From Security of Tenure to Sustainable Livelihoods An Integrated Approach to the Relocation of Pavement Dwellers From Byculla to Milan Nagar and Beyond

8/7/2019 From Security of Tenure to Sustainable Livelihoods An Integrated Approach to the Relocation of Pavement Dwellers

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From Security of Tenure toSustainable Livelihoods

An Integrated Approach to the Relocation of Pavement DwellersFrom Byculla to Milan Nagar and Beyond

Consultancy Report for SPARC, Mumbai, India

Authors:

Emmanuella Almeras (USA)Maira Azhar (Pakistan)

Rosalina Babourkova (Bulgaria)Roz Davies (UK)Peter Simai Dindongo (Papua New Guinea)Juan Carlos Garzon (Colombia)Michelle Pletsch (USA)Omar Saracho Aguilar (Mexico)Swati Shinde (India)Eleni Topouzi (Cyprus)

Development Planning UnitUniversity College London

London, 1 June 2007


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Table of contents

Acknowledgements 2Abbreviations........ 3Executive Summary ..................... 4

1.0 Introduction1.1 Context and Background to the case ........... 61.2 Objective and Terms of Reference. 81.3 Actors and institutional set up......... 9

2.0 Conceptual Framework2.1 Definition of Transformation 10

2.1.1 Transformation in theory.... 10

2.1.2 Transformation in practice..... 102.1.3 The Clients Definition of Transformation.... 112.2 Criteria... 112.3 Indicators 12

3.0 Methodology3.1 Information Gathering and Field Work... 133.2 Diagnosis and Analysis. 133.3 Constraints.. 14

4.0 Findings

4.1 Field Findings.. 164.1.1 Economic impacts.. 164.1.2 Social impacts 164.1.3 Political impacts.. 174.1.4 Environmental impacts.. 174.1.5 Physical impacts 17

4.2 Policy Findings.. 18

5.0 Diagnosis and Analysis5.1 Citizen and Policy Sphere. 205.2 Organizational Sphere 21

5.3 Delivery and Knowledge Sphere...... 21

6.0 An Integrated Approach to the Relocation of Pavement Dwellers..... 226.1 Milan Nagar Rehabilitation Committee..... 24

6.1.1 Market-Oriented Surveys...... 256.1.2 Youth-Oriented Community Space.. 266.1.3 Building Partnerships for integrated development........ 27

6. 2 Multi-stakeholder Forum.... 29

Conclusion...... 31Bibliography........... 32

Appendices..... 33


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Acknowledgements

This consultancy exercise was made possible by the generosity of many people to whom

credit must be given. Firstly we would like to thank SPARC, particularly Sundar Burra,Sheela Patel and Celine dCruz, without whom, none of this would have been possible. All

of the members of SPARC gave generously of their time to coordinate the presentations

and field visits. Additionally they provided invaluable guidance and information which

greatly contributed to our understanding of the context of Mumbai.

We would like to thank Maria and Dipti or their tireless efforts in acting as our translators in

the field. They not only acted as an extension of our research team, they also provided

much needed insight in many of our endeavors.

Also crucial to our understanding of our case study were Jockin Arputham from the

National Slum Dwellers Federation and the leaders of Mahila Milan from both Byculla and

Milan Nagar. Their willingness to share their knowledge and accomplishments contributed

a rich sense of the communities to which they belong.

Thanks must also be extended to the different representative from local government

offices and private institutions who truly sought to engage and share their expertise.

We would like to thank the Development Planning Unit for making this consultancy

possible. Thank you to all of the lecturers who gave of their time to enrich our general

understanding of the Indian context at large and that of Mumbais in particular.

Lastly, we extend our deep appreciation to Eleni Kyrou for all the advice, help and support,

and to Pascale Hoffman, Caren Levy and Chris Jasco for providing us with the opportunity

to partake in such a unique experience. Their guidance provided indispensable support

from the very early stages of the process up until the production of this report.


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Abbreviations

CLIFF Community-Led Infrastructure Finance Facility

CDP City Development PlanCBO Community Based OrganisationCHS Cooperative Housing SocietyDFID Department for International DevelopmentDPR Detailed Project ReportGOM Government of MaharashtraHI Homeless InternationalJNNURM Jawaharlal Nehru National Urban Renewal MissionMHADA Maharashtra Housing and Area Development AuthorityMCGM Municipal Corporation of Greater MumbaiMM Mahila Milan

MUIP Mumbai Urban Infrastructure ProjectMUTP Mumbai Urban Transport ProjectNGO Non Government OrganisationNSDF National Slum Dwellers FederationPD Pavement DwellersSPARC Society for promotion of area resource centresSRA Slum Rehabilitation AuthoritySIDA Swedish International Development AgencyTDR Transferable Development Rights


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Executive Summary

There has been a 20-year struggle on the streets of Mumbai to achieve security of tenure

for pavement dwellers and for their recognition as citizens. This process has been driven

by three organisations, SPARC, an NGO, the National Slum Dwellers Federation, a

grassroots organisation, and Mahila Milan, a womens credit and savings group, together

referred to as the Alliance. In 2006, the first 76 families of pavement dwellers were housed

in formal dwellings in Milan Nagar, in the Mankhurd area of Mumbai (Presentation by Patel

2007). This has set a precedent and raised attention of the needs of pavement dwellers.

In 2007 a group students from the Environment and Sustainable Development and UrbanDevelopment Planning courses of the Development Planning Unit, London, were asked to

produce a consultancy report for SPARC as part of their postgraduate degree in

Development and Planning. The objective of the consultancy was to develop a

participatory diagnosis of the social, economic and environmental conditions before and

after the relocation process, and to propose strategies to contribute to the transformation

of living conditions of urban poor women and men.

The research group adopted a working definition of transformation, and created criteria

and indicators by which the social, economic and environmental conditions were

evaluated. The Web of Institutionalisation (Levy, 1998) was used as a tool for diagnosis.

Field work was carried out in Mumbai, involving members of the Alliance, representatives

of various state agencies and the private sector. Semi-structured household interviews and

focus groups with representatives of the pavement dweller community were conducted in

both Byculla and Milan Nagar.

The Alliance has achieved security of tenure and improved the physical conditions of the

relocated pavement dwellers. However there have been social and economic trades offs.

The precedent that the Alliance has set needs to be built upon to truly transform the

position of pavement dwellers and achieve sustainable livelihoods. The strategies

proposed in this report balance the need to achieve a transformation with what is

practically possible in the current context. A more Integrated Approach is required to limit

the negative impacts of the relocation process. This would entail a multi stakeholder


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approach that incorporates housing, services, and economic development. The following

strategies move towards achieving this approach:

Milan Nagar Rehabilitation Committee

o Market Oriented Survey

o Youth Friendly Community Space

o Building Partnerships for an Integrated Approach

Multi-Stakeholder Forum at the City Level


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1.0 Introduction

1.1 Context and Case Background

People have been living on the pavements of Mumbai for over two decades. Largely due

to the fact that they have been seen as being a transient population1, they remained

invisible to the local government. However, in 1985, the long process towards their

recognition began when a group of women pavement dwellers started to mobilize with the

aid of the Society for Promotion of Area Resources Centre (SPARC) by conducting

surveys of the community and by creating saving schemes (SPARC 2005:10). The

process has been developed by three associations: Mahila Milan, SPARC and the

National Slum Dwellers Federation (NSDF), which together form the Alliance.

In 1995, the Government of Maharashtra (GoM) recognized pavement dwellers as having

the same rights to housing provision as slum dwellers (SPARC 2003). Soon after, in 2001,

the Maharashtra Housing and Area Development Authority (MHADA) granted land to

relocate 536 families of pavement dwellers from Byculla, near the city centre, to Mankhurd,

an outer suburb (See Figure 1). On April 25 th, 2006 the first of five planned buildings was

completed and 76 households were relocated (Presentation by Patel 2007).

1 According to an interview with D.R. Hadadare, Chief Engineer of the Mumbai Housing and Area Redevelopment

Authority


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Figure 1: Map of Relocation


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1.2 Objective and Terms of Reference

The objective of this report is to examine the trade-offs for the 76 families of pavement

dwellers as a result of the relocation from Byculla to Mankhurd.

The terms of reference upon which this report is based are the following:

1) To explore the economic, social and environmental outcomes experienced by

relocated pavement dwellers in their shift from vulnerable locations on the

pavements of Byculla to more secure housing in Mankhurd;

2) To identify the strengths and weaknesses of the strategies pursued by the different

actors involved;

3) To explore with the different actors involved proposals which will strengthen the

relocation of pavement dwellers in the future in a manner which will contribute to

their transformative intentions.


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1.3 Actors and institutional set up

To understand the institutional context of the relocation, the stakeholders are presented in

the following map of actors.

Figure 2: Actor Mapping

As the pavement dwellers were under constant threat of eviction, the Alliance, working with the pavementdweller community, came to an agreement with MCGM to relocate and stop all evictions of the pavementdwellers that were formally recognized before the 1

stof January 1995 (Presentation by Patel 2007). The

Alliance approached the SRA, under whom the relocation was largely made possible, as well as MHADA,who provided the land in Mankhurd. The construction of the proposed five buildings were funded by thefollowing financial sources: (a) CLIFF, established by HI, who provided the bridging finance for theconstruction of Milan Nagar, (b) savings from Mahila Milan

2and (c) the TDR scheme (Homeless

International, 2006:11).

2Once the construction is complete, the TDR will be received in full.

MCGM

Cities Alliance

SIDA

MHADA

Banks

DFID

LAND

AllianceSPARC,NSDF,MM

CLIFF

PrivateDevelopers

(TDR)

HI

SRA

Savings andCredit, Loans toMM


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2.0 Conceptual Framework

In order to evaluate the relocation process, a conceptual framework was created based on

the following definition of transformation. The purpose of this definition is to set theoreticaland practical guidelines for this consultancy. Criteria and indicators, introduced below,

were developed to assist in the assessment of the process.

2.1 Definition of Transformation

The process by which a structure of existing power relations is challenged and redefined

through strategic action leading to sustainable livelihoods.

2.1.1 Transformation in theory

The process of transformation begins with an interpretation of the structure of existing

power relations between the actors involved in the case study. Through strategic

action3 relational structures are questioned and modified by setting precedents. This

increases room for manoeuvre and fosters synergy between stakeholders, hence

generating a multiplier effect (Levy, 2005). Ideally, this process would lead to a balanced

coexistence of the five dimensions of sustainable livelihoods, which consist of economic,

social, political, physical and environmental rights to the city.

2.1.2 Transformation in practice

The realisation of this definition of transformation inevitably faces barriers as it is put into

practice. This report evaluates the extent to which transformation has occurred in the case

of Milan Nagar. A set of criteria was developed to assess how the relocation process has

contributed to the enhancement of sustainable livelihoods according to the dimensions

introduced above. These criteria are defined in section 2.2.

3See appendices for diagram outlining Strategic Action (Levy, 2005)


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2.1.3 The Clients Definition of Transformation

It should be noted SPARCs understanding of transformation is increased options for the

poor. This implies that security of tenure aims to promote positive changes in the lives of

pavement dwellers by providing them with increased opportunities4.

2.2 Criteria

The following are a list of criteria used to determine the extent to which transformation has

been achieved.

1) Improved economic conditions

2) Greater political recognition

3) Increased social wellbeing

4) Improved environmental conditions

5) Enhanced living conditions (built environment)

The fulfilment of these criteria, or the lack of, was evaluated through the use of indicators

shown in the following chart:

4Definition of Transformation, SPARC (2007)


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2.3 Indicators

Improved

EconomicConditions

Greater

PoliticalRecognition

Increased

SocialWell-Being

Improved

EnvironmentalConditions

Enhanced

LivingConditions

Full access toincome earningactivities

Full participation incommunity decision-making

Full access to freeeducation

Full access to basicservices (water andsanitation)

Good quality ofhousing

Improved ability to

save

Heightened

awareness ofpolitical rights

Full access to

healthcare

Adequate and effective

solid waste disposal

Full access to public

transport

Affordability ofrelocation in terms ofcosts of services,maintenance andtransport

Improvedperceptions ofsafety and security

Low exposure topollution

Full access to open /communal space

Strengthened social

networks

Low disaster vulnerability Good connections to

work, schools,amenities


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3.0 Methodology

3.1 Information Gathering and Field Work

Pre-fieldtrip information was gathered through secondary data from academic documents,

a series of lectures, and grey material.

While in Mumbai, information was collected through presentations and interviews with

relevant stakeholders. A total of 28 interviews were conducted over the course of four

days. Three days of fieldwork in Milan Nagar resulted in 17 household interviews (22% of

the total 76 households relocated) and two focus groups; one with Mahila Milan leaders

and one with children living in Milan Nagar. One day of fieldwork in Byculla resulted in 11

household interviews along with an observational walk with Mahila Milan leaders.

Interviews were semi-structured and conducted predominantly by two or three students

and one translator. For a sample interview, see appendix 2 and for a detailed schedule of

presentations and interviews in Mumbai, see appendix 1.

3.2 Diagnosis and Analysis

In order to understand the extent to which relocation contributes to transformation, two

main exercises were performed. In order to identify opportunities and constraints in the

current phase of the process (See Section 5), the Web of Institutionalization was used to

analyze causal relationships between various actors and policies. Subsequently, a set of

criteria and indicators was developed to evaluate the relocation process vis--vis

sustainable livelihoods (See Section 3).


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3.3 Constraints

Throughout the process, data accumulation and analysis were subject to the following

limitations:

1) Time constraints (both in the field and for diagnosis) restricted the ability to

understand the complexities of the Mumbai context and the possibility of building a

participatory research process5.

2) Some information gaps were left unresolved, partly due to the inability to meet with

representatives from MCGM and SRA.

3) Details from interviews with pavement dwellers were often lost in translation.

5The research process did not include the involvement of the community in defining the concept of transformation


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4.0 Findings

4.1 Field Findings

Through field interviews it was found that relocation has given people security of tenure

which has made a positive change in their lives; however, there have been tradeoffs. In

the following, economic, social, political, environmental and physical impacts of relocation

on peoples livelihoods will be explored.

4.1.1 Economic impacts

The cost of living has significantly increased. People now pay more for utilities such as

electricity and water6. Additionally, for most residents the cost of transport has added to

their daily budget since the relocation area is further from thier work in the city centre7.

This has also decreased opportunities for income earning activities especially for women

who can no longer work near their place of residence while maintaining their domestic

duties. Consequently, the ability of households to save has been reduced.

4.1.2 Social impacts

In Milan Nagar, the distance8 of the nearest municipal school has created problems for

residents in accessing education. Many parents are apprehensive about sending children

alone because they must cross the railway tracks. Private education is expensive and for

many it has become unaffordable due to increased cost of living. However, overall

perceptions of safety have improved, since people now no longer fear traffic accidents,

women are not scared to go outside at night and there is no longer a threat of demolitions.

6 Pavement dwellers interviewed used to get free water illegally from a municipal pipe, in Byculla.7 A monthly railway cart costs 110 rupees.8

Between 30-45 minutes walking distance.


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4.1.3 Political impacts

There is limited participation in decision making in Milan Nagar community matters and

most residents are unaware of when community meetings take place. Additionally, links

with local politicians were stronger in previous places of residence. Since the relocation,

many dwellers have stopped voting due to the fact that they are still registered in their

former jurisdictions. On a positive note, there has been a change in peoples perception of

themselves; instead of pavement dwellers they now identify themselves as people of the

building.

4.1.4 Environmental impacts

Access to water and sanitation has improved and the exposure to air pollution and disaster

vulnerability has been greatly reduced. However, although waste disposal has improved,

waste coming from surrounding slums is a problem yet to be solved. In addition health

problems are resulting from the open canal located near the new building .

4.1.5 Physical impacts

There is inadequate community space. Nevertheless, housing quality has greatly improved

and although the relocation site is situated further from the city center, there are transport

links nearby such as the Harbour line9 and several bus routes.

9The Harbour line is one of the train lines in Mumbai.


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4.2 Policy Findings

The team had the opportunity to meet some prominent personnel from government

agencies (See appendix 2) in Mumbai. These findings related to the policy arena are

illustrated bellow.

The government has shown a positive approach towards rehabilitation of the slum

dwellers and is attempting to shift its role from provider to facilitator by involving

NGOs and the private sector in providing housing for the poor.

The Draft Housing Policy of GoM proposes different options for housing the poor

such as formation of housing cooperatives, open competitive bidding and the

potential for involvement of NGOs and CBOs. The government has learnt from

different projects that relocation is more complicated than just shifting people from

one place to another, thereby acknowledging the potential of involving the

community.

There is a lack of coordination between different government agencies for the

implementation of housing policies. MHADA10 mixed income housing schemes and

SRA free housing of SRA schemes are conflicting rather than complementary.

Policies such as mixed income housing or implementation of slum improvement

projects under JNNURM11 cannot be undertaken due to political interest of

providing free housing.

Limited resources could prove to be an obstacle in provision of housing for the poor

in the future. Non availability of lands for housing projects and inadequate financial

10MHADA has a policy of providing subsidized housing for the poor in the Mumbai Metropolitan Area. Under this

policy MHADA undertakes housing projects which include the creation of Town Planning schemes, the sale of plots

and/or the construction of tenements which are provided for sale in the market. These schemes are subsidized for the

poor. This subsidy is compensated by creating other tenements for Middle Income and Higher Income groups thereby

resulting in mixed housing neighbourhoods. Such types of housing solutions help to promote better livelihood options

for the poor and have been successful in the past (Information gathered from field interview with MHADA

representative).11 Under the Jawaharlal National Urban Renewal Mission a City Development Plan (CDP) has been prepared for

Mumbai and a grant for funding has been approved from the Central Government. Under the CDP a detailed Project

Report (DPR) has been prepared for improving the condition of slums in Mumbai. A grant has been sanctioned for theimplementation of this DPR. This grant can only be utilized under a subsidized housing policy where the poor must

contribute some amount in order to receive future funding. However, since neither the poor nor the politicians want the

people to pay, this fund has not been utilized for slum improvement in Mumbai and has been given to other cities.


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resources could slow down and minimize scaling up initiatives. Present resettlement

and relocation projects lack the potential of integrating the new housing

development with the physical and social infrastructure of the city. Constant

changes in the eligibility criteria and the cut off dates of different projects such as

SRA, MUIP, MUTP has created double standards in the access to housing by the

poor in the city.


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5.0 Diagnosis and Analysis

The following section is a diagnosis of the case using the Web of Institutionalisation, which

is primarily a visual tool. The strong and weak aspects of the relocation process are

illustrated through the strength of the different elements and their links. For a full list of all

opportunities and strenghts identified through the Web, see appendix 3. For a diagram

depicting the links in the Web, see appendix 4. The following section narrates this

diagnosis.

5.1 Citizen and Policy Sphere

There have been both positive and negative impacts in the womens, mens, girls and

boys experience and their reflexive interpretation of their reality. There is now security of

tenure for the relocated pavement dwellers. However, there are also higher costs of living

as well as weakened networks amongst pavement dwellers and in relation to the Alliance.

The pressure of political constituencies has been very strong throughout the process and

has also been the main impetus behind the intervention. However, the link between

womens and mens experiences and pressure of political constituencies has been of

medium strength because community participation has only been partial; information flows

and active involvement in decision making-processes has been limited to the leaders of

the Alliance. Nonetheless, the relationship between the pressure of political

constituencies and the political commitment is strong. This strength is illustrated by the

commitment of MCGM to relocate all Mumbai pavement dwellers by 200912.

Policy and planning has not been shaped by any pressure or commitment from

representative political structures. This could be one of the many reasons for the

elements medium strength and has resulted in a lack of democratic multi-stakeholder

process13. Political parties are mostly invisible14; the Alliances strategy to remain apolitical

12This information was provided informally by Shirish Patel at Khetwadi, Mumbai.

13 Ideally, politicians representing the community should have played a large role in advocating for the legislation to

take place. However, this thrust came from the Alliance which surpassed the conventional approach of appealing to the

politicians and directly lobbied the bureaucrats into committing their resources and attention towards relocatingpavement dwellers to Milan Nagar.14 Political parties are acknowledged as an important stakeholder. However, in this case, their association with other

actors and/or plans have not been focused upon.


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could be one of the leading causes of this absence. Resources15 are presently available,

but the lack of future commitment in their distribution for the relocation has weakened the

potency of the policy sphere in the intervention process (as indicated by the weak links in

the sphere and the medium strength of political commitment itself).

5.2 Organisational Sphere

Resources, policy and planning, and supportive procedures need to be strengthened

in order to scale up the process. Presently, the extent to which the policy implications and

resources will result in the mainstreaming of responsibility for social justice is unclear.

The full repercussions of innovative procedures such as the recently implemented TDRs

scheme are yet unknown16 and time constraints attached to the TDRs can pose new

problems such as finding bridge finances17. Staff development is one of the weakest

elements of the process because of the Alliances decision not to expand as an

organization. Procedures required for the scaling up of the relocation process need to be

supported by increasing staff capacity.

5.3 Delivery and Knowledge Sphere

The construction of the building of Milan Nagar and the finances allocated to each family,

make the delivery of programs and projects a potentially strong element. However the

shortcomings of a solely housing-focused approach towards development indicates future

strategies must focus on improving this element. There is a lack of feedback mechanisms

in the relocation process making the link between the delivery and the citizen sphere

weak. On the other hand, the methodology element18 has been identified as the

strongest element and is mainly responsible for providing the impetus for the relocation of

the families. The groundbreaking 1986 census We the Invisible revealed the true status of

pavement dwellers, which contrary to the states belief were not migrants. Many families

had been living on the pavement for generations as a result of intra-city migrations.

Though the community has played a large role in conducting its own research there has

15 Resources in terms of land, finances, labour and expertise.16 Especially in terms of the existing and potential loopholes within the scheme.17 This information was gathered in a meeting with Ms Aseena Viccjee, SPARC Finance Manager on financialstrategies.

18Methodology entails opportunities such as capacity building and collective bargaining by the community.


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been no initiative taken by the government to pursue further research. Consequently the

element of applied research and the associated links are underdeveloped.

The following section will outline the overall rationale behind the strategies.


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6.0 An Integrated Approach to the Relocation of Pavement Dwellers

The Alliance has set a precedent by achieving security of tenure through a bottom-upprocess which has improved the physical conditions of the pavement dwellers. However,

some social, economic and political aspects have not been improved. The precedent set

by the Alliance needs to be built upon to transform the lives of pavement dwellers.

The strategies proposed in this report support an Integrated Approach which brings

together multiple stakeholders to provide the following elements in order to accomplish

more sustainable livelihoods:

Housing development

Provision of services e.g. healthcare, education, community centres

Physical infrastructure

Income-generating opportunities

This approach has two primary benefits. It supports the gradual transformation of the lives

of pavement dwellers and it reduces the possibilities of ghettoisation at the relocation site.

The approach will support the transformation by improving the living conditions of the

relocated pavement dwellers, building their capacity, and increasing their options. It will set

a new precedent.

The approach will help to reduce the negative consequences of the current relocation and

possibilities of ghettoisation by providing more than housing. Development based solely on

housing, previously adopted in many other countries, particularly in post-war Europe has

caused major problems. Hall (1997:873) argues that it has led to multiple deprivation. By

supporting an Integrated Approach, the Alliance will reduce the possibilities of this

occurring at the relocation site.

The approach also supports UNHABITAT best practice for slum upgrading. UNHABITAT

argues that todays best practices are strategic, inclusive and holistic (2003:165).


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The transformation of pavement dwellers focuses on a structural change which requires

far more than what is feasible at this time. In view of this the proposed strategies balance

the need to achieve a transformation with what is achievable in the current context. The

strategies focus on how the methodology of the Alliance can be improved to lead towards

a more integrated approach and improve the delivery of the relocation process. The

strategies can be classified into social, economic and institutional reflecting the multiple

elements of an Integrated Approach.

Proposed strategies:

Rehabilitation Committee;

Market orientated survey;

Youth-Oriented Community Space

Partnerships for integrated approach;

Multi-stakeholder forum

Figure 3 identifies the possibilities motivations different stakeholders would have for

supporting this approach.

Figure 3 Motivation of actors to adopt integrated development

Stakeholders Motivations/ BenefitsThe Alliance To reduce possibilities of ghettoisation of

relocation site

To increased options for the poor (basedon Celine dCruzs definition oftransformation)

Government agencies To contribute to efforts of beautifyingMumbai and to attract investment,

improving Mumbais economy To support GoMs Draft Housing Policy

To reduce possibilities of social instability

Private sector To Improve conditions for foreigninvestment

Community To enable sustainable livelihoods


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6. 1 Milan Nagar Rehabilitation Committee

The relocation of 76 pavement dwellers families from Byculla to Mankhurd is an

exceptional social accomplishment, especially in terms of achieving secure tenure.

However, the introduction to an unfamiliar environment has had certain economic, social

and psychological implications for the relocated families, as it was shown in sections 4.0

and 5.0.

Therefore, within the Integrated Approach, our first strategy proposes the creation of a

Milan Nagar Rehabilitation Committee (MNRC), which will complement the already

existing Finance, Municipality and Maintenance Committees within Mahila Milan at Milan

Nagar. MNRC will be formed by women currently living in Milan Nagar who have

experienced the difficulties of settling into a new environment. Initially, the objective will be

to gather information about the way individual families have developed coping

mechanisms which have helped them establish roots in Mankhurd. The information will

range from access to cheaper or better resources in the area, to the detection of the most

accessible facilities; such as mosques, schools, hospitals, skills training or employment in

the area.

It is acknowledged that the practice of sharing information happens naturally; however, the

creation of MNRC would hasten the process by allocating a specific space and appointing

a group of women to take charge of collecting and disseminating information among

dwellers of Milan Nagar. In addition to promoting a smoother transition for the relocation,

MNRC would strengthen and create social networks and will potentially provide a great

opportunity for Mahila Milan to institutionalize its initiatives, since this strategy does not

rely on SPARC or NSDF for its implementation. The committee would need only an

external facilitator to assist it during the initial stage; he or she could come from within the

Alliance, other NGOs or University students with relevant experience.

In the short term MNRC will be in charge of helping the families already relocated in Milan

Nagar and in the medium term it will assist new groups of relocated pavement dwellers

with valuable information to provide a quicker and more integrated resettlement. The

monitoring of this project could be conducted by the pre-existing committees within MilanNagar or by leaders from Mahila Milan. Some of the qualitative and quantitative indicators


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to evaluate the success of this strategy are: ability to save money, sense of belonging to

the new context, social cohesion and access to local resources.

6.1.1 Market-Oriented Surveys

According to the findings, relocation has resulted in a decrease in income-earning

opportunities in Milan Nagar, especially for women19. In order to increase such

opportunities, this strategy will draw upon an existing example that has been successfully

implemented in Hubli Dharwad20, located in the Indian State of Karnataka.

The market-oriented surveys will be conducted within Milan Nagar and surrounding areasto identify gaps and improve products and services that exist in the local market. Rather

than bringing in external goods and services, identifying what is needed would ensure the

success of what would be marketed. Part of the survey will also identify existing skills and

services amongst the inhabitants of Milan Nagar. Once new products are identified and old

ones are refined, samples could be made and distributed. Feedback from the community

would be incorporated into the process and the products continually refined to ensure its

success. This process would also remain flexible in order to test the financial feasibility of

production.

As a sub-strategy of the Milan Nagar Rehabilitation Committee, the Committee would be

the agent responsible for the following activities: organizing which women would initially

take part in the training and conduction of the surveys, and networking with other civil

society organizations and Universities to carry out the training for both the surveys and the

production of goods.

Training for the surveys could be provided by civil society organizations and Universities

on a voluntary basis or through basic salaries derived from Mahila Milan loans21. Such

loans could also be used for the training of and investment in production-based activities.

19 Most of the women in Byculla were strategically employed near their place of residence to be able to continue with

their domestic duties while earning a supplementary income. Additionally, women worked near their homes in case

they had to return to their dwellings to gather their belongings during demolitions.20Allen and You (2002)21 Under Mahila Milan loans, each household has access to Rs 5000. The first group of women to participate in the

training for the surveys could collectively apply for a larger loan.


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Further financing for the production process could be obtained through micro credit from

financial institutions such as ICICI.

The time frame for this strategy would be divided in two stages-

1) Medium-term:

The training and conduction of surveys would be implemented after the

establishment of the Milan Nagar Rehabilitation Committee

Training for the production of goods identified

2) Long-term:

Production-based activity

Scaling-up the production and distribution of goods

Monitoring and impact assessment would be done by the Milan Nagar Rehabilitation

Committee as well as other organizations or institutions depending on who participates.

The monitoring indicators would include the number of people receiving training versus the

projected number, and projected earnings versus actual earnings. The indicator for impact

assessment would be the increase in earnings and savings of women per household.

6.1.2 Youth-Oriented Community Space

This proposed strategy was created to incorporate the experiences of youth into the

planning process of the relocation and is supported by the United Nations Convention on

Rights of the Child, an international agreement signed by India, which states that children

have the right to be heard and to participate in the community (UNCRC, 2000:4). The

strategy also seeks to strengthen the element in the Web concerned with Men's, Women's,

Boys' and Girls' Experiences and it could increase the value of land acting as a long terminvestment.

Drawing on information gathered from a children's focus group at Milan Nagar it was

found there was inadequate space to facilitate the needs of youth. The children had two

main complaints- having to stay indoors due to lack of shade and feeling threatened by the

open canal next to the small existing open space. All in the group adamantly expressed

they would rather be back in Byculla, because a nearby school provided a large, shadedspace for recreation; it is evident that a space to play is essential for the experiences of the

relocated youth.


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This strategy is necessary to set a precedent for future relocations. Using the

management capacity of the MNRC, children could participate in the design of shaded

spaces and in the demarcation for the canal. Additionally, they could be involved in the

maintenance of the space, providing skill building and educational experience. Technical

assistance could be provided from local organizations and university architecture students.

The MNRC would be responsible for the overall coordination of the project.

The success of this strategy would be monitored by conducting quarterly surveys to

determine the usage of the space. Designated residents would be responsible for

observing the use of space and relaying the information back to the Committee. Impact

assessment will be carried out on a short term and long term basis. The short term would

measure the frequency in use of the space by the youth, revealing greater satisfaction in

their new living environment. The long term impact would be an increase in land value.

6.1.3 Building Partnerships for integrated development

The process of relocation to Milan Nagar has disrupted the existing social networks of the

pavement dwellers. Interviews with the people at Milan Nagar revealed difficulties in

accessing health, education and community facilities22. This strategy focuses on building

on site social infrastructure through a multistakeholder approach. The rationale behind this

strategy comes from the fact that the Alliance cannot deliver all the objectives of an

Integrated Approach alone. Hence there is a need to involve other stakeholders who can

complement the role of the Alliance in facilitating education, healthcare and other services

at Milan Nagar.

The objective of this strategy is the delivery of an Integrated Approach by involving

multiple stakeholders such as other NGOs, CBOs, experts etc. A survey, conducted by the

MNRC, would be undertaken to assess the communitys needs and requirements. The

households which are relocated in Mankhurd as well as those who are expected to be

relocated in the near future from Byculla will be included in this survey. The Committee

will then prioritize the needs by discussing with the community members and then

identifying potential service providers who can work in the Mankhurd area. This would also

22Refer to findings.


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include approaching organisations which already existed in Byculla23 and requesting for

them to extend their services in Manhkurd. In the beginning SPARC may be required to

network with other organisations; however, later the MNRC will undertake this role.

Services would be charged by the service provider on a pay to use basis. The charge

would be decided in consultation with MNRC. Certain services such as primary schools

and clinics would be made available for residents outside Milan Nagar to make the

operation of such a service feasible in the long term. For services such as the day care

centre and primary health clinics the amenity spaces on the ground floor of rehabilitated

apartments24 can be made available.

Monitoring would be undertaken through a participatory feedback process involving

community, members of Mahila Milan, MNRC and Service Providers. Assessment can be

done on the basis of access to and quality of services, extent of use, and ability to pay.

The feedback from monitoring would be incorporated regularly into the process.

Impact assessment could be measured by the extent of improvement in health, education

and other services and extent to which the alliance of Mahila Milan, Rehabilitation

Committee and other organizations can work together. The Impact assessment would be

carried out on yearly basis.

23There exists a network of about 38 NGOs in Byculla which are working together with the community in various areas

of childcare, education, running free dispensaries, medical care, vocational training, community health and HIV

awareness etc. These NGOs can also be invited by SPARC to work with the members of Mahila Milan in the

Rehabilitation committee and facilitate services which are useful for the people.24 In the SRA scheme, some of the tenements are reserved where the members of the building decide how to use these

spaces. They are mostly used for Society office, kindergardens , library and such activities. These tenements in the

remaining buildings can be made available for the above purposes.


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6. 2 Multi-stakeholder Forum

This strategy will build on the successful implementation of the MNRC by working with

other stakeholders. The MNRC should approach the Government of Maharashtra through

SPARC to establish a multi-stakeholder forum at the city level. The rationale behind this

strategy is the need to institutionalise an Integrated Approach as the strategy to the city-

wide relocation of pavement dwellers. GoM will potentially have an interest in taking up

such an idea because of their recent change in policy, as addressed in the findings.

The forum will serve as a platform for different actors to exchange ideas, learn from one

another and discuss solutions for future scaling-up of the relocation process. Figure 5

presents an ideal combination of actors converging at the forum. However, it can start out

with actors whom SPARC has an active working relationship, such as GoM, ICICI Bank

and the community. Gradually other actors would be approached to join. MCGM, for

example, will have an interest because of its commitment to relocate all pavement

dwellers.

Figure 4: Forum actors

The forum aims to promote the provision of sustainable housing through the following

activities:

Forum for

Integrated

Development of

Pavement

Dwellers

MHADAGoM

Private

developers

Independent

consultants Pavement

dwellers

SRA

MCGM

NGOs

SPARC /

NSDF

Banks


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1) exchanging ideas on issues surrounding Integrated Approach towards relocation

2) discussing housing policies,

3) encouraging competition between developers and

4) Encouraging public private partnerships.

The forum should convene at least once every six months, possibly at a venue provided by

the initiator (GoM) who will also provide the resources for the establishment of a press

centre.

Monitoring of forum activities will be done through the publication of press releases and

forum papers. Progress reports by a designated officer should be submitted to GoM forinternal evaluation of forum activities.

The impact of the forum could be measured by the amount of positive press coverage,

increased public interest in the Integrated Approach, and increased cooperation of

different actors in finding solutions for future relocation of pavement dwellers.


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Conclusion

The relocation of the first 76 households of pavement dwellers from Bucylla to Milan Nagar

was the result of a long struggle for the recognition of pavement dwellers as citizens of

Mumbai. This report has explored the economic, social and environmental outcomes

experienced by the pavement dwellers that have been housed in Milan Nagar. The web of

Institutionalisation was used to identify the strengths and weaknesses of the strategies

pursued by the different actors involved, as well as to find entry points for

recommendations to improve the process of relocation.

The Alliance has successfully demonstrated that securing tenure for pavement dwellers is

possible. However, relocated pavement dwellers have faced with a number of social and

economic trade-offs in their livelihoods. The precedent set by the Alliance needs to be

strengthened in order to achieve sustainable livelihoods. This report has proposed

strategies to improve the relocation process through an Integrated Approach which aims to

to contribute to transforming the lives of the urban poor.

The proposed strategies are a Rehabilitation Committee and a Multi-stakeholder forum.

The Rehabilitation Committee will build on existing capacities within the community and

the Alliance and will tackle the social and economic difficulties faced by the pavement

dwellers. Market oriented surveys and the construction of shaded spaces are two potential

projects the committee could implement. In the long term a multi-stakeholder forum at the

city level could serve as a platform for the institutionalization of a more integrated

approach to relocation by bringing together government agencies, public and private

actors.


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References

Allen, A. & You, N. (2002) Sustainable Urbanisation, Bridging the Green and BrownAgendas, Development Planning Unit: University College London.

GoM (2006) Draft State Housing Policy, Document, Mumbai: Housing Department.

Hall, P. (1997) Regeneration Policies for Peripheral Housing Estates: Inward and OutwardLooking Policies, Urban Studies, 34, 873-890.

Homeless International (2006) Community Led Infrastructure Finance Facility (CLIFF)Annual Review 2006, HI: Coventry.

Levy, C. (2005) Being strategic in community-led urban policy and planning: Lessonsfrom the Alliance, Mumbai, forthcoming, cited in C. Levy (2007) UDP Urban

Development Policy Lecture, DPU, University College London The term precedentsetting is used by the Alliance, Mumbai India, and by Shack Dwellers International(SDI)

Levy, C. (1998), Institutionalisation of Gender through Participatory Practice in Guijt, I.and Shah, M. K. (eds.) The Myth of Community: Gender Issues in ParticipatoryDevelopment, Intermediate Technology Publications: London.

SPARC (2005) SPARC Annual Report 2004-2005, SPARC, Mumbai.

SPARC (2003) Cities Alliance Project on Pro Poor Slum Upgrading Framework for

Mumbai, India, Revisited Report Submitted to Cities Alliance/ UN-HABITAT.

SPARC (1985) We the Invisible; a census of pavement dwellers, SPARC, Mumbai.

UNCRC (2000) United Nations Convention on the Rights of the Child, Unicef.

UNHABITAT (2003) The Challenge of Slums, Global Report on Human Settlements, UN-HABITAT Earthscan: London.


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Appendix - 1 - Detailed Interview and Stakeholders Presentation Schedul3

Date Time Activity05/05/2007 9.15am

12.30pm

1.30pm onwards

Briefing about and discussions with pavementdwellers at Byculla; visits to pavement dwellers

houses; accompanied by Sheela Patel andCeline dCruz.

Entire group went to Dharavi for site visit anddiscussion with Jockin Arputham, President ofSlum/Shack Dwellers International

07/05/2007 9.30am 12.30pm

1.30pm onwards

Presentations by senior government officialsand discussions at All Indian Institute of LocalSelf Government (AIILSG):

1) Swadheen Kshatriya, IAS PrincipleSecretary, Government of Maharashtra

(GOM): Housing Policy of GOM2) Mr. Milind Mhaiskar, IAS, Joint

Metropolitan Commissioner, MMRDA,and Project Director, MUTP:Rehabilitation under MUTP and MUIP

Field visit to Milan Nagar (transit camp then tothe relocation site).

1) Focus group with Mahila Milan leaders2) Semi-structured household interviews

08/05/2007 9.45am 11am

11.15am 12.30pm

1.30pm onwords

Presentation/discussion with Shirish Patel atKhetwadi: Housing Policy

Presentation/Discussion with V.K. Phatak:Metropolitan planning in Mumbai and SlumPolicy

Field visit to Milan Nagar1) Semi-structured household interviews2) Children focus group

09/05/2007 9.45am 11am

11.15am-12.50pm

1.30pm onwards

Presentation/Discussion with Mr S.K. Joshi at

Khetwadi: Principles of slum rehabilitation andTransfer of Development Rights

Presentation/Discussion with Mr. AbhisekKhanna, Chief Manager, ICICI Bank: Lendingto the Poor

Interview with Ms Aseena Viccjee (SPARCFinance manager)

Field visit to Byculla

1) Semi-structured household Interviews


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10/05/07 9.45am 11am

11.15am-12.30pm

10.00am 12.00pm10.00am 13.00pm

13.30 onwards

4.00pm 6.00pm

Presentation/Discussion with Neera Adarkar atKhetwadi: Mill lands in Mumbai past, present,future; exploring relations across actors overland redevelopment process

Presentation/Discussion with Pankaj Joshi:Situation analysis of Eastern Sea-Front ofMumbai; exploring interplay of Central andState Government powers

Interview with Sundar Burra (Advisor-SPARC)Interview with MHADA at MHADA office

Field visit to Milan Nagar1) Semi-structured household interviews

Interview with Kalpana Sharma, Journalist, TheHindu

11/05/2007 9.00am-12.30pm

1.30pm onwards

Diagnosis of field findings

Presentation of findings report at Khetwadi.Note: Received limited feedback from theclient.


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2 - Sample interview

Location: Milan Nagaar building Mankhurd.Name: AminaAge: Unknown

Religion: MuslimNumber of people in the household: 10

7 children.

The couple.

The mother in low.

1. Question: Do you have any friends and relatives living in the same building?

Answer: I have only my mother in low living with me, she is very old and she has

health problems.

2. Question: Did you left anyone closed to you back in Byculla?

Answer:No, nobody.

3. Question: Do your children go to school?

Answer: Yes 3 of them are going to school, 2 of the girls and one of the boys.

4. Question: Do you pay for the school?

Answer: The boy is going to a private school so we have to pay fees but the girls go

to a municipality school so its free.

5. Question: How far is the school?

Answer: Its in the next building.

6. Question: What is the highest level of education?Answer: I dont know about the level of education, my husband deals with thesemutters.

7. Question: Where is the nearest hospital service?

Answer: there is one in Mankurd near Milan Nagaar and another one that is locateda station away from Mankurd.

8. Question: Do you feel that there has been a change in your familys health sincerelocation?Answer: My husband suffers from TB. He was diagnosed after coming to MN.Regarding the childrens health back in the pavements the children were healthy butsince we moved they have been sick several times.

9. Question: Do you think that you can save money now?Answer: The expenses have doubled since we moved to Mankurd.

10. Question: Do you feel safe? Now? Before? Why? Why not? (Expand: Genderelement)


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Answer: I never get out of the house; I never did so I feel safe.

11.Question: Do you feel that your children are safe?Answer: My children learn to survive in the pavements so I am not afraid for them.

12.Question: What are the bills that you have to pay?Answer: Electricity, bills, water, cable TV.

13.Question: What was your husband job before relocation? What about now?Answer: My husband sells carpets he had the same job before relocation.

14.Question: How much does he pays for transportation?Answer: He pays Rs.110 per month.

15.Question: How long does it take him to go to work?Answer: 45 min to go and 45 to return.

16.Question: Do you think that you can save money now?Answer: My husband gives me Rs.100.I give Rs.40 to MM.

17.Question: Where do you go for the nearest toilet?

Answer: There is a toilet block for each floor at the end of the corridor and we use

one toilet every 3 households. We are responsible to clean it so we do that turn by

turn. In case anything breaks down we all contribute to fix it.

18.Question: Where to you dispose your waste?

Answer: There are big bins outside the building one for each floor

19.Question: What is the source of fuel?

Answer: We use kerosene to cook food we pay Rs. 150 for 15lt a month

20.Question: How much to you pay for other utilities?

Answer: We pay Rs .150-200 for electricity, Rs .200 for maintenance and Rs.500

for water.

21. Question: How involved were you with the designing of the new housing?

Answer: I was involved with the designing process however my husband and father

in low were.

22.Question: Do you like your new house and area?

Answer: Yes I do, we have more privacy now and there are more open spaces for

the children. However, there is no garden for them to play.


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Appendix 3 List of Opportunities and constraints identified in the Web

A. CITIZEN SPHERE

1. Women, Men, Girls and Boys Experience

Potentials

- Security of tenure- Physical security /demolitions open space- Water, sanitation and increase in access- Empowerment through legal ownership- Reduced vulnerability to disasters/pollution- Self-respect perception people of the building increased social status

Constraint

- lack of communication between MM and PD- lack of understanding whole process- incomes affecting social networks- not everyone want to move- less access to employment (especially for women) opportunities (shops)- increase in cost of living (utilities, taxes, etc.)- less access to health and education facilities- ability to save is reduced

2. Pressure of Political ConstituenciesPotentials

- precedent setting- collective action empowerment of members- working with bureaucrats and not with politicians cracking the system- PD Policy : to relocate PD within the next coming years (Governments

commitment)

Constraints- lack of communication between SPARC and PD- possible fracturing of grassroots cohesion due to scaling-up- hierarchy among the members of the Alliance (possible implication on decision-

making and information sharing/dissemination)- MM still guided by Alliance (need for them to step out on their own)

3. Representative Political StructurePotentials

- Nil

Constraints- Lack of trust/belief in democracy (GOM)- Lack of trust in politicians- Politicians not in favour of relocation because of potential to loss of votes


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B. POLICY SPHERE

4. Political CommitmentPotentials

- Congress led (GOM, National Government) better coordination of policy

priorities- SRA recognition of PDs- MCGM survey and relocation of DsConstraints- MCGM is Shiv Sena led party to coalition between GOM and NationalGovernment

5. Policy/PlanningPotentials

- government as facilitator involving private sector (NGOs) housing provision more competition (flexibility)

- embeddedness of Alliance in SRA- Generally positive change of attitude towards slum dwellers- Government agencies recognise responsibility to relocate PD- Progressive draft housing policy by GOM but not Land Ceiling Act : possibility of

it being disputed and amended

Constraints- still misconceptions about PDs- No means of redistribution of Land- Lack of coherence Gov does things on one way and in an opposite way,

Burra.- Lack of coordination between policies- Lack of city-wide plan- Problems with giving free-housing for the poor corruption, segregation, anti-

poor sentiments- Eligibility cut-off date arbitrary with no solution for post-1995 PDs- No planning dept. within MCGM: CDP only means to get funding for investment- Urban Land Use and Redevelopment Plans are focused on private development

less emphasis on Affordable housing scheme (GOM)

6. Resources

Potentials- Mankhurd Land- TDRs- Rs.20,000 corporations fund per household under the SRA scheme- Involvement of Banks/ICICI/Cliff- Semi-skills and labour skills from PDs can be utilised in construction- Sources of national government funding (JNNURM) potentially available

Constraints- scarcity of land- land belonging to central government

- lack of finance and other sources of finances


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C. ORGAISATIONAL SPHERE

7. Mainstream ResponsibilityPotentials

- Alliance link to SDI international support and attention

- Building partnership between community organizations, private sector andgovernment institutions for housing delivery for the poor

Constraints- negative portrayal of slums in the media- lack of coverage of PD relocation in media- NGOs are not using the media they do not know how to produce stories that

sell- NGOs and banks lack understanding of how to communicate with each other

understanding essential for getting bank finance

8. ProceduresPotentials

- TDRs- Relocation- Saving Schemes- Enumeration- Housing exhibitions

Constraints- feedback process: PD MM- SPARC/NSDF is weak;- procedure for feedback not in place- TDRs (Bureaucracy) time Constraint

9. Staff DevelopmentPotentials

- MM is being approached by MBC- MM capacity building and community organization in many communities- MM in Milan Nagar empowering themselves to improve their lives through

organisation

Constraints

- limited staff- funding and overall lack of interest to promote staff development in differentareas of no interest to SPARC

DELIVERY SPHERE

10. MethodologyPotentials

- No more spoon feeding, Celine- From individual right to collective right- Creating collective strategies

- Capacity building (financially, etc.)- Power of critical mass/numbers


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Constraints- piecemeal approach (lack of integrated approach) fragmentation- lack of preparation for relocation- lack of networking

11. Delivery of Programmes and ProjectsPotentials

- Building/Land relocation- Money (Maintenance)- Utilities/Security- Construction planned to continue after 3 months (not everyone clear about that)

Constraints- Corruption of developers- Relocation does not consider household size- Other 4 buildings yet to be built: cost increased, new slums

- Limited room space

12. Theory BuildingPotentials

- precedent setting- best practice extending beyond India- CLIFF new approach to finance- Gender awareness in relocation- Govt: PD have the right are entitled to be relocated near their jobs

Constraints- limitations to scaling up- financial problems

13. Applied Research

Potentials-P.D census revisited/self enumeration-Sparc building relationships with different research NGOs/Berlin Uni in Mumbai, DPU,Bamsay Uni.

Constraints:-Lack of government-driven research.

Documents

From Security of Tenure to Sustainable Livelihoods An Integrated Approach to the Relocation of Pavement Dwellers From Byculla to Milan Nagar and Beyond