORK

78-151

6.1 INTRODUCTION 78

6.2 WATER SUPPLY 80

6.3 SEWERAGE 95

6.4 STORM WATER DRAINGE 105

6.5 SOLID WASTE MANAGEMENT 114

6.6 TRAFFIC AND TRANSPORTATION 129

6.7 POVERTY REDUCTION STRATEGIC PLAN 137

6.8 INSTITUTIONAL STRENGTHENING 140

CHAPTER VII : FINANCE AND INVESTMENT PLAN 152-164

7.1 FINANCIAL PERFORMANCE 152

7.2 ANALYSIS OF RMC FINANCES 152

7.3 FINANCIAL STATSUS OF RMC 157

7.4 DESIGN CHARACTERISTICS OF A REFORM ORIENTED FUND IN

RAIPUR

162

CHAPTER VIII: CAPITAL IMPROVEMENT PROGRAMME 165-179

8.1 BASIS OF PRIORITIZATION 165

8.2 PROJECT IDENTIFICATION 166

8.3 INVESTMENT REQUIRED FOR 7 YEARS CAPITAL IMPROVEMENT

PROGRAMME

166


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8.4 RECOMMENDATIONS RELATING TO LOCAL BODY AVAILING LOAN FOR

7-YEAR CAPITAL IMPROVEMENT PROGRAMME

178

8.5 FORMULATING AND IMPLEMENTING A CDP 179

LIST OF TABLES

Page

Table 2.1 Average annual growth rate 15

Table 2.2 Composition of growth 16

Table 2.3 Population and area detail under Raipur Planning Area 16

Table 2.4 Demography details of Raipur Planning Area 17

Table 2.5 Proposed decadal growth rate 18

Table 2.6 Economic basis and occupational pattern of Raipur 19

Table 2.7 Industrial Development in Planning Area 21

Table 2.8 Land use in Raipur Municipal Corporation 22

Table 2.9 Status of land use development 23

Table 2.10 Proposed land use as per development plan 2011 24

Table 3.1 Governance Institutions 27

Table 3.2 Different authorities and their responsibilities in Raipur 35

Table 4.1 Basic services minimum requirements 44

Table 4.2 Zone wise coverage of existing water supply system 47

Table-4.3 Water supply standards as per National Building Code (NBC) and Indian

Standards

48

Table 4.4 Water supply norms as per UDPFI Guidelines 49

Table 4.5 Estimated water Supply & Demand till 2013 49

Table 4.6 Finances of City-Level Water Supply and Sewerage Board 51

Table 4.7 Existing Tariff Structure of RMC 51

Table 4.8 Present situation of UGD system in Raipur 53

Table 4.9 Year wise wastewater generation in RMC 54

Table 4.10 Existing infrastructure details Raipur 59

Table 4.11 Lengths of the existing roads under Raipur Municipal Corporation 62

Table 4.12 Details of Proposed Transport Nagar at Rawabhata 65Table 5.1 Slums and Squatter Settlements as per development plan 2011 69

Table 5.2 Access of The Slum Dweller To The Basic Services 70

Table 5.3 Basic Infrastructures in Slums 72

Table 5.4 Community facilities in Slums of Raipur 73


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Page

Table 5.5 List of Poverty alleviation programs 74

Table 5.6 Indicative lists of Institutions and programmes 76

Table 6.1 Identified goals for Horizon years 81

Table 6.2 Project cost for water supply for 2013 85Table 6.3 Year wise Project cost of water supply from 2006-13 87

Table 6.4 Estimated Expenditure on Water Supply 89

Table 6.5 Estimated Revenue from the water supply tariff 92

Table 6.6 Estimated Revenue from the collection of Initial Charges on water supply 93

Table 6.7 Per Capita Income & Expenditure on Water Supply for 2013 94

Table 6.8 Estimated service coverage by Horizon period 96

Table 6.9 Proposed Sewer lines in various zones for 2013, Raipur 96

Table 6.10 Project Summary of Sewerage and Sanitation Systems 99

Table 6.11 Phasing & Implementation 99

Table 6.12 Estimated Expenditure on Proposed Sewerage and sanitation System for2013

100

Table 6.13 Estimated User Charges for 2013 101

Table 6.14 Estimated Initial Charges for 2013 102

Table 6.15 Per Capita Income & Expenditure on Proposed Sewerage and sanitationSystem for 2013

103

Table 6.16 Cost Benefit Analysis on Water Supply, Sewerage and sanitation System 104

Table 6.17 Estimated Cost for proposed drains ward/Area wise 110

Table 6.18 Estimated cost for storm water System for 2013 111

Table 6.19 Year wise estimated cost for storm water System for 2007-13 111Table 6.20 Estimated Expenditure on Proposed Storm Water Drainage System for 2013 112

Table 6.21 Estimated revenue from the development of storm water drains 113

Table 6.22 Goals, service outcomes for different horizon years 114

Table 6.23 Estimated Waste generation Profile 116

Table 6.24 Type of waste quantity & disposal method 120

Table 6.25 Recommendations for SWM 121

Table 6.26 Detailed estimated Capital cost for SWM 122

Table 6.27 Estimated cost for Proposed SWM System 124

Table 6.28 Phasing & Implementation 125Table 6.29 Estimated Expenditure for Solid Waste Management 125

Table 6.30 Revenue Recovery Year wise 127

Table 6.31 Estimated Per Capita Cost Benefits on Proposed Solid Waste ManagementSystem

128

Table 6.32 Estimated Cost for Proposed Transportation System 132


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Page

Table 6.33 Total estimated cost for proposed Transportation System 133

Table 6.34 Year wise estimated cost for proposed Transportation System 134

Table 6.35 Estimated Expenditure for Transportation 135

Table 6.36 Phasing of Proposed Transportation System 135Table 6.37 Vision for basic services 137

Table 6.38 Slums in central area Raipur 141

Table 6.39 Tentative estimation of physical development for urban poor 142

Table 6.40 Institutional responsibility matrix 145

Table 6.41 Project listing priority 147

Table 7.1 Total receipts and payments of RMC in actual terms 155

Table 7.2 Revenue Income and Expenditure of RMC 155

Table 8.1 Total Investment required for 7-years Capital Improvement Programme 168

Table 8.2 Sector wise Prioritization from 2006-13 169

Table 8.3 Sector wise Detailed Project Cost from 2006-13 173


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LIST OF FIGURES

Page

Figure 1.1 The growing importance of cities 3

Figure 1.2 City development strategy process 11

Figure 1.3 The planning process 12

Figure 2.1 Occupational pattern of villages 20

Figure 2.2 Land use distribution (1998) 22

Figure 2.3 Land use status of implementation 23

Figure 2.4 Comparative chart of LUR 24

Figure 3.1 Organogram2 State Level Agencies 31

Figure 3.2 Roles and responsibilities- inter relationship of variousdepartments

32

Figure 7.1 Ratio of own revenue to total revenue income and to total

income

152

Figure 7.2 Gap funded by capital income 154

Figure 7.3 Actual income and expenditure figures against budgeted figures 156

Figure 7.4 Current situation/with the reform fund 164

Figure 8.1 Formulating and Implementing a CDP 179

ANNEXURES

Annexure 1 Reforms

Annexure 2 Municipal Finance

Annexure 3 List of Maps

Map No. 2.1 Existing Land Use

Map No. 2.2 Development Plan 2011

Map No. 4.1 Water Supply Plan

Map No. 4.2 Natural Drainage System

Map No. 4.3 Existing Road Network

Map No. 5.1 Slum in Central Area

Map No. 6.1 Proposed Water Supply Plan Phase-1 (2006-2011)

Map No. 6.2 Existing and Proposed Sewerage Plan Phase-1 (2006-2013)

Map No. 6.3 Proposed Drainage System Phase-1 (2006-2013)

Map No. 6.4 Proposed Solid Waste Management Plan

Map No. 6.5 Proposed Circulation Plan


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Raipur District Map

CITY DEVELOPMENT FRAMEWORK AND PROCESS

1.1 RAIPUR- A PROFILE

Raipur became the capital of the State of Chhattisgarh on Ist November 2000 when

Chhattisgarh was carved out of the south-eastern parts ofundivided Madhya Pradesh. Uttar

Pradesh and Jharkhand in the north, Orissa in the east, Andhra Pradesh in the south and by

Madhya Pradesh and Maharashtra in the west, bound the state.

Raipur is the capital city of the recently formed state of

Chhattisgarh, carved out of the erstwhile state of Madhya

Pradesh. The city is also the head quarter of Raipur

District. Raipur District is situated between 21o14'N to

22o33'N latitude and 81o38'E to 82o6'E longitude. The

district is administratively divided into 13 Tehsils and 15

revenue blocks.

Chhattisgarh is the richest Stat, in the union of India, in

terms of mineral wealth, with 28 varieties of major

minerals, including diamonds. All the tin ore in India, a fifth

of iron ore in the country and one of the best quality iron

ore deposits in the world are found in the Bailadila

mines in south Chattisgarh. Rich deposits of Bauxite,

Limestone, Dolomite and Corundum are found in the State. The State has large deposits of

coal, iron ore and limestone in close proximity, making it the ideal location for the lowest cost

of production. Raipur, being the capital of Chattisgarh, is positioned to support the mineral

based industries.

Chhattisgarh is a land of opportunities and is endowed with huge mineral deposits and forest

resources. By virtue of its coal reserves, the state is poised to become the power hub of the

nation. Identified as one of the richest bio-diversity habitats, Chhattisgarh has the densest

forests in India, and above all, over 200 non-timber forest produces, with tremendous potential

for value addition. There are mega industries in steel, aluminium and cement already

functioning in the near vicinity of Raipur even before Chhatisgarh was declared a separate

1


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Mission Statement: The aim is toencourage reforms and fast trackplanned development of identifiedcities. Focous is to be onefficiency in urban infrastructureand service delivery mechanisms,community participation, and

state. After the new state was formed, the city is also gradually emerging as an educational

hub.

Chhattisgarh has the largest concentration of schedule tribes (STs) in the country. As a result,

the city of Raipur has a fair share of its population belonging to schedule tribes. Besides the

native population, the city has a significant number of migrants from other parts of the country

owing to its multi disciplinary functional characteristics.

The major issue of Raipurs future growth pertains to the growth of the city as the state capital.

The state government is in the process of establishing the capitol functions in a greenfield

area and its integration with Raipur, the primate city of the state. The state government has

initiated activities on an area of about one thousand hectares near village Kotarabhata,

Kuhera and Rakhi in Mandir Hansad Assembly constituency for locating the capitol functions.

The new capital township is envisaged to develop as a satellite town of Raipur. Apart fromthe capitol functions, Raipurs regional primacy as a commercial, industrial and educational

centre needs to be addressed from a future perspective of the regional development.

The city is located in the fertile plains of Chhattisgarh Region. The major constituents of the

soil are silt, clay and sand. The general slope of the land is towards north. Mahanadi is the

primary river of the region. Water supply to the city is from the Kharun River, a tributary of

Mahanadi that has been dammed at Mahadeo Ghat. The climate of Raipur is warm. The

mean maximum temperature in May is 46.4 0C. Relative Humidity is generally over 75%.

Rainfall observations indicate that annual rainfall in the area is around 1400 mm.

The foremost issue of urban growth in Raipur pertains to its growth as the state capital with

appropriate city cynosures. Apart from the state capitol functions, of late the city has also

emerged as a major commercial, educational and industrial centre in the region. Integration of

Durg city (head quarter of Durg district) with Raipur has been a concern for long. The market

forces and urbanization trend has already vested dense ribbon development along Raipur-

Durg corridor (NH-6) posing traffic bottlenecks. With the added importance of capitol functions

in Raipur, the trend is likely to intensify and pose further problems in this corridor.

1.2 CITY DVELOPMENT STRATEGY

The urban agglomeration, with growth in

population is putting heavy pressure on services

and the urban local bodies are not been able to


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meet the demands and expectations. To address the present and emerging infrastructure

needs and services delivery gaps in Raipur urban agglomeration area the city development

strategy need to be prepared. The key objective of the strategy will be to formulate a

development strategy for meeting the emerging challenges of infrastructure, address the

problems of urban poverty and create enabling environment for the growth of economy.

Cities and towns matter:

Firstly, because of the sheer and increasing weight of people located in urban areas

Secondly, because of the economic, social and cultural activities that continues to

cluster in cities and which increasingly drive national development processes; and

Thirdly, because of the apparent intractability of urban poverty, which threatens

national development. Urban poverty is a most degrading and pernicious problem, and

one that is not diminishing; quite the opposite in many countries.

Figure: 1.1 The Growing Importance of Cities

URBAN POPULATION AND ECONOMIC CHANGES

Rapid urban population increase

Urban populations soon numerically dominant

Urban economic activity driving national economics

GLOBAL ECONOMIC TRENDS

Globalization

Market liberalization

Rapid technologicalchange

Localization, a new

competitive factor

GLOBAL POLITICAL TRENDS

Decentralization

Devolution

Rise of Governance-moving beyondgovernment

Rise of municipal civicleadership

Increasing Economicand Political

Importance of Cities


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1.3 THE CDP INITIATIVE: A PROPOSED NORMATIVE FRAMEWORK

In order to assess the success or otherwise of the CDP initiatives, it is necessary to clarify the

expected outcomes of the initiative. In other words, a normative framework for the CDP must

be established. Based on the above review of the economic potential of cities and current

thinking on development, it is appropriate that the

Outputs of a CDP should focus on:

The city as an engine of economic growth;

The city as the locus of good governance; and

The city as an arena of social inclusion and poverty reduction.

The key expected process characteristics and outputs of a CDP are as follows:

Stakeholder Participation: A CDP is to be seen as an instrument whereby trust and

relations of mutual benefit between stakeholder groups are built, managed and nurtured. A

CDP is a mechanism of social inclusion. In addressing issues involved in the recreation of civil

society through inclusion a CDP is often a political process.

Building Civic Capacities and Capabilities: Most importantly, a CDP should be a

process through which the capacities and capabilities of the stakeholder group are

considerably improved. For government a CDP should be an instrument to be used to buildand ensure good governance, to change institutional behavior, and thereby to build the

internal institutional ability to direct the economy and manage civil society and for the

community a CDP should be an instrument to build freedoms of development.

The CDP InitiativeAn Economic and Governance

Strategic Response to the IncreasingImportance of Cities


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Changing the Nature of Thinking about Development: A CDP involves people

thinking about the development of their city in a different way than that which characterized

the past. Getting a critical mass of people thinking strategically should be one of the defining

successes of a CDP.

Addressing the Complexity of Development: Experience demonstrates the complex

development agenda associated with the new economic realities demands a coordinated

strategic approach by all the main stakeholders in the public, private, and community sectors.

A CDP should be seen as an instrument, which can be used to achieve a coordinated

strategic approach. Other important products associated with a CDP can be summarized as

follows:

A Collective Vision and Strategy: A CDP should generate a collective vision, lay the

foundation for a more collaborative economy, and bring both strategic intent and realism to

city development planning. Indeed, development experience clearly demonstrates that

strategies are more likely to fail when they are not grounded in a collective vision to which the

stakeholders are committed, and a consensus, which the stakeholders are committed to

maintain.

Defined Priorit ies and Action Plans: A CDP should focus on the fundamental drivers of

economic change and assists stakeholders determine development priorities, sort out specific

inter -sectoral priorities and investment sequencing, and thereby formulate and implement

practical actions plans.

Defined Roles and Responsibilities for Stakeholders: Role definition (including the

provision of enabling resources) is part of the process of empowerment. Assigning

responsibilities to various stakeholders enhances performance. Both processes are related to

the building of civic consciousness. A CDP should involve, engender and empower reciprocal

responsibilities amongst stakeholder groups, and precipitate a change in dependencyattitudes and behavior.


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The CDP aims at achieving equitable growth by addressing the issues of economic growth,

poverty, good governance and service delivery to the poor through a consultative process of

strategizing and visioning. A collective city vision and action plan aimed at improving urban

governance and management, increasing investment to expand employment and services,

and systematic and sustained reduction in urban poverty.

The CDP makes basic policy choice and provides a flexible framework for adapting to real

conditions over time. It emphasizes on issues of priority local concerns for livability, and the

implied requirements in terms of enhancing city productivity, reducing poverty, improving

urban governance and enhancing financial sustainability.

Enhancing City Productivity

Reducing Poverty

Improving Urban Governance and

Enhancing Financial Sustainability

The CDP comprises of sectoral plans for the identified sectors for a time horizon of 20 years

outlining the policy framework and investment interventions to achieve the vision. The

objectives of CDP are:

To develop a city development framework for Raipur Urban Agglomeration

To formulate the Strategic Action Plan and the City Assistance Programme based on the citydevelopment framework

Prioritization of sectors and identification of short, medium and long-term goals; and

Preparations of implementation arrangements

1.5 SCOPE OF CDP

The CDP outlines the strategic policy and investment interventions to achieve the vision of

Raipur including formulation of sectoral plans for the identified sectors. The scope of work is

to:

Assess the current situation in respect of demographic and economic growth, infrastructureservices, municipal finances, etc;

Identify the gaps in service delivery;

Outline the issues faced by the citys poor;

Prepare a vision and sectoral strategic framework outline the goals, strategies, interventionsand projects to achieve the vision;


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Formulate a city investment plan with appropriate financing strategies and an implementationaction plan; and

Focus on the reforms to be carried out at the state and local levels in consonance with thevision and strategic plan outlined to sustain the planned interventions.

1.6 THE PROCESS

The ethos around which a City Development Plan is built is the notion of participatory planning

so as to ensure buy-in of the plan from a cross-section of stakeholders. The planning process

therefore needs to be a consultative one, with stakeholders representing a wide spectrum of

interests taking part in the discussions and dialogue leading to the formulation of a vision and

development objectives, identification of priority sectors and projects. The Planning Process

followed for preparing the CDP for Raipur has remained faithful to this ethos. Exhaustive

consultations were carried out with key stakeholders, both institutional and individual. These

stakeholders included key representatives (both elected and administrative) of Raipur

Municipal Corporation, the Urban Development Authority, line departments of the state

government such as PHED, PWD, Irrigation, Transport, Railways, Tourism et al, prominent

citizens of Raipur, representatives from trade and commerce, NGOs, slum inhabitants,

representatives of education institutes.

In addition to one-on-one interactions, a Preliminary Stakeholders workshop was held on 10th

February 2006 and 8 April 2006 in Raipur. A Rapid City assessment was presented in each of

these workshops and consensus was sought on the key issues facing each of these cities. A

draft vision was also finalized in these workshops.

1. 1st Field Visit: 16th to 21st December 2005

2. 2nd Field Visit and Meetings with officials of different organizations: 3rd to 6th

January 2006

3. 3rd fiend visit and 1st Stakeholders consultancy: 10th to 16th February 2006

4. 4th Field visit and 2nd Stakeholders consultancy: 8th to 10th April 2006

The CDP outlines the critical issues of city development, undertakes a deficiency analysis and

formulates a management framework outlining strategies and guidelines for future growth.

The plan provides a distinctive thrust for introducing enabling rather than restrictive regulatory

mechanisms through realistic planning and management interventions with the overall

regulatory and instructional framework. A development implementation action plan comprising


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of implementation schedule, role of stakeholders, regulations and institutional strengthening

mechanisms are formulated. It also aims at institutionalizing through monitoring mechanisms.

The CDP, considered as an inter-sectoral exercise, took into account the existing situation

including assessing the current status of municipal services, its fiscal status, operational and

management procedures. The CDP also took into consideration the works and plans of other

government and quasi government agencies contributing towards the growth and

development of the city and was prepared by undertaking the following tasks:

Vision exercise;

Situation analysis;

Formulation of goals and strategies;

Capital investment plans and project scheduling;

Stakeholder workshop;

Action and operating plan indicating the policy and reforms measures for improved serviceprovision and delivery.

The entire exercise was carried out through robust stakeholder participation through various

stages. The data has been captured on various dimensions of municipal functions, including

governance, finances, infrastructure, civil societies and poverty alleviation initiatives, etc.

Stakeholder analysis: The following stakeholders were identified:

The city district level agencies like RMC, Raipur Urban Development Authority

Officials of the department of urban development and municipal Administration, Government ofChhattisgarh

Representatives of live departments like education, health, welfare, electricity, housing andothers responsible for delivery of public services

Representatives of business trade industry and other private sector agencies

Non-governmental and community based organizations

Representatives of the poor communities- NHGs, NHCs, SHGs, etc.

Representatives of the civil societies, including media, academic institutions, etc.

Orientation To The Key Stakeholders

A key feature of Consultations is inclusion of the representatives frompoor community Development Societies and Self-Help Groups in the


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The key stakeholders such as Corporators, Officials from various other convergent

departments, and representatives of community based organizations and civil society

organization etc. were familiarized with the purpose, process and expected outcomes of the

CDP. An important feature of preparation of CDP was consistituation of working groups with

sector specialists. The following working groups were constituted:

Governance

Poverty Alleviation and Slum Improvement

Land-use planning and environment

Economic Development

Environmental Improvement

Traffic and Transportation

Water supply and Underground drainage

Sanitation and Solid waste management

Health

Education

Municipal Finance

These working groups identified indicators for sustainable development in the respective

areas and reviewed the current situation, projected the requirements over a period of two

decades and made valuable suggestions and recommendations to improve governance in all

its aspects including infrastructure provision and poverty alleviation. The RMC constituted the

Municipal Reforms Committee and three Working Groups on governance reforms,Infrastructure and Poverty Alleviation, as per the guidelines of Chhattisgarh Urban Reforms

and Municipal Services project (CURMSP). These Groups also made valuable

recommendations.

The Government of India has launched a major programme, entitled Jawaharlal Nehru

National Urban Renewal Mission (JNNURM), for promoting reforms and investments in select

63 cities in the country. Raipur is one of the eligible cities under the scheme. Under JNNURM,

it is mandatory to prepare City Development Plan through consultative process. Accordingly,

the Raipur Municipal Corporation (RMC) has prepared a CDP based on the City Development

Strategy formulated earlier. The insights of the workshop groups and their recommendations

were reviewed and the CDP finalized through consultations. The CDP process is given in

Figure 1.2.


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Figure 1.2 City Development Strategy Process

1.7 CONSULTATIVE PROCESS IN RAIPUR

The ethos around which a City Development Plan is built is the notion of participatoryplanning. The planning process therefore needs to be a consultative one, with stakeholders

representing a wide spectrum of interests taking part in the discussions and dialogue reading

to the formulation of a vision and development objectives, identification of priority sectors and

projects.

City Assessment

Opportunities, strengths, weaknesses,unmet demand or gap

Future Perspective and Vision

Direction of change andProjections/expectations

Strategies for Development

Options and Strategies

Reforms

City Investment Plan & Financial Alternatives

Parameters

Demography Economic

Base

FinancialProfile

Infrastructure

Parameters

Environmentalservices

SocialInfrastructure

Urban Renewal Slum

Im rovement


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This City Development Plan has been prepared for the city of Raipur, as part of the initiative of

the Government of Chhattisgarh to access funds from the Jawaharlal Nehru National Urban

Renewal Mission (JNNURM).

The City Development plan process for Raipur is given in Figure 1.3

FIGURE 1.3 THE PLANNING PROCESS

Task 1: Initial Consu ltation and Reconnaissance

Initial Meeting with officials of MunicipalCorporation and other key parastatalagencies (eg. PHED, UDA).

Data needs and requirements.

Reconnaissance visit of project area.

Task 2: Analysis of Data

Analysis of data, (Published / Unpublished viz.census, municipal records etc.) maps, drawings,

existing project reports.

Demographic & Socio-Economic ULB financial and organization Information,

Rapid review of relevant Acts.

FIELD LEVEL SITUATION ASSESSMENT

Task 3: Rapid Assessment ofLand Use, Infrastructure &

Environment

Rapid field assessments withULB/ PHED, and other

Stakeholders.

Task 4: Rapid Assessment of Socio- EconomicIssues

Rapid assessments of local economy, incomeprofile, key occupations, primary health and

education services. ULB performance in povertyschemes.

Task 5: Rapid Assessment ofFinancial and Institutional

Capacity

Organization mechanismsof ULB

Correlation of ULB with

Stakeholders Consultations:

Consultations with ULB councilors, parastatal officials, NGOs, prominent local citizens, etc.

VISION / PRELIMINARY CONCEPTTask 6: Demand Analysis

Taking citizen priorities into account to assess

Task 7: Supply Analysis

Coordination mechanisms between all city levelagencies. Projection of ULB finances, organizational

capacity

Task 8: Priority Project Identification and Preparation ofCity Investment Plan (CIP)

Task 9: Reform Measures and Insti tutional

Strengthening Plan

-


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Although CDPs are a

mandatory requirement toaccess large investible fundsfrom GoI, they should beseen by State Governmentsand ULBs as an initiative to

1.8 CITY DEVELOPMENT PLAN UNDER JNNURM

The City Development Plan is an essential element of

State Governments overall application for funds underthe JNNURM. CDPs provide cities the opportunity to

achieve convergence of opinion and ideas across

various infrastructure, service delivery and institutional

reforms agenda. Prepared through a participatory

process with various urban stakeholder groups, The CDP and will set a vision for the future

development of the city, a set of objectives and goals which the city aims to achieve and

identifies thrust areas in various sectors which need to be addressed on a priority basis in

order to achieve the objectives and the vision. It thus provides the overall framework withinwhich projects will be identified and put forward in a City Investment Plan. Seen in this light,

the City Development Plan differs from a traditional Master Plan which focuses on

development trends based on land use and related controls.

The Government of India has launched Jawaharlal Nehru National Urban Renewal Mission

in the current year 2005-2006. To access the funds under JNNURM, the city is required to

prepare City Development Plans (CDPs) and implement a set of reforms at the state and the

city levels by entering into a tripartite agreement. The CDP also took the inputs from studies

viz., the Master Plan for preparation under the Town and Country Planning Department under

UDA. This document is result of extensive consultations with stakeholders in RMC as per the

guidelines of Jawaharlal Nehru National Urban Renewal Mission.

Features o f a City Development Plan

A City Development Plan should have the following features:

Prepared for a 5-10 year horizon, such plans are based on past trends, existing strengths andlimitations

The planning horizon is set to be foreseeable and achievable

The plans seek to integrate infrastructure requirements and environmental concerns togetherwith land-use patterns and regulation of the same


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The plans derive the vision, objectives and targets from socio-economic needs and quality oflife needs as articulated by their citizens, their representatives and other stakeholders from civilsociety

Poverty alleviation and needs of urban poor are important elements of such plan withcommensurate allocation of resources

The plans focus on resources available, seek to balance needs and priorities with availableresources

Multiple stakeholder agencies are involved in such planning to ensure a shared and commonlyowned vision, development objective and plan of action

Private sector role in preparation of such plans, financing and implementation is ingrainedInstitutional reforms and capacity enhancement measures of urban local bodies and / or othercivic agencies are integral to such plans


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DEMOGRAPHY, ECONOMY AND LANDUSE

2.1 DEMOGRAPHY

Raipur, the largest urban agglomerations in the state, consists of the Raipur Municipal Corporation

(RMC). Planning area of Raipur is notified under the act on 22.11.73. It is spread over 188.01 sq.km and

consist of 41 villages with in the planning area (Map No 2.1). Raipur is the largest city in the state with

a population of 670042 as per census 2001.

Population Growth Rate

The connectivity of Raipur helped it to develop as the wholesale market and logistic hub for

the adjoining states. Designation of capital city further added functions of administrative city to

the list of other functions of town. Raipur also provides for higher order social infrastructure

facilities in education and health for the entire state. These roles and functions have made

Raipur a very active and high potential developing city. The Population that has been taken for

CDP pertains to population of Municipal Corporation area as per census 2001. In the year

2003, 26 villages were brought under RMC. These villages had a population of 88139 as per

2001 census and were added as 16 Wards under RMC. The growth rate for projecting the

population of these villages for the year 2003 has been taken at 2.01% (The growth rate for

Rural Population in MP between 1991-2001). Considering that population the projection has

been done for 2005 to 2021. The average annual growth rates of Raipur city between 1981-

2011 are given in Table 2.1.

Table 2.1: Average Annual Growth Rate

Sl.No. Year Population Average Annual Growth Rate (%)

1 1981 338000 5.07

2 1991 461000 3.15

3 2001 670042 3.81

4 2005 (Estimated) 866545 3.48

5 2011 (Projected)* 1064045 3.48

Note: Population projection has been done using Compound Growth Rate Method.

The city is witnessing rapid growth since it has assumed the role of capital city. The growth

rate is significantly above the average national growth rate in urban areas.

2


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Table 2.2 below presents composition of growth during 1981-2001

Table 2.2: Composition of Growth

Composition Population Increase During

Year 1981-91 % of Total 1991-2001 % of Total

Natural Increase 67650 55% 81526 39%

In-migration 55350 45% 127516 61%

Jurisdictional

Change

0 0 0 0

Total Increase 123000 36.39 209042 45.34

The population and the area detail for Raipur Planning Area is give in Table 2.3.

Table 2.3: Population and Area Details under Raipur Planning area

Sl.No Name of villages in planning area Area in hect.Population

(Census 2001)

A Raipur (U.A.) 699,264

B Raipur (M.C.) 1222.2 670042

1 Birgoan 345.8 10653

2 Deopuri 397.0 3930

3 Boriakhurd 424.1 3218

4 Urkura 551.3 5334

5 Jora 395.5 3968

6 Sarora 592.2 7074

7 Dumartarai 385.0 3205

8 Dunda 511.8 2952

9 Rababhata 935.7 6469

10 Goagoan 303.3

11 Mowa 387.7

12 Tikrapara 687.4


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Sl.No Name of villages in planning area Area in hect.Population

(Census 2001)

13 Sarona 561.00

14 Sondongari 395.5

15 Gondwara 343.3

16 Daldalseoni 688.1

17 Labhadih 764.1

18 Amlidih 385.2

19 Bhatagoan 943.6

20 Hirapur (jarvai) 447.0

21 Attari 240.2

22 Tatibandh 561.00

23 Chandniadih 289.0

24 Bhanpuri 350.3

25 khamtarai 449.2

26 Raipura 659.3

27 Changor Bhata 165.5

28 Mathpurena 647.3

29 Phundhar 244.3

30 Telibandha 454.5

31 Sardu 3003

32 Dangania 45.8

33 Chirhuldih 256.4

34 Gudhiyari 149.2

35 Fafadih 134.4

36 Pandari Tarai 111.6

37 Kapa 301.5

38 Sankarnagar 413.8

39 Kota 363.3

40 Dumartalao 370.0

41 Raipur Khas 1163.8

Grand Total Planning Area 18801.6 719848


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Villages mentioned at serial number 1-9 fall out side municipal area, villages from 10-30 fall fully or partially within new MunicipalCorporation area, village Sardu mentioned on serial no. 31 is included in new Municipal Corporation area but does not fall inPlanning area. However this village is included in revised planning area. Villages mentioned from 32-41 fall within old municipalarea, therefore the population of villages falling partially or fully within municipal area is mentioned collectively as population ofRaipur M.C.

Planning area Raipur has got 4 urban settlements apart from Raipur municipal area, which constitutes 21+1(Sardu) urbansettlements and 20 rural settlements. The settlements falling in planning area adjacent to municipal area are the ones who faceand absorb the pressure of development. The demography of these villages is detailed in Table 2.4.

Table 2.4: Demography Details of Raipur Planning Area

SL.NO.

VILLAGE NAMETOTALPOP.

SCPOP.

ST POP. LITERATEWORKERSIN %

HOUSEHOLDSIZE

1 Gudhari 467 433 0 283 AL- 93.8 4.5

2 Tikrapara 6444 475 372 3877 OW- 91.0 5.3

3 Sarona 9820 1172 2043 3308 OW- 93.7 4.3

4 Sondongari 2952 48 79 1413 OW- 65.2 5.6

5 Gondwara 2713 1178 313 1452 OW- 81.8 4.5

6 Daldalseoni 4359 285 77 2696 OW- 796 5.47 Labhandih 3949 1238 68 1562 OW- 50.6 5.8

8 Amlidih 2424 109 87 1396 OW- 69.7 7.0

9 Deopuri 3930 1838 63 2186 OW- 79.1 6.0

10 Boriahhurd 3218 170 222 1915 OW- 63.5 5.4

11 Bhata Goan 7751 133 531 4603 OW- 49.4 6.3

12 Rawabhatha 6469 1075 150 3176 OW- 75.9 4.9

13 Urkura 5334 62 155 3043 OW 72.8 4.3

14 Jora 3968 723 98 2651 OW- 67.8 5.9

15 Sarora 7074 640 445 4190 OW- 81.0 4.4

16 Dumartarai 3205 813 70 1752 OW- 55.0 6.0

17 Dunda 2952 476 0 1407 CL- 46.6 7.7

18 Sardhu 3003 397 39 1584 OW- 61.8 5.8

19 Banasari 10653 1186 413 7638 OW- 92.9 4.6

20 Birgoan 23562 3013 1094 13924 OW- 95.9 4.4

21 Gogoan 10456 2529 933 5644 OW- 91.7 4.3

22 Mowa 13706 2355 615 8798 OW- 96.8 4.9Note: AL: Agricultural Labour; OW: Other Workers; CL: Cultivators

Analysis of the above table reveals that Gudhiary has got maximum population (92.75%) as

scheduled castes, followed by Deopuri (46.8%) and Gondwara (43.4%). There is only one

village Sarona that has maximum congregation of 20.8% Scheduled Tribe population. The

household size varies from 4.2 to 7.7; Dunda, Amlidih, Bhatgoan and Dumartarai are the

critical villages having a high house hold size.

2.1.1 Future growth pattern


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The rates of growth of population experienced by Raipur Urban Agglomeration during 1991

and 2001 will continue in future through at a lesser rate. The projections indicate that the

Raipur Municipal Corporation would house a population of 10.64 lakhs in 2011 and 14.98

lakhs in 2021. The detail is shown in Table 2.5.

Table: 2.5 Proposed Decadal Growth Rate

Year Decade Growth Rate Population

2001 1991-01 37.9% 670042

2011 2001-11 34.8% 1064045

2021 2011-21 34.8% 1498216

2.1.2 Emerging Issues

The Raipur Urban agglomeration is experiencing population growth rates higher than the

state. In the next two decades it is expected to touch 1.5 million marks. Most of the growth is

taking outside the RMC area in the urban agglomeration. This necessitates integrated

planning, development and service delivery.


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2.2 ECONOMIC BASE

2.1.3 Occupation Pattern

As per the 2001 Census over 46% of the total population comprises of city work force and the

occupational pattern of Raipur indicates that it is a major center for tertiary activities. While 67.14% of

the total workers in 1991 belonged to the tertiary sector, the proportion has increased to 75.13% of the

total work force in 2001. On the other hand there has been a decline in the proportion of workers in the

secondary sector from 25.49 % to 19.51% during 1991 and 2001 respectively. A detailed composition of

work force has been enumerated in Table 2.6.

Table: 2.6 Economic Bases and Occupational Pattern of Raipur

1991 2001

Sectors CategoryNo.

% of totalworkers

No.% of totalworkers

I Cultivation 2493 1.81 1068 0.4

II Agricultural Laborers 3278 2.38 1567 0.7

IIILive stock, fisheries, forestryetc. and allied activities.

3899 2.8

IV Mining and Quarrying 437 0.31

A

Primary

Total 10107 7.36 5.36

V AManufacturing andprocessing in Householdindustry

2567 1.87 7582 3.48

V BManufacturing andprocessing in Householdindustry

24392 17.77

VI Construction 8023 5.84

Secondary

Total 34982 25.49 19.51

VII Trade and Commerce 36623 26.68

VIIITransport. Storage andcommunication

18277 13.31

Tertiary

IX Other services 37234 27.13

B


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Total 92134 67.14 75.13

Grand Total 137223 100.00 217641 100

Source: Census 2001

Work participation rate in Raipur Urban Agglomeration is 32.48%, which is slightly greater than the state urban work participationrate i.e., 31.11 %. Service sector has been increasing after becoming the state capital in 2000.

Gudhiyari is one amongst the initially developed areas. The literacy rate is above 50% in all the

settlements of planning area but workers participation rate of female is high but participation of women

in other working class is less.

Economic structure of the population of planning area falls in other workers category; only

Gudhiyari has 93.8% population engaged in primary sector as agricultural labour and Dunda

has 46.6% population engaged in primary sector as Cultivators.

The graph above shows the male and female work force engaged in various occupations. This

can be seen that female participation is also good in almost in all the villages. How ever a

OCCUPATIONAL PATTER OF VILLAGES

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%

NAME OF THE VILLA GES

%AGE

Female Other w orkers

Female Household Industries

Female Agriculturals

Female Cultivators

Male Other w orkers

Male Household Industries

Male Agriculturals

Male Cultivators

Other workers'

Household Industries'

Agriculturals'

Cultivators'


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tendency is seen that maximum male and female workers are in the category of other workers

in Mowa, Sarona, Bhanpuri, Birgaon and Tikra para. Where as Atari and Jarvay are having

maximum female work force in Agriculture. Atari and Labhandih have reasonable amount of

Agricultural occupation.

2.1.4 Trade and Commerce

The city of Raipur is traditionally the main agricultural market center for the State. It acts a

major commercial center to a host of wholesale and retail activities dealing in consumer

goods, textiles, automobiles, industrial products etc. it is also major trading, place for

processed Iron materials, Virginia Tobacco etc. the agricultural commodities produced in this

part of Chhattisgarh finds its market in Raipur both for local consumption and export.

2.2.3 Industries

Agro based industrial activity is predominant around the city. The industrial base consists of

solvent extration plants, rice mills, oil and dal mills etc. there are 2 Industrial Estates in and

around the city. Urla and siltara located in the northern part of the city. Total 850 Hect. Land

was allocated under industrial use in planning area out of which only 430 Ha land is

developed. But out of planning area 1608 Ha land is developed by AKVN outside planning

area. Some unauthorized area is also developed in NE in Daldalseoni Mova, in East

Dhomtarai, Deopuri, Tikarapara and in West Talibandh and Chandandeeh, which shows the

development in almost all directions. The details are given in Table 2.7.

Table: 2.7 Industrial Development in planning area

Sl.No Type of IndustryPlan 1991 ProposedLocation

Area inHa.

Implementation Status

Reasons

1 Heavy Gogaon 200 Not Executed

Medium Gogaon 65Partly Executed(10%)

Privateland

Service, SSI Gogaon 80 Executed2 Polluting Kelkarpara 50 Not Executed

3 Agricultural Based Near New Grain Mandi 110 Not Executed

4 Forest Gogaon 145Partly Executed(5%)

Privateland

5WagoanWorkshop

Bhanpuri / Kampa 200 Executed

Source: Department of Town and Country Planning


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Land Use Distribution (1998)

55%

5%12%

12%

3%13%

Residential

Commercial

Industrial

PSP& PUF

Recreational

Transportation

The execution status clearly shows that the developed land under industrial use is much more

than the speculated and proposed, but not in the planning area. The reason being

establishment of industrial growth centre at Siltara and industrial area at Urla around Raipur.

2.3 LAND USE, SPATIAL GROWTH AND PLANNING

2.3.1 Land Use Pattern:

The area of the municipal Corporation has increased from 140 Sq.Km to 188 Sq.Km the

corporations administrative area comprises of 54 administrative divisions inclusive of the

extension areas. With regards the existing land use (excluding the extension areas of the city)

about 55.3% of area is categorized as residential and a significant 13.5% is assigned towards

transport. On the other hand the proportion of commercial and public use land constitutes

4.8% and 12.1% respectively. The land use details of the added areas are unavailable. A

detailed land use structure of the Corporation area has been enumerated in Table 2.8 and

Map 2.2

Table No: 2.8 Land Use in Raipur Municipal Corporation

Land Use Area in Ha % Distr ibut ion in 1998

Residential 2050 55.3Commercial 180 4.8

Industrial 430 11.6

PSP& PUF 450 12.1Recreational 100 2.7

Transportation 500 13.5

Total 3710 100.00

Fig 2.2: Land use Dist ribution (1998)


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Land Use- Status of Implementation

27%

20%15%

14%

6%

18%

Residential Commercial Industrial

Public and Semi-Public Recreational Transportation

2.3.2 Planning Efforts

Raipur development plan 1991 was based on land utilization rate as 11.5 Hect/ 1000 persons;

but due to non implementation of many proposals under public and semi public use,

recreation and transport, the desired urban areas could not be developed and the land

utilization rate dropped.

Table No.2.9 Status of Land use Development

Sl.No Land use

Land

allocation

in DP-1991

Developed

area -1998

Variation

(-) / (+)

%age of

Implementation

1 Residential 2300 2050 ( - ) 250 89.13

2 Commercial 280 180 ( - ) 100 64.293 Industrial 280 180 ( - ) 420 50.59

4

Public & Semi

Public &

Amenities

950 450 ( - ) 500 47.37

5 Recreational 550 100 ( - ) 450 18.18

6 Transportation 820 500 ( - ) 320 58.82

Total 5750 3710 ( - ) 2040 64.52

Source: Department of Town and Country PlanningNote: Area in Hectare

Fig 2.3

Land use statusof

implementation


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Fig No 2.4 Comparative chart of LUR

The implementation of Development plan 1991 was to be undertaken through a process of

detailed planning, formulation of programmes and projects. But due to lack of public

participation in development process, the plan was vitiated, mainly in equalization terms and

provisions of public facilities. The proposals were not fully translated in to envisaged physical

framework thus creating an unguent and detrimental urban spread in both planned and

unplanned areas.

The desired LUR could not achieve. Up to 1998 only 6.18 Hect/ 1000 persons land could be

developed under various uses. The proposed allocation for land under various uses in the

modified plan 2011 is given in the following Table, having land utilization rate as 6.85 Hect/

1000 persons.

Table: 2.10 Proposed land use as per Development Plan 2011

SL. NO. LAND USE PROPOSED FOR 2011

Area in Hect % LUR1 Residential 3926 38.2 2.62

2 Commercial 461 4.5 0.31

3 Industrial 1237 12.04 0.82

4 PSP& PUF 1008 9.8 0.67

5 Recreational 2168 21.10 1.45

6 Transportation 1476.0 14.36 0.85

Total 10276.0 100.00 6.8Source: Department of Town and Country Planning

Note: Area in Hectare

Comparative Chart Of LUR

00.5

11.5

22.5

33.5

44.5

Residential

Commercial

Industrial

PSP&PUF

Recreational

Transportation

LURin%

Proposed LUR in 1991 Present LUR in 1998 Proposed LUR in 2011


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109

The land utilization rate of 10.00 Hect / 1000 Persons could not be achieved because of non

implementation of plan proposals under public and semipublic, recreation, transportation and

commercial land use resulting in congested Roads, crowded Markets and insufficient social

infrastructure. Due to Lack of facilities of premises of infrastructure, pressure on residential

area isbeing felt. Although Land use under industrial use is not developed as envisaged in

planning area but it is developed outside planning area.

The modified plan 2011 envisages population to be 15 lacks and land allocation is proposed

keeping LUR around the one, which is derived in actual developed area. This indirectly

indicates dense development. But keeping low LUR under transport, recreation and social

infrastructure indicates forfeit in quality of life. In our view LUR under these uses should be

more than what is prescribed, so then more open spaces can be planned to propose for better

environmental condition.

2.4 DEVELOPMENT CHALLENGES

2.4.1 Perspective Plan

With the objective of achieving good governance, the corporation should prepare a

perspective plan to be implement during the period of JNNURM. The plan will give directions

and approach of the local bodies and envisages future reforms in revenue improvement,

institutional development and better service delivery mechanisms to improve municipal

performance. It will also aims at the provision of infrastructure in all notified poor settlements,

critical infrastructure improvement and improved operation and maintenance. It will also aims

at social development and strengthening of SHGs and CBOs. The other focus of perspective

plan will be mainstream gender issues, participatory planning and implementation and

capacity building.

2.4.2 Proposals for JNNURM

The proposals in JNNURM aim at municipal performance improvement of environmental

infrastructure and aims at socio-economic development. The proposals for municipal reforms

are aimed at enhancing the efficiency, effectiveness and service delivery with accountability.

The JNNURM reforms proposals include privatization of advertisement tax collection, revenue


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improvement, town development, operation and maintenance of critical infrastructure

investment.

The environmental infrastructure proposals aim at improvement of infrastructure in the

prioritized poor settlements as per poverty and infrastructure deficiency matrices and linked

infrastructure for poor settlements. These include rehabilitation of existing infrastructure

provision f water supply, roads, drains, sanitation and street lighting based on community

prioritization and construction of drains to improve the living environment.

The social development proposals aim at addressing the social-economic needs identified and

prioritized through participatory micro planning process. These proposals cover areas of

health, education, livelihood, vulnerability and strengthening of SHGs, with focus on gender

issues. This leads to the reduction of poverty and improvement in living conditions of the

people in the poor settlement.


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GOVERNANCE, INSTITUTIONAL FRAMEWORK & REFORMS

Growth of cities makes the scale and complexity of urban problems daunting. This requires

efficient and effective governance framework. Urban governance refers to the management of

civic affairs by institutions to improve the quality of life in an inclusive, transparent and

accountable manner. The good urban governance is characterized by equity, efficiency,

transparency, accountability, civic engagement and security of people and environment. Pace

of urbanization throws many a problem in the management of city and makes the governance

of cities more complex. This requires an efficient and effective governance framework. Only

good urban governance enhances citys competitiveness and contributes to sustainability. A

number of institutions are involved in governing a city. They include the state government

departments, local bodies and parastatals. While the departments are part of government, the

local bodies and parastatals are created through Acts of legislature or government orders.

Urban governance refers to the management of civic affairs by institutions to improve the

quality of life in an inclusive, transparent and accountable manner.

3.1 LEGAL FRAMEWORK

Raipur Urban Agglomeration consists of the Raipur Municipal Corporation, and a few

outgrowths. A number of institutions are involved in the governance of Raipur city and

surrounding Peri-Urban areas that constitute the Raipur Urban Agglomeration. Some of them

were established through Acts of legislature and others are part of states governance

framework. The institutions established by law are given in Table 3.1.

Table No: 3.1 Governance Institutions

AGENCY LEGISLATION

Raipur Municipal Corporation Raipur Municipal Corporation Act, 2001Raipur Municipal Corporation Act, 1956

Gram Panchayats Chhattisgarh Village Panchayat Act, 1992

State Urban DevelopmentAuthority (RUDA)

Chhattisgarh Urban De Act, 2001

Chhattisgarh Pollution ControlBoard

Water (Prevention and control of Pollution) Act,1974

3


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Promotion of cultural and aesthetic aspects

The Government decided that the remaining function i.e. Fire Services should remain with the

state government and will be transferred after a review later. Though the five functions were

transferred, they have no statutory basis.

There are several issues in the transfer of functions of state agencies to the local bodies.

Transfer of functions need follow up legislation, institutional capacity of local bodies, financial

resources, etc., which come in the way of transfer of these functions to the urban local bodies.

It is also expected that transfer of officials as well as resources will follow the transfer of

functions. However, transfer has not happened in the state thereby leaving the transferred

functions only on paper.

3.3 INSTITUTIONAL FRAMEWORK

At the helm of the RMC there is the corporation council democratically elected by the civic

community as per the 74th CAA. The present council was elected in 2002 and has a five-year

tenure. As per 74th CAA, five wards committees have been constituted and they are endowed

with the functions of maintenance of sanitation, water supply and drainage, street lighting,

roads, markets, parks and playgrounds and school buildings. They also review the revenue

collection, prepare draft annual budget, and send it to the council for incorporation in the citys

annual budget.

The Commissioner, who is always drawn from IAS, heads the Raipur Municipal Corporation.

Additional commissioner assists him and he assists the Commissioner in all his activities. The

city administration is decentralized at zonal and circles levels for administrative convenience

(see organogram).

The Commissioner belonging to the cadre of state municipal commissioners heads the civic

administration. He is assisted by a group of officials in the areas of town planning, health,

public health, engineering, poverty, etc. in administration; a Manager assists him. The

Organogram of RMC (Figure 3.1) gives the details.

Apart from the local bodies, a number of government institutions are associated with the

governance of the RUA. They include:

State Government Agencies:


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Municipal Administration and Urban Development Department

Directorate of Municipal Administration (DMA)

Directorate of Town and country planning (DTCP)

Public Health engineering Department (PHED)

Revenue Department

Medical and Health Department

Social Welfare department

R&B Department

Home Department

Revenue Department:

Slum Upgradation Department

Social Welfare Department

R&B Department

Home Department

Parastatals:

State Urban Development Authority

State Highway Authority

State Transport Corporation (CSRTC)

State Housing Board (CHB)

State Pollution Control Board (CPCB)

State Industrial Infrastructure Corporation (CHIIC)

The figure 3.1 gives an overview of state level agencies operating in RMC. Each of the

institutions listed above have specific functions and liaise with local government institutions in

planning the provision of infrastructure and delivery of services. There are also central

government institutions like railway, which are responsible for the provision of services in the

city. The Figure 3.2 gives an indicative list of governance institutions in the Raipur Urban

Agglomeration area along with their functions and jurisdictions.

In the absence of a coordinating agency, there are several constraints in the integrated and

comprehensive planning and delivery of services. Interdepartmental coordination is one of the

prominent issues and conflict that are becoming difficult to address or resolve even at the

level of heads of the service delivery agencies. It is observed that the citizen is often


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concerned with the quality of service rather than who is delivering the service. The service

delivery often suffers because more than one agency is involved and there is no mechanism

for ensuring inters agency coordination.

Figure 3.1 Organogram2: State Level Agencies

To illustrate, there are a number of agencies dealing with road infrastructure- both

construction and maintenance and there is no clear distinction of scope. This is clear from the

Figure 3.2. Road management is key co-ordination issue and it can be built and maintained

but the multiplicity of agencies involved make the task difficult. Road infrastructure

development could suffer due to lack of co-ordination between agencies. As a consequence,

the traffic and transportation in the city faces uphill tasks with increased travel time, traffic

congestion, accidents, etc.

Health and FamilyWelfare

EducationDepartment

Civil Su l ies

HOME Transport,Roads andBuildingsDept.

EnergyDept.

MunicipalAdmin &UrbanDev. Dept

Panchayatiraj IndustryCHDCCIDC

Traffic Police

Roads &buildings

Ch. RoadDev.Corp

Ch. StateRoad

CHCPDC

Panchayats

RMC Commissionerand Director

MunicipalAdmin

SUDA

MunicipalCorporation

Rural Dev


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Figure 3.2: Roles and responsibilit ies- inter relationsh ip of various departments

Government Body Area under purview

TaxCollections

Watersup

ply,

SewerageIrrigation,

andDrain

age

Transpo

rt

RoadInfrastructure

UrbanPlan

ning,

Developmentand

Contro

l

Electricity

Telecomand

Other

Utilities

LawandO

rder

PollutionControl

FireServices

Raipur Municipal

Corporation (RMC)Municipal Limits

Raipur Urban

Development Authority

Urban Development

Area

CH. Central Power

Distribution Co.Entire State

Postal and Telegraphs

DepartmentEntire State

Chhattisgarh State

Road Transport

Corporation

Entire State

Road and Buildings

DepartmentEntire State

Chhattisgarh Pollution

Control BoardEntire State

Indian Railways Entire State

Village Panchayats Panchayats Limits

Source: In-Stakeholder Discussions

3.4 STRUCTURE OF GOVERNANCE IN RAIPUR

3.4.1 Governance Structure in Raipur City

The urban governance structure in city of Raipur comprises three area level agencies and the

department of urban development of Government of Chattisgarh (GoC) as described below.

3.4.2 Raipur Municipal Corporation (RMC)

Key Agency in Respective Jurisdiction

Coordination

Overlap


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Raipur Municipal council was formed in the year of 1867 and on 26th August 1961 it was

upgraded to Municipal Corporation status.

Administ rat ive Structure of RMC

Raipur Municipal Corporation (RMC) has for administrative purpose divided the Raipur City

into 5 zones and 54 wards. It has 54 elected councilors representing each ward. The Mayor is

elected directly. The Mayor selects a 10 member mayor-in-council from elected councilors.

The Mayor-in Council is constituted for a five-year term.

On the executive side the Municipal Commissioner is the head of RMC. Besides the

Commissioner, there are two Deputy Commissioners in-charge of Finance and Revenue &

General Administration. The officers of the Corporation are drawn from the Municipal

Corporation cadre of the State. The State Government has taken an initiative to upgrade

administrative structure of RMC to cope up with increasing responsibilities. Additions to the

supervisory structure are envisaged.

Functional and Financial Powers

The Commissioner of RMC enjoys financial powers for incurring expenditure up to Rs.l0 lakhs.

The Mayor-in-Council's powers are for Rs.30 lakhs and the Council has powers up to Rs.3

crores. The Mayor, however, does not enjoy any executive or financial power and the financial

powers of the Mayor-in-Council are also not considered to be adequate.

The functional domain of RMC consists of water supply, sewerage, sanitation, roads,

streetlight, general public health, fire brigade services, parks and gardens, poverty alleviation

etc. It runs 13 secondary schools whereas the State Government runs the primary schools.

There are 14 hospitals in Raipur. It also maintains the fire services and horticulture services.

The Corporation administers the centrally sponsored schemes for poverty alleviation.

3.4.3 Capital Area Development Authori ty (CADA)

CADA is responsible for the development of a proposed capital city. of Chhattisgarh. The new

city is expected to come within a distance of 12-15 kms from the present city of Raipur. CADA

is expected to play the role of a planning agency for the capital city and in the initial years

would focus on urban. Infrastructure planning for the capital city.


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3.4.4 Chattisgarh Infrastructure Development Corporation (CIDC)

Chhattisgarh Infrastructure Development Corporation is entrusted with promoting and

catalyzing private investments in infrastructure. CIDC was incorporated under The Companies

Act in. March 2001. It works under Finance Department of State Government. It is a planning

organisation and implementation or execution of projects was not in its mandate. Now efforts

are being made to include this role in its constitution. The presence of such a body would

assist in a) facilitating a reform discussion at a city level and b) to also support the reform

process.

CIDC has prepared various sectoral policies for GoC. CIDC is now preparing plan regarding

development of city centre of Raipur and Bilaspur. It is also working on the concept and plan

of development of satellite towns. CIDC also manages the Slate Housing Board and State

Transport Corporation.

3.4.5 Urban Development Department of GoC

Department of urban development of GoC oversees the urban issues and urban local bodies.

3.4.6 Insti tutional Fragmentation in Urban Services Delivery

To ensure good governance in the state of Chhattisgarh, the Government has removed

redundant layers in government functioning through streamlining of processes, systems and

departments. The State has already reduced the number of departments from over 50 to 18

together-with closing 30 public sector enterprises including Chhattisgarh Road Transport

Corporation.

Such an approach has also been seen in the urban sector. Traditionally the management of

urban centers in India has been fragmented with multiple agencies like urban local bodies,

development authorities, city improvement trust, State government departments, etc. In

Raipur, in line with the policy of the Government to keep the number of departments to a

minimum, the Raipur Municipal Corporation plays the don1inant role in civic governance and

no other authorities or parastatals exist in Raipur.


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TI1e Raipur Development Authority has been merged with the Raipur Municipal Corporation in

conformity with the 74th Constitution Amendment. Raipur, probably, has become the first

Indian city where both the municipal and planning functions are under the same umbrella.

Though minimal compared to other states, there exists a certain level of institutional

fragmentation in the delivery of urban services in Raipur on the following line of responsibility-

1) Public Roads - RMC, Public Works Department (PWD) and CIDC

2) Augmentation of water supply and sewerage systems is the responsibility of Public Health

Engineering (PHE) Department of GoC.

3) Streetlight service is maintained by Chhattisgarh State Electricity Board

In order to look into functional and financial domain Second State Finance Commission has

been set up on 22nd August 2003, but it is yet to submit its report. Meanwhile GoC is following

the recommendation of the First State Finance Commission of Madhya Pradesh.

Table 3.1 below shows the different authorities that are responsible for the development of

infrastructure services in Raipur.

Table 3.2- Different authorities and their responsibilities in Raipur

Name of the Author ityWater supply and

Sewerage

Roads &

TransportationStreetlights

Raipur Municipal Corporation 2

Chhattisgarh Infrastructure

Development Corporation

3

Public Health Engineering

Department

Limited to

Execution of

Capital works

Chhattisgarh State Electricity

Board

1

Public Works Department1CSEB does the maintenance of streetlights

2Augmentation process for water supply & Sewerage3Only roads outside the purview of RMC

3.5 KEY ISSUES IN GOVERNANCE


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3.5.1 Polit ical Fragmentation

At the State level, there is a strong political will backed up administrative commitment for

reform initiatives. At the city level, the Mayor is directly elected. The Bharatiya Janata Party

rules the State Government. The Mayor of Raipur also belongs to the same party. BJP also

enjoys a majority in the council.

3.5.2 Municipal Legislations

When the new State of Chhattisgarh was formed, laws pertaining to Madhya Pradesh were

carried forward, At present, the government is in the process of revisiting the legal structure

Among these is the Madhya Pradesh Municipal Corporations Act, 1956 that needs a critical

review having regard to the new policies for removing the excessive controls of higher levels

of government, promoting public-private partnerships, making enabling provisions for

borrowing and helping improve the self Sufficiency of municipal finances.

Additionally, the planning legislation needs overhauling considering the emphasis in article

243 W of the Constitution on planning for economic development and social justice and not on

land use planning only. Also the building bye-laws need to be updated, to provide for the roles

of architects and developers, deemed approvals and many other innovations.

The town planning function has been devolved to the municipal bodies. In this scenario, the

stakeholders perceive the existing laws to be inflexible to the needs of development. There

exists ambiguity about sharing of planning and development control function by RMC and

TCP Dept of GoCH. Though planning function has been transferred to Raipur Municipal

Corporation, Chhattisgarh has not implemented provisions regarding forn1ing of District

Planning Committee/ Metropolitan Planning Commission as per 74th CAA.

The governance of the city is characterized by multiplicity of agencies. This results in lack of

inter department coordination which is a serious roadblock plaguing local bodies. The

agencies have their own priorities, procedures, lines of accountability, financing pattern, which

often may not be in conformity with those of the ULBs. The critical issues that emerge from

the existence of multiple agencies include:

Spatial and functional fragmentation


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Overlapping functions

Multiple accountability lines

High service delivery gaps, and

Increasing urban poverty

These and other key challenges are discussed below.

3.5.3 Lack of Clarity in Local Functions

The Constitution (74th amendment) Act, 1992 envisages that the functions listed in the 12 th

schedule be entrusted to elected local bodies. This is with a view to minimize ambiguities and

overlapping of functions between local bodies and other authorities. However, in practice,

several agencies are responsible for the functions and in some cases, local bodies have no

role.

3.5.4 Lack of Inter-Departmental Co-ordination

Any citys governance depends upon effective organizational structure and adequate financial

inflows. Although the city of Raipur has been in the forefront of implementing reforms and

good governance practices for the past three to four years, these reforms and good

governance practices for the past three to four years, these reform initiatives did not really

achieve the desired results.

The reforms primarily belonged to the areas of e- governance and better citizen interface.

what is necessary is for these kind of reforms is a two pronged approach, the first creating a

front end, the next strengthening the back end to effectively cater to the front end. What has

happened in the case of Raipur is that front-end systems have been created but the back end

systems have not been effectively upgraded/geared up to meet the influx of the kind of

information/ complaints that came through the same. The result is improper functioning of the

system as a whole.

The functioning of the RMC reflects a wide gap between the demand and supply. Among the

several reasons focus has to be given to proper delegation of powers to the urban

functionaries and orienting the organization towards the principles of good governance.

Organizational structure of the RMC has to be examined and adequate steps are to be

initiated to strengthen the same.


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3.5.5 Inter Insti tutional Co-ordination

One of the prominent issues in the area of urban governance was inter departmental

coordination and conflict issues that are becoming difficult to address or resolve even at thelevel of heads of the service delivery agencies. It was observed that the citizen is often

concerned with the quality of service rather than who is delivering the service. The service

delivery often suffers because more than one agency is involved and there is no mechanism

for ensuring inter- agency coordination. Lack of institutional coordination across the service

delivery agencies is identified as

3.5.6 Functional and Spatial Fragmentation in Metropol itan Area

Raipur Metropolitan area consists the area under the Municipal Corporation of Raipur. It is

governed/ administered by State Urban development Authority (SUDA). Presently the

development in the Metropolitan area is occurring in a haphazard and uncoordinated manner.

The CDP programme has a united focus on the RMC area. Unless there is a mechanism for

comprehensive planning and implementation of development activities in the entire

metropolitan area, it may be difficult to achieve the objectives of CDP. The municipal systems

in the surrounding municipalities are also weak and require strengthening. The district is

agrarian based; hence a lot of importance has to be given to the spatial integration of all the

areas through better infrastructure facilities and network.

3.5.7 Municipal-Parastatal Coordination

There is a lack of coordination between urban local bodies and parastatals in areas such as

inter-municipal, inter-district and inter-state roads, inter- municipal storm drainage and

sewerage, common amenities like wholesale markets, truck terminals, bus stations, garbage

dumping yards, landfill sites etc. the Raipur Urban Development authority takes care of a part

of coordinated planning. It prepared a master plan for the entire Planning area. The plan

provides for common infrastructure systems and amenities, which transcend municipal


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boundaries. However, the real problem is noticed in plan implementation. There is no clearly

defined institutional mechanism to ensure that all roads, which pass through more than one

area, are developed as per a common road development framework. Similarly there is no

mechanism to ensure that storm water drains for the metropolitan area is developed in an

integrated manner taking into account geographical factors and the existing and proposed

built up patterns. There is also no mechanism to project and ensure infrastructure

provision based on built up analysis from time to time. The results in conflict between local

bodies and SUDA. The Metropolitan Planning Committee envisaged under the 74 th

Amendment Act, 1992 has not yet been constituted for Raipur.

3.5.8 Jurisdict ional Issues

While subsidiarity is a desirable principal that can be adopted as a guide to draw boundaries

for various agglomeration functions, it is not possible to arrive at a common boundary for all

services. The geographical area required to internalize the costs and benefits of a service like

urban planning may not be the same for another service like urban transport or water supply

or storm drainage. However, a large enough an area would be in a position to internalize most

of the dimensions of key local services. The whole idea is to contain the spillover externalities

so that the benefit districts match the revenue districts. If such matching is not ensured there

will be perennial problems of service revenues falling short of service costs, mounting inter-

institutional conflicts, increased cost of public. Thus, it is important that jurisdictional issues

are sorted out carefully. While keeping the costs of metropolitan administration low,

exploitation of the development potential of the metro area and its contribution to national

wealth and income should be the primary consideration for metropolitan spatial organization.

3.5.9 Transparency and Accountabili ty

There is a need to have greater transparency and accountability in the functioning of the

service providing agencies. The RMC web site has a number of features. Which enables

transparency in the functioning of the organization through there is scope for improvement

since the web site is only over one year old. There is also a need to explore the possibility of

involving the citizen in making budgetary allocations at the ward level.

It is necessary to understand the strengths and weaknesses of different spatial and sectoral

areas within the city for location of economic activities. This has implication with regard to


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availability of land, transportation and infrastructure facilities. Both demand side and supply

side factors by conducting a SWOT analysis of citys economy. To get a comprehensive

overview of the city a SWOT analysis was undertaken at two levels, first at the city level and

the second of the Municipal Corporation.

3.5.10 Impact of Development

The rapid urban development is leading to increasing land use changes and the measurement

and monitoring of these land use changes are crucial to understand land use/ land cover

dynamics. The city is stretching horizontally and vertically at rapid speed so many residential

colonies; commercial establishments, medium and small-scale industries are coming up in the

city. This is in turn adding to the pressure on the infrastructure and available space. The town-

planning department is responsible for enforcing planned development in the city, while the

horticulture department is responsible for maintaining the parks and greenery.

Raipur Municipal corporation covers an area of 12.22 Sq.Km of which about 60% is

developed. Of the undeveloped area, vacant land constitutes around 20% and the land under

agricultural is about 53%, adding the developable area to be about 81% of the total RMC. The

agricultural land referred to is a mainly green cultivation fields and in the recent years they can

be seen barrier and put vacant for escalation of price. The rest 19% constitute hills, river,

canals and water bodies. However, during the latest decades due to rapid population growth,

the pressure on development land has been enormous and hence residential development

has also taken place on hills as well as low lying areas.

3.5.11 Grievance Redressal

The grievance redressal mechanisms in the city are weak and the people are made to run

from pillar to post for grievance redressal. There is also no proper platform to provide

information to the citizen on all services. Lack of awareness and information is affecting the

citizens access to grievance redressal.

Documents

Cdp Raipur