INTERNATIONAL JOURNAL OF BUILT ENVIRONMENT AND SUSTAINABILITY

Published by Faculty of Built Environment, Universiti Teknologi Malaysia

Website: http://www.ijbes.utm.my
IJBES 4(3)/2017, 210-219

Slum Conditions in Haryana and Pro-poor Housing Initiatives in Faridabad, India

Nirmala
Department of Architecture, Deenbandhu Chhotu Ram University of Science and Technology, Murthal, Sonepat, Haryana, India
Email: [email protected]

History: ABSTRACT
Received: 26 July 2017
Accepted: 20 August 2017 Rapid urbanization forces urban poor to live in slums and squatter settlement. In neo-liberal
Available Online: 30 September 2017 development approach, participatory planning and collaborative actions are becoming popular
in slum upgrading programmes. This paper discusses the slum scenario in state of Haryana
Keywords: along with detailed pro-poor housing attempts in industrial city of Haryana i.e. Faridabad. The
paper reviews the three projects that aimed to improve the living conditions and lives of urban
Slum upgrading, community participation, poor communities in Faridabad. The study examines in detail BSUP projects at Dabua Colony
housing, BSUP, JNNURM and Bapu Nagar taken up under India’s first urban renewal mission i.e. JNNURM within the
context of community participation. Results reveal that contrary to the state’s rhetoric of
DOI:
inclusive governance, the urban poor are completely excluded from settlement planning,
10.11113/ijbes.v4.n3.214 leading to a lack of understanding of their needs by the state. BSUP housing scheme has failed
to mobilize slum dwellers. Drawing on the experience of these projects, the paper seeks to
answer the question: why the stated objectives were not achieved and makes recommendation
that community led initiatives and slum mapping should be at the core of slum improvement
strategy so that qualitatively superior areas can be planned for the unprivileged.

1. Introduction Committee on Slum Statistics/Census, Slum population in the country

was estimated at 75 million in 2001 and projected slum population
The introductory section discusses urbanization trends, housing shortage increase from 93 million by the year 2011 to 95 million by 2012, 97
and slum proliferation in India. The 2011 Census of India reveals that million by 2013, 98.8 million by 2014, 100.7 million by 2015 and
the urban population of the country stood at 377 million or 31.2 per 102.7 million by 2016 respectively ( MoHUA,2008). According to
cent of the total population. The number of cities and towns increased Census data (2011), 17.4 percent of the total urban population lives in
from 5,161 in 2001 to 7,936 in 2011 (Census of India, 2011) .The slums, which, are characterized by high vulnerability and informality.
number of towns has increased by 2775 since the last Census. The Slums are often located in spaces that expose their residents to multiple
number of million plus cities has grown from 35 in 2001 to 53 in 2011, hazards, such as riverbanks, drains or railways. Slum housing is only
accounting for 43% of India’s urban population. Report of the High one side of the housing crisis in India. The urban poor live in a variety
Power Expert Committee (2011) estimated that by 2031, India will of habitats which constitute a wide spectrum in terms of legality,
have more than 87 metropolitan areas and the country’s urban formality, and vulnerability (Planning Commission, 2011).
population is likely to soar to over 600 million, adding about 225
million population to present urban population. As urban population 2. Housing schemes for urban poor
grows much faster than cities’ capacity both in terms of infrastructure
and housing stock, the urban poor find it increasingly difficult to access Though Govt. of India has initiated numerous program like Subsidized
decent and affordable housing and end up living in informal settlements Industrial Housing Scheme, 1952; LIG Housing Scheme
and slums. The inability of the government to provide affordable (LIGHS),1954; Slum Areas Improvement and Clearance Programme
housing causes rise of squatter and slum settlements (Ooi and Phua, (SAIC),1956;Site and Services Scheme (S &S), 1960; Environmental
2007). The lack of access to housing and security of tenure is thus both a Improvement of Urban Slums (EIUS), 1972-73; Integrated
consequence and a cause of urban poverty. The total urban housing Development of Small and Medium Towns, 1979;EWS Housing
shortage estimated at the beginning of the 12th Plan period i.e. 2012 Scheme (EWSHS) 1980; Integrated Low Cost Sanitation Scheme
was 18.78 million, 96 percent of which affects the two weakest income (ILCSS), 1981; Urban Basic Services Scheme (UBSS), 1986; Urban
groups, (Ministry of Housing and Urban Poverty Alleviation, 2011). Basic Services for the poor Programme (UBSP),1990/91; IDSMT
Households living in congested houses account for 80 percent of the 1995; National Slum Development Programme, 1996; Two Million
shortage, while those residing in obsolescent houses account for 12 Housing Programme(2MHP),1998-99; Valmiki Ambedkar Awas
percent. According to government data, only 3 percent of the shortage Yojana, (VAMBAY),2001; Basic Services for Urban Poor Programme,
stems from households’ homelessness. As per the Report of the (BSUP), 2005 under JNNURM; Urban infrastructure Development

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Scheme for Small& Medium Towns (UIDSSMT),2005 under JNNURM; implemented to improve the environment of urban slums. Though as
Integrated Housing and Slum development programme (IHSDP), 2005 per the stated objectives of BSUP, beneficiaries should be involved as
under JNNURM; Rajiv Awas Yojna (RAY); 2011,PMAY 2015. an active stakeholder in slum rehabilitation and up gradation
Although having a number of housing schemes for urban poor lack of programmes as community participation is an important component in
inclusive planning, and incapability of putting them in right order and the implementation of policy and the execution of projects. An
place resulted in failure of most of the schemes. authoritarian approach to slum rehabilitation can result projects which
are inappropriate for the conditions and ineffective in terms of the
This article presents housing initiatives for urban poor in Faridabad city. policy’s intentions.
The paper also looks at reasons for failure of the BSUP housing projects

Table 1: Slums Conditions in Haryana as per Census 2011

Item Elements Quantity

Population Total Population 25,351,462
Urban Population 8,842,103
Slum Population 1,662,305
% of Slum Population in Urban Population of state 18.80
% of State Slum Population in Total Slum Population of India 2.54
Population of cities/towns reporting slums 7,802,074
% of slum Population to Population of cities/towns reporting slums 21.3

Township Number of statutory town 80

Number of slum reported town 75

Household Number of Slum Household 332,697

Average slum household size 5.0
Average urban household size 4.9

Work Participation Number of male worker 444,500

Number of female worker 82,903
Work participation rate (male) 50.1
Work participation rate (female) 10.7
Total main worker 447,518
Total marginal worker 79,885
Total worker 527,403

Slum’s House Type of Material Floor: Mud, wood and bamboo 64,546
Floor: Burnt Brick, Stone and Cement 317,520
Floor: Mosaic/Floor tiles 21,793
Floor: Any other material 1,663
Wall: Grass, Thatch, Bamboo, Plastic, and Polythene 4,524
Wall: Mud/Unburnt brick 28,886
Wall: Wood, Galvanized Iron (GI), Metal, Asbestos sheets 1,228
Wall: non-mortared stone 8,916
Wall: mortared stone 15,833
Wall: Burnt brick, concrete 345,476
Wall: Any other material 659
Roof: Grass, Thatch, Bamboo, Wood, Mud, Plastic, Polythene etc. 60,293
Roof: Hand-made tiles 6,305
Roof: Machine-made tiles 4,178
Roof: Burnt Brick, Stone, Slate, Concrete 306,483
Roof: G.I./Metal/Asbestos sheets 26,741
Roof: Any other material 1,522
Total number of slum’s houses 405,522

House Condition Good 160,883

Livable 147,603
Dilapidated 16,245

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3. Structure and Methodology settlement, if not a notified slum, was called a non-notified slum (c)
The word “slum” covered both notified slums and non-notified slums.
The structure of the article is as follows. After presenting the slum
scenario of India in the introduction section, the article presents slum Slum as defined by Government of Haryana: Government of Haryana
definitions by various institutions and glimpses of slum conditions in had issued a notification on 16.4.1990 for constitution of Haryana Slum
Haryana as per census 2011 and the current picture of slum in detail in Clearance Board and adopted the Punjab Slum Areas (improvement and
the industrial city of Haryana i.e. Faridabad. It is followed by clearance Act 1961) As per section 3(1) of this Act, the definition of
institutional response in housing provision in Faridabad city, presenting Slum area is where the competent authority upon report from any its
3 projects of pro poor housing initiatives including BSUP programme officers or other information in its possessions satisfied as respect of any
implemented till date by local authority. Next section presents reasons area that the buildings in that area: (a) are in any respect unfit for
for failure of BSUP project. The last section presents discussion and human habitation, or (b) are by reason of dilapidation, overcrowding,
conclusion. faulty arrangements and design of such buildings narrowness or faulty
arrangements of streets lack of ventilation, light or sanitation facilities,
The Area of the Study is Haryana- Urban in general and metropolitan or any combination of those factors detrimental to safety, health or
city Faridabad in particular. The sources of data include Census reports, morals” it may by notification in the official Gazette, declare, such an
National Sample Survey. Reports, Five Years Plans, published and area a slum area. In determining whether a building is unfit for human
unpublished reports of the state and local government. In addition, the habitation for the purpose of this act regard shall be had to its condition
data has also been collected from other sources like, Town and Country in respect of the following matters, that is to say (a) repairs (b) stability
Planning Department, Haryana Development Authority, State Statistical (c) freedom from damp (d) natural light and air (e) water-supply (f)
and District Statistical Office etc. The article is based on the primary drainage and sanitary conveniences (g) facilities for storage preparation
information collected through focused group discussions, individual and cooking of food and for the disposal of waste water.The building
discussions and site observations of the BSUP site and intended shall be deemed to be unfit as aforesaid if any only if it is so far defective
beneficiary. in one or more of the said matters that it is not reasonably suitable for
occupation in that condition.

4. Some Working Definitions. 5. Urbanization Trends, Housing Shortage and Slum

Proliferation in Haryana
UN-HABITAT defines “A slum is a contiguous settlement where the
inhabitants are characterized as having inadequate housing and basic Haryana, a predominantly rural state in India. In the past it seems to
services. A slum is often not recognized and addressed by the public have urbanized rather fast in last three decades. It has already crossed
authorities as an integral or equal part of the city. Slum households as a national average in terms of level of urbanization. Haryana occupies an
group of individuals living under the same roof that lack one or more of area of 44,212 sq. km. in total, rural area covers 42,235.92 sq. km and
the conditions of (a) insecure residential status (b) inadequate access to urban area covers 1976.08 sq. km. It shares 1.34 % area to India’s total
safe water (c) inadequate access to sanitation and other infrastructure (d) Area. In 2011, the total population of Haryana was 254 lakhs, which is
poor structural quality of housing, and (e) overcrowding. 2.09% of India’ total population. At the same time the urban
population of the state was 88.42 lakhs which is 2.39% of total urban
Slum Definitions in India: In India, the definition of slums are brought population of the country. 34.79 %of the total population of Haryana is
out by the Census and the NSSO and also every State in India has unique residing in urban areas. As the work force is crucial determinant of
definition of slums in keeping with the distinctive socio-economic employment situation and high level of workforce (employed
characteristics of the region, its terrain and slum housing conditions. population) plays important role in economic growth of the state, cities
and villages. The nature of workforce structure has changed over a
CENSUS 2011 definition: All notified areas in a town or city notified as period of time. In Haryana during 1981-2011 shows sharp decline in
‘Slum’ by State, Union Territory Administration or Local Government, share of main workers employed in primary sector. At the same time
Housing and Slum Boards etc. under any Statute including a ‘Slum Act’ there is considerable increase in the share of workforce employed in
are considered as Notified Slum. All areas recognized as ‘Slum’ by secondary and tertiary sectors. Majority of secondary and tertiary
State/Local Government, Union Territory Administration, Housing and sectors are physically located in urban areas. Housing for the workforce
Slum Boards etc., which may have not been formally notified as slum was not created by the government sector, which has led to spread of
under any statute are categorized as Recognized Slum. A compact area slums in towns.
of at least 300 populations or about 60-70 households of poorly built
congested tenements, in unhygienic environment usually with Housing is an asset for transforming the livelihood opportunities of the
inadequate infrastructure and lacking in proper sanitary and drinking urban poor (Moser, 1998).It is considered crucial for socioeconomic
water facilities in the State/Union Territory are categorized as Identified and human development of urban societies. In post liberalization era,
Slums. housing is emerging as an important issue in urban areas in Haryana.
The real estate boom in 1990s has made housing and land a costly
National Sample Survey Office (NSSO) definition: Operational commodity which seem to have gone beyond reach of the poor. The
definition of slum in the 69th round survey include (a) Areas notified as condition of houses is also poor as Census data shows high level of
slums by the concerned municipalities, corporations, local bodies or dilapidated houses in the urban areas of state. The issues of poor
development authorities were termed notified slums (b) Any compact coverage and quality of water, sanitation, streets, roads, parks,
settlement with a collection of poorly built tenements, mostly of parking’s add woe to the housing problem. The situation is worst in
temporary nature, crowded together, usually with inadequate sanitary slums which have grown in most of the towns in the state. It seems the
and drinking water facilities in unhygienic conditions, was considered a Housing and Urban Development Authority has not made adequate
slum by the survey, provided at least 20 households lived there. Such a efforts for housing the urban poor.
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Table 1 shows slum conditions in Haryana. The existing housing plays there has been an increase of 3.48 lakhs of population in the city. Out
an immense role for the livelihood opportunity of urban poor. of which approximately 1.83 lakh is the natural increase and 1.65 lakh
However, in policy measures this particular impact of housing on the is the immigration in city. Hence approximately 11.78 % people have
livelihood of the urban poor has often been overlooked. Most migrated in the city in the last decade. Faridabad is not an exception to
development professionals still assume that poverty is caused by a lack the general work force scenario in the state. The industrial base of
of income or assets, but fail to recognize that poor quality Faridabad is not just the economic base of Faridabad, but it is an
overcrowded housing which lacks basic infrastructure, exacerbates the important constituent of the overall economy of the state of Haryana as
deprivations associated with poverty (McLeod and Satterthwaite, well as NCR. According to City Development Plan, the work force
2001). participation rate (WFPR) of Faridabad city was about 30 per cent in
2011, 31 percent in 2001, 30 percent in 1991 and 34 percent in 1981.
Information provided in above table reveals that 18.8% (1,662,305) of With the rapid urbanization, there has been unregulated development
urban population is residing in 332697 slum households. Average slum and encroachments of public land such as roads, streets, parks etc. in
household size is 5.0. Out of 80 Statutory towns 75 have reported the Faridabad. According to Faridabad City Development Plan, the
slums as a solution of informal housing. 527,403 (31.7 %) persons out booming industry in the city during1970s and the 1980s and the growth
of 1,662,305 are engaged as main and marginal Worker. Predominant of its economy has also contributed to the growth of slums. Large
Material of Floor is Mud, Wood, Bamboo; Wall is constructed of numbers of labourers from different parts of the country have migrated
grass, thatch, bamboo, plastic, polythene etc.; material of roof is grass, to the city in search of opportunities and settled on vacant land, largely
Thatch, Bamboo, Wood, Mud, Plastic, Polythene, Handmade Tiles, belonging to the Central and State Government, MCF, HUDA, Wakf
Burnt Brick, Stone, Slate, Concrete etc. Material of construction in Board, and even private land. Faridabad has 63 slums pockets (425.30
slums houses indicate the majority of the households are living in semi- Acres) comprising 15 (99.95 Acres) in Old Faridabad, 28 (221.70
pucca structure. Table 1 indicates that 160,883 houses are good in Acres) in NIT and 20 (103.65 Acres) in Ballabhgarh. There are 47523
conditions. Above data can be used in addressing vulnerability of poor slum households with a population base of 200, 892 persons. The
people and area can be used as a productive asset. Existing physical density of population in slums is 11600 persons/sq. km which is much
environment of slums depicts social health, happiness, social justice, higher than the density of population in the city. The result is haphazard
and dignity of the inhabitants. This section has explained various growth of Faridabad town with numerous slums. It is important to
parameters of slum houses in urban areas in Haryana. On the basis of know about the magnitude and location of slums in Faridabad city for
this data strategy for pro poor housing can be adopted. Where social the urban local body so that sufficient attention is paid to improve the
health, happiness, social justice, and dignity of the inhabitants are not living environments of slum dwellers in relation to the scale of the
considered in housing projects, it usually reflects a sense of despair, problem. Slum Free City Plan of Faridabad was prepared by Gaheli
deprivation, and deepening violence (Hassan, 1999). Centre of Research and Development (GCRD 2013), for the Municipal
Corporation Faridabad under Rajiv Awas Yojana (RAY) housing
Faridabad became the 12th district of Haryana in 1979.Faridabad scheme. The slum conditions in Faridabad, as described by GCRD are
district falls in the National Capital Region (NCR). It is bounded by slightly different from data provided by Census 2011. GCRD describes
the Union Territory of Delhi (National Capital) on its north, Gurgaon that the deficiencies in slums are more critical than the city in general.
District on the west and State of Uttar Pradesh on its east. It was The water, sewerage and drainage systems are grossly inadequate. The
carved out of Gurgaon district. After independence, the town has access to important services like latrines, bathrooms, electricity and all
become a centre for the resettlement of refugees created by Partition. other are either absent or very inadequate. The Census of India 2011
Now Faridabad is the most populated and industrialized city in the recorded very low level of slum population in 2011 at 15.21%. The
whole of Haryana. Industrial development started in 1950s after mapping of slum areas of Faridabad city carried by the Facilitation
partition of the country and migration of large number of refugees to Centre for GIS in Governance (FCGISG 2013) shows the location of
the city. According to Revised City Development Plan there are about slums in Faridabad.
15,000 small, medium and large industries in the city providing direct
and indirect employment to nearly half a million people and ranks 9th The Slum Free City Plan of Faridabad (GCRD 2013) has given good
largest industrial estate in Asia. Faridabad alone generates about 60 account of slum wise detail of households, population area and land
percent of the revenues of Haryana with its large number of industrial ownership. There are 63 slums in Faridabad with 48,889 households.
units (FCDP). The growth of Faridabad city has been rapid and Figure 1 shows the location of slum settlements in urban area of
continuous. Faridabad urban agglomeration (UA), also the largest class Faridabad. With an average household size of 4.5 persons per
I metropolitan town of Haryana has also been rated as the one of the household, slums have population base of 219264 persons. The area
fastest growing urban centers in the world, standing a position of 3rd covered by the slums is about 2.34 sq. km. The GCRD survey (2013)
fastest growing city in India. recorded slum population at 219264 in 63 identified slum clusters in
Faridabad city which was little higher than the slum population recoded
According to RCDP the settlement policy of the National Capital by the Census of India in 2011. All of the 63 slum settlements within
Region has been evolving since 1962 when the Master Plan of Delhi the Faridabad municipal corporation limits are non-notified. Most of
suggested to decentralize the industries and housing facilities from the slums in Faridabad are older than thirty years. There are 40 slums in
national capital Delhi to the surrounding areas diverting some Faridabad which are older than thirty years, 9 slums each between 20-
population of the city to some of the ring towns including Faridabad, 25 and 25-30 years old, 2 slums between 15-20 and only 1 slum is 10-
Gurgaon, Ballabhgarh, & Ghaziabad etc., located within a radius of 30 15 year old according to Slum Free City Plan of Faridabad. The
km. Backed with the support of the concerned State Governments and majority of the earning members across the 63 slums of Faridabad are in
also due to nearness to Delhi, these ring towns including Faridabad the age group 25 to 35 (32.6 per cent) and in the age group 35 to 45
grew much faster than the National Capital itself. There are large (30.6 per cent).16.6 per cent are in the age group of 45 to 60 and a
numbers of small and medium industries in the city which provide further 9.9 per cent in the age group 20 to 25. It is alarming that there
employment to the people. According to RCDP from 2001 to 2011 are 0.3 per cent earning members even among children in the age

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 Figure 1: Master Plan showing Slum Settlements in Urban Area of Faridabad

group less than 14, 1.9 per cent in the high school going age of 14 to 6. Institutional Response in Pro-poor Housing
20; and 8.1 per cent among the old age people of greater than 60 ages, Provisions in Faridabad City
who are forced to seek work to fend for themselves.
Industrial Development in Faridabad and decentralization planning of
The GCRD survey (2013) shows that housing conditions in Faridabad Delhi Master Plan is the main cause of sudden increase of industrial
slums are critical. The large majority of almost three out of five houses workers in the city. As there was no industrial housing for this class,
in the slum settlements of Faridabad, on average, could be categorized they followed self-help housing initiatives and constructed sub standard
as semi-pucca. Only 22.48 per cent of the houses were fully pucca and shelters known as slum settlement. If we look at the institutional
60.00 per cent were semi-pucca while 17.8 per cent were fully katcha response, three projects have been taken up since 1977 till date. This
in Faridabad city areas. Water supply according to the GCRD survey section will explain these projects chronologically in detail.
(2013) out of 63 slum settlements in Faridabad, only 60.5 per cent of
the slum households have some form of water supply within their As discussed in above section, Faridabad is the only industrial city of
premises, of which only 15 per cent have an individual tap facility as Haryana. Industrial development started in 1950s after partition of the
the source of drinking water within their premises. 39.5 per cent have country and migration of large number of refugees to the city. First
to resort to carry drinking water from outside to their premises; Only EWS housing project was designed in 1977 by urban local body to
59.5 per cent of the slum households spread over the 63 slums in accommodate industrial labour .The 2.08 hectare site is located near
Faridabad have electricity connections. 31 per cent of the households industrial area. Site is divided into 160 plots covering 34% area of site,
use kerosene as the source of house lighting. On average, 21.6 per with a density of 155 DU per hectare; roads and open spaces are
cent of the slum households in Faridabad still defecate in open areas. occupying 24% and 35% area respectively. As indicated in fig.2 every
While 63.7 per cent do have some form of own septic tank or flush plot is having individual open spaces. Inclusive Community open spaces
latrine within premises, 14.7 per cent households still depend on are provided adequately. A population of 1612 is residing in this
community and shared latrine facilities. The slum housing situation in housing area. This was the only one and first attempts of pro poor
Faridabad today presents a little complex picture. The gaps in housing housing by Faridabad Administration in 1977. Such efforts did not
as identified above at the state and city levels need to be addressed to continue further and left - out slum dwellers consolidated their claims
evolve a healthy a city. on unauthorized settlement they have developed over a period of time
on public land. Lack of housing provision by public authority led to

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 Figure 2: Site Plan of EWS housing project in 1977 (Source: MCF, Faridabad)

slum proliferation further and presently the city still has some 40 years development of identified cities with focus on efficiency in urban
old slum colonies. infrastructure/services delivery mechanism, community participation
and accountability of Urban Local Bodies (ULBs) towards citizens.
Second housing project for urban poor was developed in 1985 by
Faridabad Administration.1624 dwelling units were accommodated on The ever increasing number of slum dwellers causes tremendous
a site of 18.95 acre. Area for shopping centre, community centre, pressure on urban basic services and infrastructure. In order to cope
school, police post was also earmarked on site layout. Every plot has with massive problems that have emerged as a result of rapid urban
private open space, can be used for extension of indoor activities and growth, it has become imperative to draw up a coherent urbanization
all clusters are having community green areas, can be used for social policy/strategy to implement projects in select cities on mission mode.
interaction and play area for small children. As per planning norms
social infrastructure, enough road spaces and green spaces have been The objectives of JNNURM include: (a) provision of basic services to
provided. This project was finalized on papers but never got urban poor including security of tenure at affordable prices, improved
constructed due to financial paucity. On the other side industrial housing, water supply, sanitation and ensuring delivery through
workers kept on increasing in the city due to pull factor of industries convergence of other already existing universal services of the
and decentralized policy of Delhi Master Plan and consequently slum government for education, health and social security (b) care will be
settlements kept sprawling on public land, posing challenges before taken to see that the urban poor are provided housing near their place
housing authority. of occupation (c) secure effective linkages between asset creation and
asset management so that the basic Services to the Urban Poor created
Third housing project was initiated in 2005 under Jawaharlal Nehru in the cities, are not only maintained efficiently but also become self-
National Urban Renewal Mission (JNNURM) scheme. In 2005, sustaining over time (d) ensure adequate investment of funds to fulfill
Government of India initiated the JNNURM which has been one of the deficiencies in the basic Services to the urban poor (e) scale up delivery
most significant initiatives, aiming at meeting infrastructure needs of of civic amenities and provision of utilities with emphasis on universal
Indian cities, improving quality of life of people and speeding up the access to urban poor.
process of governance reforms. Under the scheme there are two
submissions designed to meet the needs of the urban poor. Sub‐ In the following paragraph an effort has been made to look at the status
Mission 1 is Urban Infrastructure and Governance (UI&G) formulated of BSUP, JNNURM in Haryana with special focus on Faridabad. Under
under the Ministry of Urban Development and Sub‐Mission 2 is Basic BSUP, 2 projects had been sanctioned in Faridabad which proposed to
Services to the Urban Poor (BSUP) formulated under Ministry of provide dwelling units to the urban poor. An attempt has also been
Housing and Urban Poverty Alleviation. The main thrust of Sub‐ made to assess the failure of housing projects. The nodal agency for the
Mission 2 on Basic Services to the Urban Poor (BSUP) was on JNNURM projects was the Haryana Slum Clearance Board and the
integrated development of slums through projects for providing Haryana Urban Infrastructure Development Board. According to
shelter, basic services and other related civic amenities with a view to Revised City Development Plan following projects were envisaged
provide utilities to the urban poor. The mission statement also under BSUP, JNNURM: (a) Dabua Colony Housing Project (b) Bapu
emphasizes institutional reforms driven, fast track, and planned Nagar Housing Project.

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 Figure 3: Housing Project for urban poor in 1985 (Source: MCF, Faridabad)

As table 2 shows 1968 dwelling units have been constructed at Dabua Bapu Nagar and the yellow boundary encloses the existing slum
Colony, Faridabad within 5 years. Total site area is 12.32 acres settlement area.
(49892.6 sq. m.). Ground coverage of 33.33% is allowed. 24.7%
ground coverage has been achieved. Maximum permissible FAR is Figure 8 shows the physical status of JNNURM projects in Faridabad.
175% of this site area. Achieved FAR is 104% of the site area. The site The Housing Work at Dabua Colony and Bapu Nagar project is the live
is a very prime piece of real estate. Existing development around the example of social and economic exclusion of the urban poor from
site is a mix of commercial and residential uses, police post, mainstream urban settlements. Despite the completions of BSUP
community centre, govt. funded primary school. Though it is a projects, poor slum dwellers continue to live in poor conditions. On
relocation project to house the urban poor, relocation here does not
mean remotely situated area, but the relocated site is in developed
potential zone as shown in Figure 4. The surrounding building
Table 2: Status of housing works under BSUP scheme in Faridabad
typologies, road connectivity to neighbouring areas should attract the
intended beneficiaries. But the project has failed to achieve its stated Brief Descrip- Award Important Status of Work
objectives. The intended beneficiaries did not come forward to occupy tion of Work Value (INR) Date
theses flats. Housing work 366,788,000 01 July 2007 Total 492 DUs at one floor,
at Dabua Colo- (Started) Remarks 202 DU’s Handed
ny: 31 March 2015 over & total 1968 DUs are
Figure 5 shows that commercial development has taken place along the (Completed) ready
abutting road. These commercial activities provide employment Const. of 1968
opportunities to the beneficiaries of BSUP housing at Dabua Colony in DUs including all
Internal & Exter-
the immediate area. Figure 6 shows the facilities that add further nal Works
potential to the BSUP site.
Housing work 237,600,000 01 July 2007 The work of 928 DUs are
As per Table 2, 1,280 dwelling units (DUs) were proposed at Bapu at Bapu Nagar: (Started) completed 139 DU’s handed
31 March 2011 over on 15 July 2014 to
Nagar. 928 dwelling units are constructed at Bapu Nagar. Balance 352 Const. of 1280 (Completed) beneficiaries and balance 789
DU’s are held up due to encroachment by Jhuggi dwellers case is DU’s including all DUs are vacant. Balance 352
under Hon’ble Court. Total site area is 7.17 acres (29,253.6 sq. m). Internal & Exter- DUs are held up due to
As per planning norms 33.33% ground coverage is allowed. Achieved nal Works encroachment by Jhuggi
dwellers case is under Hon-
ground coverage is 27.37% (8,006.71 sq. m). Relocation slum orable Court. After area
improvement strategy is adopted in this project. Relocated site is vacation, 352 DUs can be
surrounded by numerous industries. This project provides an completed in one year time.
appropriate housing solution to the beneficiaries who are employed in Electrical connection from
Haryana Electricity Board is
these industries. But the intended beneficiaries prefer to stay in slum awaited.
houses which are located near to this site rather than shifting to new
development. In Figure 7, the red boundary depicts BSUP housing at Source: Faridabad Municipal Corporation

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 Flats in Dabua Colony under BSUP (Relocation development )

Advantages of The Site - Neighbouring areas are well developed and connected to the city
Commrecial activities along the access road.
Police Station, temple , community centre are already there

Figure 4: Location of BSUP housing at Dabua Colony along with neighbouring areas (Google Earth)

the basis of above discussion ,visual survey and interview with in their housing (and infrastructure). There are examples of such
beneficiaries ,the current status of BSUP housing projects at Dabua “upgrading” in cities in India going back the late 1960s, (Anzorena,
colony and Bapu Nagar shows dismal achievement. 1988) but it had never been national government policy to support
these at this scale. The government of India’s policy commitment to
7. Results and Discussion upgrading was further enhanced in JNNURM (2005), in 2009 when the
Rajiv Awas Yojana (RAY) programme was announced and recently
One of the stated objective of BSUP is to support slum upgrading, , adopted in PMAY (2015) also.
support improved living conditions and service provision in existing
slum settlements. The preferred option should be in- situ up gradation But slum upgrading strategy implies an acceptance of the right of the
i.e. improvement in the same location. For residents, this avoids the residents to live there, even if the housing and infrastructure do not
disruptions to livelihoods and social networks that relocation usually meet regulatory standards and the tenure or use of the land is illegal.
brings. The relocated sites are usually remotely located and far from Since the 1970s, upgrading has become so common that in many
income-earning opportunities. The same has happened in Saveda nations it is seen simply as what a city government should do (Almansi,
Ghevera relocation project in Delhi, which is called a planned slum by 2009). There are also international programmes that have supported
researchers as it has failed to link employment opportunities of the upgrading on a large scale – one of the best known being the Baan
beneficiaries. For the government, upgrading avoids the need to find a Mankong programme in Thailand. NTAG study of BSUP projects to
new land site which is again a herculean task. Upgrading is also meant examine potential for Community Participation 2012 states that many
to ensure more secure tenure (so that eviction threats are much of the projects funded within BSUP were designed and implemented as
reduced) and build on the investments the residents have already made if they were public housing programmes, with the government paying

Figure 5: Commercial Development Figure 6: Police Station

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 Figure 7: Google Image showing BSUP housing at Bapu Nagar and adjoining industrial area. (Google Earth)

contractors, based on tenders they submitted for the work − with little
or no interaction with the inhabitants. In most cases, the slums were Earlier discussion stated that BSUP housing projects at Dabua colony
not upgraded but bulldozed, and new contractor-built housing and Bapu Nagar shows dismal achievement. The main reasons behind
constructed on the cleared site or on another site. Many houses built this is contractor built G+3 housing i.e. flatted development, which do
but remain unoccupied. Most of the city development plans and the not meet community choices in term of area requirement. Area of one
detailed project reports were prepared by external consultants or dwelling unit is less than their original homes, the units did not have
municipal engineers. There was little or no scope for input from the open spaces on upper floors, that are necessary for those living in
intended beneficiaries regarding socio-economic conditions of the smaller houses, inadequate common areas like corridors , absence of
dwellers, housing and settlement design requirements and residents’ extended interaction areas near staircases on upper floors as shown in
roles and contributions, or consultation on whether to adopt in-situ figure18 are the reasons for not being occupied. It has been advocated
upgrading, in-situ land sharing, in-situ redevelopment , or relocation . by Delhi Urban Art Commission, New Delhi that balconies, terraces,
If the project involved relocation, there was little or no consultation wide corridors act as extension of outdoor activities. Because of less
with those who were to be moved. This goes against the whole covered area available, these people prefer to be connected to ground
concept of community participation in slum upgrading, which is to floor. If ample open spaces are provided on subsequent floors, such
build on existing housing and infrastructure and support for flatted development can be socially acceptable in poor communities.
incremental upgrading of homes. This semi -covered spaces add more meaning to the socialization of
children and women of these communities. In case of Faridabad BSUP
scheme large number of people in the slum community were not
communicated, organized and motivated to make collective decisions.
They were not offered different ways of slum improvement like In-situ
Upgrading, In-situ Land Sharing, In-situ Redevelopment, and
Relocation so as to make appropriate decision for their respective slum
settlements. The JNNURM objectives provided ample opportunity for
community participation to let people make their own choices and
decisions and for local governments to establish a relationship with
communities. In case of Faridabad, the communities were informed
about the flatted development but not consulted. There is a lack of
awareness about the benefits of community participation at city as well
as community level. In case of Faridabad, Slum upgrading is seen as
shifting ‘slum dwellers’ to contractor built housing elsewhere.
Participation remains an unclear and misunderstood term in this case.

Although the rationale behind slum upgrading is to benefit the

residents, the residents are dissatisfied with the contract built housing
Figure 8: Physical Status of JNNURM projects in Faridabad and are not ready to occupy. Spatial arrangement of designing of

218
dwelling unit does not acknowledgement the needs of women and References:
children. Information regarding investment in their homes, livelihood,
and capacity to contribute financially were not recognized by Almansi, Florencia (2009), “Regularizing land tenure within upgrading
authorities. There is disconnection between the reality and programmes in Argentina; the cases of Promeba and Rosario Hábitat”,
implemented solution. Participation of community is not Environment and Urbanization Vol 21, No 2, October, pages 389−414.
mainstreamed but used as a tokenism rather based on consultation and Anzorena, E J (1988), “The incremental development scheme of Hyderabad”,
information sharing. Housing projects at Dabua Colony and Bapu SELAVIP Newsletter (journal of low-income housing in Asia and the
Nagar represent injected development rather than enabling people to world), March.
solve the problem. This state – led housing approach has failed to Boonyabancha, S. (2009). Land for housing the poor—by the poor:
understand community’s potential to deal with slum up gradation. The experiences from the Baan Mankong nationwide slum upgrading programme in
emergence of slum settlement, informal housing solution is resultant of Thailand. Environment and Urbanization.
such failure of state-led approach which did not acknowledge the Boonyabancha, Somsook (2005), “Baan Mankong; going to scale with ‘slum’
platform of self-help initiatives. and squatter upgrading in Thailand”, Environment and Urbanization Vol 17, No
1, April, pages 21−46.
Census of India 2011-Circular No. 8. Circular, Registrar General and Census
8. Conclusions Commissioner, Ministry of Home Affairs, New Delhi: Office of the Registrar
General, January (2010).
There are many successful example of BSUP scheme in India, one of Eric S. Belsky, Nicholas DuBroff, Daniel McCue, Christina Harris,Shelagh
them is in situ upgrading in Mother Teresa Nagar in Pune. In this McCartney, and Jennifer Molinsky ( Nov 2013) Advancing Inclusive and
project community participation was used as a tool from planning stage Sustainable Urban Development: Correcting Planning Failures and Connecting
to build network between community and Pune Municipal Communities to Capital
Corporation. Design of houses was developed by architects in Gaheli Centre of Research and Development (GCRD 2013), Slum Free City
consultation with each household. Women were particularly active in Plan of Faridabad, Prepared by GCRD for the Municipal Corporation Faridabad
designing their units and the internal spaces, and 2,000 individual under Rajiv Awas Yojana (RAY).
house plans were prepared as per different needs of the community. Government of India, Slums in India-A Statistical Compendium2015, Ministry
Community members were encouraged to work on the construction of Housing and Urban Poverty Alleviation, National Buildings Organization.
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McLeod, R. & Satterthwaite, D. (2001) The Significance of Housing
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regulations (f) Existence of community-based organizations and their Ooi, G.L., & Phua, K.H. (2007). Urbanization and slum formation. Journal of
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housing plays an immense role for their livelihood opportunity. It is Planning Commission, Steering Committee on Urbanization, (2011), Report of
also an important productive asset (Moser, 1998; Tipple, 2005). In the the Working Group on Urban Poverty, Slums and Service Delivery System, p.
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through, for instance, renting rooms and the use of its space for home- The High Power Expert Committee (HPEC) for estimating the investment
based production activities (Tipple, 2005). A synergy between slum requirements for Urban Infrastructure Services was set up by the Ministry of
communities and housing authority should be created for assertive Urban Development in May, 2008, under the Chairpersonship of Dr. Isher
results and community-led actions should be encouraged in slum up Judge Ahluwalia, Indian Council for Research on International Economic
Relations. The Committee has submitted its report in March, 2011
gradation programmes.
The Ministry of Housing and Urban Poverty Alleviation constituted a
Acknowledgement Committee under the Chairmanship of Dr. Pronab Sen to look into various
aspects of Slum/Census and issues regarding the conduct of Slum Census 2011.
The Committee has submitted its report on 4th July, 2008
I would like to acknowledge the efforts and support, continuous
Tipple, G. (2005) The place of home-based enterprises in the informal sector:
inspiration from my supervisor Dr Jyoti Pandey Sharma, Dean,
evidence from Cochabamba, New Delhi, Surabaya and Pretoria. Urban Studies,
Faculty of Architecture, Urban and Town Planning, Deenbandhu 42(4), pp 611-632.
Chhotu Ram University of Science and Technology, Murthal, Haryana
UN-HABITAT. (2003). The challenge of slums: Global report on human
and Architect Mr Bhupinder Singh Dhillon, Municipal settlements 2003.
Corporation,Faridabad.

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