analysis of government policies on slums...

Analysis of Government Policies on Slums Upgradation

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CHAPTER-V

ANALYSIS OF GOVERNMENT POLICIES ON

SLUMS UPGRDATION

5.1 INTRODUCTION

The present chapter deals with the evaluation of Government policies

on slum rehabilitation or upgradation in relation to the slum dwellers from

the national level to the city level. Attempt has been made to see what are the

Major projects and programmes by the government (Central, State and City)

has brought in done for solving the problems of slum dwellers. This chapter

presents the evolution of upgradation programmes in the Mysore City, its

present condition and causes for the same etc. It also made an attempt on

institutions involved in planning the city infrastructure, historic evolution and

growth of Municipal administration, impact of CAA on Municipal

administration in the present context for planning the city infrastructure. It

also addresses the inter agency co-ordination for planning the city

infrastructure and to ensure better outcomes.

5.2 SLUM UPGRADING PROGRAMMES

Slum upgrading is a process through which informal areas are gradually

improved, formalized and incorporated into the city itself, through extending

land, services and citizenship to slum dwellers. It involves providing slum

dwellers with the economic, social, institutional and community services

available to other citizens. These services include legal (land tenure), physical

(infrastructure), social (such as crime or education) or economic. Upgrading

activities should be undertaken by the local government with the participation

of all parties—residents, community groups, businesses, and national

authorities. Another key element is legalizing or regularizing properties and

providing secure land tenure to residents. People who are safe from eviction

with a sense of long-term stability—whether they own the land or not—are

much more likely to invest in their housing or community. Over time, these

incremental improvements by residents can upgrade the entire community.


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The following list displays some of the most common issues addressed by

slum upgrading programs:

a) Legalization of tenure status for sites and houses, including

regularization of rental agreements to ensure improved tenure.

b) Provision or improvement of technical services e.g., water, waste and

waste water management, sanitation, electricity, road pavement, street

lighting, etc.

c) Provision or improvement of social infrastructure such as schools,

clinics, community centers, playgrounds, green areas, etc.

d) Physical improvement of the built environment, including

rehabilitation/improvement of existing housing stock.

e) Construction of new housing units (Housing construction can but

doesn’t necessarily form part of upgrading schemes. Often enhancing

and rehabilitating the existing housing stock is much more sensible and

effective and can be achieved at little cost through legalization of

tenure status or regularization of rental agreements.)

f) Changes in regulatory framework to better suit the needs and

opportunities available to the poor, as far as possible keeping to

existing settlement patterns.

People have a fundamental right to live with basic dignity and in decent

conditions. It is also in a city’s best interest to upgrade slums and prevent new

ones from forming. If slums are allowed to deteriorate, governments can lose

authority within a city, exposing slum dwellers to informal systems of service

provision and control, with slums becoming areas of crime and disease that

can affect the whole city. Moreover, in-situ slum upgrading is one of the most

viable, affordable

Ways to provide housing to the urban poor and can be implemented

incrementally.

The most important factors are strong political will on behalf of

government, strong buy-in on the part of communities, and a sense of

partnership among all parties. The slum upgrading initiative must meet a real

need; people must want it and understand why it is important. It is also

beneficial if upgrading activities are city-wide and involve partners beyond the

slums themselves, especially for implementation. And to keep slum upgrading

going, it should be a priority in financing, institutions and regulations.


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5.3 SLUM UPGRDATION PROGRAMMES IN INDIA

Table-5.1: Slum Population 2001

Slum population 1991 46.26 million

Slum population 2001 61.28 million

No. of towns reporting slums in Census 2001

640

Reported slum population in 640 towns, 2001

42.58 million

Population of towns/cities reporting slums, 2001

184.35 million

Share of slum population to population of towns/cities reporting slums, 2001

23.1%

Source: Census of India 2001.

Table-5.2: Slum Housing scheme

Sl.No Name of the Scheme Started in

1

2

3

4

5

6

7

Indira Awas Yojana

EWS Housing Scheme for Beedi workers and Hamals

National Slum Development Programme

A two millison Housing Programme for EWS

PM Gramin Aqas Yojana

Valmiki Ambedkar Awas Yojana (VAMBAY)

JNNURUM (BSUP and IHSDP)

1990

1991

1996

1998

2000

2001

2005

Source: National Sample Survey organization (NSSO) Report2008-09

5.3.1 Urban Basic Services Scheme (UBS)

The Urban Basic Services Scheme (UBS) was initiated on a pilot basis in

1986, with the involvement of the UNICEF and the State Governments, for the

provision of basic social services and physical amenities in urban slums. The

primary objective was to enhance the survival and development of women and

children of urban low income families. It also aimed at provision of learning


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opportunities for women and children, and community organization for the

slum population. The services to be delivered included environmental

sanitation, primary health care, pre-school learning, vocational training and

convergence of other social services at the slum level. UBS applied to all urban

slums.

5.3.2 Urban Basic Services for the Poor (UBSP)

During 1990-91, the previous UBS scheme was revised and enlarged

with 100% Central funding and came to be known under the new name of

Urban Basic Services for the Poor (UBSP). UBSP sought to bring about a

functional integration between the provision of social services under the

previous UBS, and the provision of physical amenities under the State sector

scheme of Environmental Improvement of Urban Slums (EIUS). It sought to

provide an integrated package of social services by creating neighborhood

committees of the residents at the slum level. Its emphasis lay on mother and

child healthcare; supplementary nutrition and growth monitoring, pre-school,

non-formal and adult education; and assistance to the handicapped or

destitute. In 1993-94, the UBSP mission was expanded to include the

achievement of the objectives of the National Action Plan for children. By the

end of the 8th Plan, the primary objective of UBSP programme was “to create

participatory based community structures which identify and prioritize social

service needs, and help implement, maintain, and monitor delivery”. UBSP

emphasized community based management. It envisaged the appointment of

Community Organizers (CO) and setting up of Neighbourhood level

Development Committees (NDCs) who would ultimately select the services to

be provided. Priority was given to women while setting up these committees,

and their participation was sought in selection of services. The onus of

choosing from competing social inputs lay with the Neighbourhood

Committees of the slum dwellers. The Scheme sought to empower

communities by allowing the creation of registered Community Development

Societies - drawing one representative each from ten Neighbourhood

Committees. UBSP was eventually subsumed under the Swarna Jayanti Shahari

Rozgar Yojana (SJSRY).


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5.3.3 Nehru Rozgar Yojana (NRY)

NRY was a Centrally Sponsored scheme launched in October 1989 with

the objective of providing employment to the unemployed and

underemployed urban poor - targeted towards persons living below the

poverty line. Within the target group of the urban poor the Scheduled Castes

and the scheduled Tribes had special coverage through earmarking of funds

NRY activities included skill upgradation, assistance for setting-up micro-

enterprises, wage opportunity through construction of public assets and

assistance for Shelter Upgradation. The NRY consisted of three schemes.

Table- 5.3: Urban Poverty Programmes

URBAN POVERTY ALLEVIATION PROGRAMMES FROM UCD TO SJSRY TO BSUP/JNNURM

1958 Urban Community Development (UCD)

1972 Environmental Improvement of Urban Slums (EIUS)

1981 Low Cost Sanitation for Liberation of Scavengers

1986 Urban Basic Services(UBS)

1986 Self Employment Programme for the Poor (SEPUP)

1989 Nehru Rozgar Yojana (NRY)

1990 Urban Basic Services for the Poor (UBSP)

1995 Prime Minister’s Integrated Urban Poverty Eradication Programme

1996 National Slum Development Programme (NSDP)

1997 Swarna Jayanti Shahari Rozgar Yojana (SJSRY)

2005 Basic Services for Urban Poor (BSUP) /Jawarlal Nehru National Urban Renewal Mission (JNNURM)

Source: National Sample Survey organization (NSSO) Report 2008-09

5.3.4 Swarna Jayanti Shahri Rozgar Yojana (SJSRY)

The SJSRY was launched on December 1, 1997, to provide gainful

employment to the urban unemployed or underemployed (below the poverty

line) by encouraging setting up of self- employment ventures or provision of

wage employment. It subsumed the earlier three urban poverty alleviation

schemes, namely UBSP, NRY and PMIUPEP. The programme was based on the

same pattern of community organizations as prescribed under UBSP. SJSRY


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consists of two major components, namely: (i) The Urban Self Employment

Programme (USEP) (ii) The Urban Wage Employment Programme (UWEP). A

subcomponent of USEP is the Development of Women and Children in Urban

Areas (DWCUA). The SJSRY rests on the foundation of community

Empowerment, and relies on creation of suitable community structures and

delivery of inputs through ULBs. Towards this end, community organizations

like Neighbourhood Groups (NHGs), Neighborhood Committees (NHCs) and

Community Development Societies (CDSs) are to be set up in the target areas

based on the UBSP pattern.

5.3.5 National Slum Development Programme (NSDP)

The objective of NSDP was the upgradation of urban slums by

providing physical amenities like water supply, storm water drains,

community bath, widening and paving of existing lanes, sewers, community

latrines, street lights etc. Besides, funds could also be used for provision of

community infrastructure and social amenities such as pre-school education,

non-formal education, adult education, maternity, child health and primary

health care including immunization etc. The programme also had a

component of shelter upgradation as well as improvement and convergence of

different social sector programmes through creation of sustainable support

systems. The focus was to be on community infrastructure, provision of

shelter, empowerment of urban poor women, training, skill up gradation and

advocacy and involvement of NGOs, CBOs, private institutions and other

bodies. NSDP was subsumed under Jawaharlal Nehru Urban Renewal Mission

(JNNURM) and was discontinued from the financial year 2005-2006.

5.3.6 Valmiki Ambedkar Awas Yojana (VAMBAY)

Launched on December 2, 2001 in the final year of the Ninth Plan, the

primary aim of the centrally sponsored scheme VAMBAY was to facilitate the

construction and upgradation of dwelling units for people living below the

poverty line in urban slums and who do not possess adequate shelter. It also

aimed to provide health services and an enabling urban environment through

community toilets under, Nirmal Bharat Abhiyan a component of the scheme.

Twenty per cent of the total allocation under VAMBAY was to be provided for

sanitation, and community toilets were to be built for the urban poor and

slum dwellers.


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VAMBAY was the first scheme of its kind meant exclusively for slum

dwellers with a Government of India subsidy of 50 per cent, the balance 50 per

cent was to be arranged by the State Government with ceiling costs prescribed

both for dwelling units/community toilets. The upper limit for upgradation of

an existing unit was 50 per cent of the cost ceiling specified for the

construction of a new house. The programme was implemented in partnership

with State Governments, who were to set up the implementation machinery,

arrange for land where required, and arrange for the credit Component of the

housing programme. The entitlement of the States under the scheme was in

proportion to their slum population. The State's share may consist of funds

from any source in the form of subsidy or loan from Housing and Urban

Development Corporation Limited (HUDCO) or any other agency. Proposals

were submitted by the State nodal agencies to HUDCO who, in turn, processed

and forwarded them to the Ministry with their recommendations. The funds

were released by the Ministry only after a VAMBAY account was opened by the

State Nodal Agency and the share of the State/UT Government was deposited

in that account. The programme has since been subsumed under JNNURM.

5.3.7 Jawaharlal Nehru National Urban Renewal Mission (JNNURM)

The Ministry of Housing and Poverty Alleviation (MOHUPA) is the nodal

ministry for the JNNURM Sub-mission on Basic Services to the Urban Poor

(BSUP) covering the 82 identified mission cities, and for the Integrated

Housing and Slum Development Programmes (IHSDP) that covers non-mission

towns and cities. The programmes provide housing and basic amenities (such

as sanitation, water supply, sewerage, solid waste disposal, etc.) to the urban

poor, especially slum dwellers.

5.3.8 Urban Basic Services for the Poor (UBSP)

The previous UBS scheme was revised and enlarged with 100% Central

funding during this period to bring about functional integration with EIUS and

came to be known as, Urban Basic Services for the Poor (UBSP). Its emphasis

was on mother and child healthcare; supplementary nutrition and growth

monitoring, preschool, non- formal and adult education; and assistance to the

handicapped or destitute.


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5.3.9 Environmental Improvement of Urban Slums (EIUS)

In terms of Plan outlay, EUIS remained the most significant programme

in the urban sector during the Seventh Plan and Annual Plans.

5.4 DEPARTMENT OF HOUSING-GOVERNMENT OF KARNATAKA

5.4.1 SLUM IMPROVEMENT SCHEMES Under this scheme, slum areas get the

basic amenities like Drinking water, Streetlight, community Toilet,

Community Bathroom, U.G.D. Storm water Drain etc. As per guidelines

of slum improvement schemes the per capita expenditure of Rs. 800.00

is incurred for development works in selected slums. The released

amount of Rs. 80.00 lakhs has been spent for these works.

5.4.2 HUDCO ASSISTED HOUSING SCHEME. During 2003-04, Valmiki

Ambedkar Awas Yojana housing scheme was sanctioned by Central

Govt. to the slum dwellers. HUDCO assisted housing scheme was

temporarily discontinued.

Table-5.4: Upgrdation Programmes

Sl.No Name of the Scheme Started in

1

2

3

4

5

6

7

Indira Awas Yojana

EWS Housing Scheme for Beedi workers and Hamals

National Slum Development Programme

A two millison Housing Programme for EWS

PM Gramin Aqas Yojana

Valmiki Ambedkar Awas Yojana (VAMBAY)

JNNURUM (BSUP and IHSDP)

1990

1991

1996

1998

2000

2001

2005

Source: Ministry of Housing and Urban Poverty alleviation. GOI

5.4.3 OTHER UPGRDATION SCHEMES

NATIONAL SLUM DEVELOPMENT PROGRAMME (NSDP) Central Government

is allotting the funds to States for welfare of the slum dwellers. During the

year 2003-2004 an amount of Rs. 20.61 Crores was released under NSDP to

the State Government. Out of this 30% as grant and remaining 70% as loan.

The NSDP funds are not released directly to the Board, but the State

Government in its annual budget 2003-04 allocated an amount of Rs.29.20


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Crores to KSCB. Out of this Rs. 27.58 crores has been released of which Rs.

25.00 crores is towards repayment of HUDCO loan. Nirmala Jyothi Rs 1.60

crores, slum Improvements Rs. 0.80 crores and Site and Service Rs. 0.18

crores. This amount has been spent by the Board to the said purposes.

ASIAN DEVELOPMENT BANK SCHEME: During the year 2003-04 slum

improvement works for an amount of Rs. 420.42 lakhs has been proposed and

approved by the KUIDFC Bangalore. In this programme an amount of Rs.

198.06 lakhs for Mysore II stage works and Rs. 222.36 lakhs for Mandya and

Maddur slum areas. An amount Rs. 466.56 lakhs has been spent upto March

2004 and Works have been completed.

NIRMALA JYOTHI PROGRAMME

The Nirmala Jyothi programme was sanctioned in Govt. Order No. HD 13 KSCB

2000 Bangalore Dated 15-01-2001. The project cost is Rs.274.00 to develop

998 slums in 21 Class - I cities of the state. The state Govt. grant is Rs. 54.00

crores and Rs. 220.00 crores is the Hudco loan. The programme was launched

during August 2002. In the first phase of the programme 260 slums have been

taken up to provide the basic amenities like drinking water, roads, and drains,

streetlights, toilets and UGD. The Works have been completed in 4 cities and

the remaining works in 17 cities is expected to complete by Nov.-Dec. 2004.In

the 2nd Phase of the Nirmala Jyothi programme all preparatory works has

been completed to call for tenders to provide basic amenities in 265 slums of

18 Class I cities at an estimated cost of Rs.66.94 Crores. This is a massive

slum improvement programme initiated by Govt. of Karnataka to provide

basic amenities to the Slum dwellers to keep the slums in hygienic and better

living conditions.

1. Rajiv Gandhi Rural Housing Corporation Limited – a registered

company set up under the Companies Act.

2. Karnataka Housing Board – a Board set up under the Karnataka

Housing Board Act.

3. Karnataka Slum Clearance Board – a Board set up under the Karnataka

Slum Areas Improvement and Clearance Act.

4. Karnataka Rajya Nirman Kendra – a registered society set up by the

state government under the Societies Registration Act.


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Table-5.5 : Comparison of Housing and Slum Dweller Programs

Program To State To Beneficiaries

NSDP 70% Loan

30% Grant

For special category states, the

amount is given as 90% grant

and 10% loan.

Selection and development of

one slum in each city as a

“model slum” in the case of

Karnataka

10% of NSDP funds can be used

for housing construction

and/or upgradation (the rest

should be used for physical and

social infrastructure).

Housing provided on loan (Rs.

50,000); amenities free of cost

VAMBAY 50% Central subsidy

50% matching funds from State

From GOI routed through

HUDCO

80% of total amount received

from GOI spent on housing of

which:

50% given as subsidy

50% as loan.

20% to be invested in the

provision of water supply and

sanitation (toilets) within the

assisted slums

IAY 80% federal grant

20% state grant

Rs. 20000 in housing grants

(Rs. 22000 in hilly and difficult

areas) for housing construction.

The amount to be used for

construction of sanitation

facilities and ‘clean’ cooking

facilities.

Infrastructure to be provided

by the implementing agency.

Urban

Ashraya

GOK takes loans from HUDCO

Housing loans ranging from Rs.

25,000 to 40,000 provided per

the size of city, excluding Rs.

5,000 upfront deposit

100% loan


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Program To State To Beneficiaries

Mythri Program

Gov. of Kerala takes loans from HUDCO

Total subsidy Rs. 28000 of which 19000 in loans at 5.5 % interest rates (HUDCO interest rates of 13.5%) and cash grant of Rs. 9000.

Beneficiary contribution of Rs. 2000

Bhavanashree Programs

From various financial institutions

Loans between Rs. 30000/- to Rs. 40000/-

No subsidy in loan interest rates (between 7% to 8% interest rates).

Sources: KSCB and RGRHCL, Bangalore, March 2003 and KSHB and, January 2004. Ministry of Rural Development website.

5.5 EVALUATION OF SLUM UPGRADATION PROGRAMS IN THE CITY

Five criteria were used in the analysis of these programs: Targeting,

Efficiency, Transparency, Administrative Simplicity and Sustainability. In the

absence of highly specific data, It is fully in the spirit of the way the World

Bank undertakes ex-post evaluations of its projects – assigning a level of

performance based as much as possible on quantitative measures. Moreover,

this approach not only sheds light on the strengths and weaknesses of these

programs, but it also requires policy-makers to consider explicitly how and

why they believe a program performs against a specific standard.

Each of the programs are rated on the five criteria on a scale of 1 to 4 in

increasing order of excellence. A program that rates poorly gets a score of 1

while a program that satisfies all the concerns under specific criteria gets a

score of four. While some of these programs can be vastly improved by some

small changes in the program structure, other programs need wholesale

reform in the way they are designed.


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Table-5.6: Rating of Housing and Sanitation Programs

Targeting

Transparency

Efficiency

Administrative

Sim

plicity

Sustainability

Total Rating

Vambay 1.67 2 1 1 1 6.67

Nsdp 1.33 2 1 1 1 6.33

Iay 2 3 3 1 1 10

Urban Ashraya 1.5 2 2 2 1 8.5

Mythri 3 1 2 2 1 9

Bhavanashree 3.5 2 3 3 2 13.5

Pune Program 3 3.5 2 3 2 13.5

NBA 3 2 2.5 2 2 11.5

*The targeting rating is the average of the ratings each program got for each of the three targeting components. See Table 2.

(Key: 4 – Excellent, 3 – Good, 2 – Fair, 1 – Poor)

The twin sanitation programs rate better than the low-income housing

programs. The most notable improvement of these sanitation programs are

better targeting through greater community participation and better efficiency

through the institution of user fees. However, there is much room for

improvement in the sanitation programs. The capital costs in both programs

are either fully or very heavily subsidized. Given the demand for sanitation

facilities in India, it might be more sustainable and more efficient to include a

beneficiary contribution element to the funding of capital costs. This will

necessitate that the local government work with CBOs in designing and

building these programs. Such collaboration will not only ensure that these

programs are more sustainable but also improve consumption efficiency.

5.5.1 Criteria for Evaluating Subsidy Programs

Targeting: Targeting is traditionally measured in three ways:

(1) How much of a transfer actually goes to beneficiaries, in these case

poor urban slum dwellers, as opposed to those for whom the subsidies


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were not intended? In other words, how much of the expenditure can

be viewed as “leakage” from its intended target. The higher the leakage

of resources to, for instance, higher income families, the lower is the

effectiveness of targeting on this scale;

(2) How much of the intended audience, in this case all poor urban slum

dwellers, receives a transfer? That is, how much “coverage” of the

intended audience is allowable with the resources available; and

(3) How much of the resources given to the intended beneficiaries actually

goes to housing improvements? When a subsidy is for a specific and

expensive good, such as housing, the subsidy per beneficiary must be

sufficient to achieve a reasonable improvement in their housing

conditions or at least enough to leverage other resources, which

together bring about a significant change in housing consumption.

Moreover, there are many levels at which targeting can be examined. At

the national level, how are the funds disbursed to the various states? At the

state level, what criteria are used for disbursing funds to the local

governments? And finally, at the local government level, how are the

beneficiaries identified and how much of their needs are addressed by the

programs? Hence, the study measures how each program fares on the three

levels: national, state and local. Then it gets an average score for targeting

based on the scores for each level of targeting. Though there is a degree of

subjectivity in the scores given to the programs, the paper argues that such an

ordinal rating of programs is possible based on program design and

implementation and that such a rating sheds light on program strengths and

deficiencies.

Sustainability: Any definition of sustainability runs the risk of being taking

out of context. Thus in defining sustainability, it must be clear what the

objective of the definition is, and conclude what it means in a particular

context. In this particular context, sustainability refers to whether the

government can scale up the housing subsidy program (and continued) to


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effectively address all the intended beneficiaries. In addition, more often than

not, sustainability will mean financial sustainability. There might be programs

that make a real difference in the housing consumption patterns of the

beneficiaries. However, if these programs provide per unit subsidies far in

excess of the financial wherewithal of the state, then such programs would

rank low on this sustainability index.

5.5.2 Rating of Housing and Sanitation Programs

Targeting. Targeting refers to the extent to which the programs reach

the intended beneficiary as well as to scope and scale of such benefits. Here

the paper examines the success of each program at three levels: national, state

and local targeting.

National Targeting For national targeting, the paper rated national

programs (VAMBAY, NSDP and IAY) on their ability to target the right state

according to need. GOI program funding is based on a perceived measure of

need in each state. For both the urban programs, GOI allocated funds based

on the number of slum dwellers in a particular state. The IAY allocates funds

based on the proportion of the rural poor in each state. The design of the

programs, therefore, appears to be well targeted in terms of avoiding leakage

of benefits. However, until the latest census, the measurement of the number

of slum dwellers was often left to the state governments who therefore had an

incentive to manipulate their numbers. Moreover, given the total number of

slum dwellers/rural poor relative to the level of resources, this targeting

spreads funds very thinly, and only a relatively small portion of those in need

can be served effectively. In effect, the targeting goal of maximum coverage

conflicts with the targeting goal of meaningful

Table 5.8 provides the ratings for the different programs under the

different levels of targeting. The last column provides the average targeting

rating.


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Table-5.7 : Targeting Ratings for Housing Subsidy Programs

National

Targeting

State

Targeting

Local

Targeting

Average

Targeting

VAMBAY 2 2 1 1.67

NSDP 1 2 1 1.33

IAY 2 2 2 2

Urban Ashraya 2 1 1.5

Mythri 3 3 3

Bhavanashree 3 4 3.5

Pune Sanitation Project 3 3

Nirmal Bharat Abhiyan 3 3

Source: NSSO report 2010.

Transparency: For rating the transparency of the programs , how much of the

costs of the program the Government accounts for in the budget. If most of

the subsidies are implicit and absent in the budgeting then the program gets a

poor rating. If however, most of the subsidies are explicit, then the program is

rated higher on this ordinal rating system.

Table-5.8: BSUP Sanctioned Schemes

(Rs. in Crores)

Sl. No

Project Name CSMC

Approval Date Approved Project Cost

No of Sanctioned

Du's

1 Rehabilitation of 20 slums - Phase -I

11.10.06 67.58 2788

2 Rehabilitation of 46 slums - Phase -II

06.10.07 90.93 2500

3

Construction of houses and providing infrastructure works in the slums - Phase -III

20.02.09 47.78 1040

4

EWS Housing & Infrastructure Development in Mysore Corporation

28.02.09 52.35 1806

Total 258.64 8134

Source: KSCB Report 2008-09.


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The SJSRY scheme was found to have been unsuccessful in providing

effective employment opportunities to the urban poor, and was sought to be

revised in keeping with the fact that urban areas have developed new skill

requirements. In the light of the above, in 2005-06, a programmatic shift

under eleventh Five Year plan was sought to be undertaken, with the revised

SJSRY to be a market-led approach, combined with an integrated provision of

backward and forward linkages. The scheme was to be revised in terms of all

three components: self-employment, wage-employment, and the structural

and organizational component.

After the launch of the Jawaharlal Nehru National Urban Renewal

Mission (JNNURM), housing and basic amenities to urban poor, especially slum

dwellers are to be delivered via the BSUP and IHSDP. These

schemes/programmes, in addition to improved housing, also cater to other

basic

5.6 INSTITUTIONAL ARRANGEMENTS FOR SLUM IMPROVEMENT IN

KARNATAKA

There are several legal instruments and state agencies directly or

indirectly concerned with slum Improvement and rehabilitation in Karnataka.

The Karnataka Slum Areas (Improvement & Clearance) Act, 1973 (KSAIC Act) is

the only instrument directly concerned with slum redevelopment. The KSAIC

Act of 1973 stipulates the procedures and rules for declaration or notification

of a slum and all the other related procedures for slum improvement and

rehabilitation and lays down the constitution of the Karnataka Slum Clearance

Board (KSCB), the agency exclusively entrusted with the responsibility of slum

improvement and rehabilitation. The second law that has significant

implications for the lives and livelihoods of slum dwellers is the one that deals

with evictions known as the Karnataka Public Premises Eviction of

Unauthorized Occupants Act 1974.


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Table-5.9: Special Purpose Agencies

Sl. No

Agencies Founding Year

Functions Assigned Co-ordination Over lapping

1 City Improvement Trust Board (CIRB) and later

1903 • Acquiring the land, developing with all amenities.

• Selling it to the general public for residential purpose

• Construction of Group houses for public

CITB has been repealed after MUDA came in to existence

----

Mysore Urban Development Authority (MUDA)

1987

• Acquiring the land, developing with all amenities.

• Selling it to the general public for residential purpose

• Construction of Group houses for public

Lack of co-ordination with MCC, KUWS &DB and PWD

Functions overlap with KHB,KSCB and also with KIADB

2 Karnataka Urban Water Supply and Drainage board (KUWS &DB)

1975 • To provide protected Water supply and drainage system for all the urban areas.

Lack of coordination with MCC, MUDA, KHB, KIADB and KSCB.

Functions overlap with MCC and MUDA.


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Sl. No

Agencies Founding Year

Functions Assigned Co-ordination Over lapping

3 Karnataka Slum Clearance Board (KSCB)

1973 • Improve the slum areas.

• Removal of unhygienic places and buildings

• Re developing of slum areas

• Clearance of slums and rehabilitation of slum dwellers

Lack of co-ordination with MCC, KUWS &DB and PWD

Functions overlap with MCC

4 Karnataka Housing Board (KHB)

1962 • Acquire the land and develop it with all amenities for residential purpose and Construction of group houses.

Lack of co-ordination with MCC, MUDA, KUWS&DB AND PWD

Functions overlap with MUDA, KSCB.

5 Karnataka State Industrial Area Development Board (KIADB)

1966 • Acquires the land and develops it as fully developed industrial plots

Lack of coordination with MCC, MUDA, KUWS & DB and PWD.

Nil

6 Public Work Department (PWD)

1947 • Plan design construction and maintenance of buildings, roads and bridges of various State Government Departments.

Lack of coordination with MCC, MUDA, KUWS & DB and PWD.

Overlaps with MCC & MUDA


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5.7 KARNATAKA SLUM CLEARANCE BOARD

5.7.1 Constitution of the Board The Karnataka Slum Clearance Board was

constituted during July 1975 under the Provisions of the Karnataka Slum

Areas (Improvement and Clearance) Act 1973. The Board consists of 5 non

official members and 8 official members and the Chairman is the Head of the

Board. The commissioner of the Board is the Chief Executive Officer and

responsible for implementation of programmes of the Board. Certain

amendments to Karnataka Slum Clearance Board Act as passed in the

Legislature have been issued in the Govt. Order dt. 06/09/2002.

5.7.2 Objectives: The main objectives of the Board are: -

1. To take up Socio-Economic survey of the slums in order to study the

socio-economic conditions of the slum dwellers.

2. To identity and declare the slum areas as per Karnataka Slum Areas

(Improvement & Clearance) Act 1973.

3. To take up environmental improvement, clearance and redevelopment

of slums.

4. To enable the slum dwellers to live in hygienic condition by providing

basic amenities, such as drinking water, street lights, roads, drains,

community bathroom, storm water drain and community halls

wherever possible.

5. To construct houses for the Slum Dwellers by utilizing the amount

from Central and State Government grants and loan from HUDCO.

6. To under take environmental improvement, clearance and

redevelopment of slums,

7. To construct tenements for slum dwellers from loan assistance from

external agencies

8. To enable slum dwellers to live in hygienic conditions by providing

basic amenities like drinking water, toilets, street light, drains, roads,

community bath rooms, community toilets, etc.,

9. To prevent unauthorized constructions in said slum areas.

10. To take up environmental improvement clearance and redevelopment

of the slums


260

5.7.3 Environmental Improvement of Slums: As per KSCB Act 1973, the

Board is providing basic amenities namely drinking water, street light,

community latrines, community bathroom, drains, roads, storm water drain to

the declared slums.

Constructions of EWS Houses: The Board has a programme of

construction of the houses for the slum dwellers. This programme is being

implemented mainly in the existing slum dwellers. This programme is being

implemented mainly in the existing slums by removing the existing huts and

construction houses in the same place, further some of water logging and low

lying areas slums are rehabilitated.

5.7.4 Schemes and projects implemented by KSCB

The KSCB is a para- statal agency entirely dependent on funds and

grants allocated by the state and central Governments and loans extended by

the multilateral agencies. The governmental grants and loans are invariably

tied to various pre-designed schemes that perpetuate the conventional piece-

meal approach to development and limit the autonomy of KSCB in evolving a

comprehensive and integrated approach to slum improvement and

rehabilitation. Until the launch of VAMBAY in 2001, there was no

comprehensive central sector housing scheme for the slum dwellers.

Between the late 80s and 2004, the KSCB has implemented the following

schemes and programmes (KSCB 2004; CAG 2006):

Subsidized housing programmes with financial assistance from

HUDCO, a central government,

• National Slum Up-gradation Programme (NSDP), a central government

scheme primarily meant for environmental improvement for urban slums

• Housing and slum up-gradation programme in 10 slums of Mysore under

the Asian Development Bank funded KUIDP between 1998 and 2004;

• Valmiki Ambedkar Malin Basthi Yojana (VAMBAY) launched in 2001 and

considered as the First central sector comprehensive subsidized housing

scheme;


261

• Slum Upgradation and Development Programme (SUDP), jointly funded by

the Karnataka state Government and HUDCO launched in 2001 for 21 cities

and towns each having more than 100,000 population; and - Nirmal Bharat

Abhiyan, a sub-component under VAMBAY for construction of toilet

complexes in slums and Nirmal Jyothi scheme also meant for sanitation

infrastructure.

The schemes generally aim at providing one or more of the services

such as housing, water supply, sanitation, electricity, storm water drains,

roads etc suffer from duplicity of objectives. Many irregularities such as

implementation delays, targeting non declared slums, lack of transparency in

contracting the works, poor quality works etc. have been reported. For e.g. in

the execution of VAMBAY and SUDP in Karnataka (CAG 2006: 57-68).

The components of the schemes also keep changing periodically and

the schemes themselves keep resurfacing with new names. Two major

schemes currently being implemented by the KSCB are:

Jawaharlal Nehru National Urban Renewal Mission (JNNURM):

Hailed as the single largest and comprehensive urban sector

programme under taken by the central government to date, JNNURM was

launched in 2005 to foster comprehensive and integrated development of

select cities with a major emphasis on fast track urban sector reforms with a

time horizon of 25 years (2005-2030).

The Basic Services for the Urban Poor (BSUP) , a major component of

JNNURM promises to be the most integrated and comprehensive approach

ever in India for slum rehabilitation and improvement and includes provision

of housing, water supply, street lighting, sanitation, underground drainage,

storm water drain, community centers, and skill up-gradation programmes.

Sixty three cities across India have been selected as mission cities under

the JNNURM of which Mysore and Bangalore are the only cities from

Karnataka. Ten slums in Mysore were recently declared on a fast track basis to

enable their eligibility for the JNNURM. In Mysore, about 2800 Households

have been identified as beneficiaries across twenty declared slums for the first


262

phase of JNNURM to be implemented at an estimated cost of US$ 9 million. In

the second phase, Infrastructure improvements are proposed in 41 slums.

Integrated Housing and Slum Development Programme (IHSDP) Launched in

2005, IHSDP aimed to achieve convergence of all the other existing schemes in

operation. It is a centrally funded scheme for housing and provision of basic

services such as water supply, sanitation, street lighting, underground

drainage etc. The housing component is covered under VAMBAY. All cities and

towns except those already covered under JNNURM are eligible to avail

benefits under the scheme (MHUPA 2005).

5.7.5 Basic Services to the Slum Dwellers in Mysore City (BSUP) Phase-1

Table-5.10: Basic Services to the Slum Dwellers in Mysore City (BSUP)

Phase-1

KARNATAKA SLUM CLEARANCE BOARD

AT GLANCE

State KARNATAKA

District Mysore

City / Towns Mysore

Type of Scheme BSUP Phase-I under JNNURM

Number of Slums Covered 20 Slums

Number of People likely to be benefited 13940

Number of Houses to be built 2788

PROJECT COST & MEANS OF FINANCE Rs. In Lakhs

1 Housing

Cost of Project for Housing 2788+2230.40=5018.40

Means of Finance

Central Assistance 2230.40

Beneficiary Contribution 501.84

State Government Contribution 2286.16


263

2 Infrastructure Cost of Roads, Drains, Water, UGD, Electrical ( Int & Ext )

1352.721

Means of Finance

Central Assistance 1082.1768

State Govt. Contribution 270.5442

3 O & M Assets

Cost of O & M of Assets 186.40

Means of Finance

Central Assistance -

State Govt. Assistance 186.40

4 IEC & Community Participation 200.80

Means of Finance

Central Assistance -

State Govt. Assistance 200.80

Total Central Assistance 3312.5768

Total State Govt. Contribution 2943.9042

Beneficiary Contribution 501.84

Total Project Cost ( 1 +2+ 3+4) Rs : 6758.321 Lakhs

Source: JNNURM REPORT (BSUP PHASE-1)

According to BSUP Project, there are totally 82 slums are there in

Mysore city. The total population of these slums in the city is 56946 with

10606 families Karnataka slum clearance Board has constructed 2623 houses

under Hudco, 647 houses under VAMBAY and 144 houses under S.C.P.

Schemes. The total houseless families residing in the slums of Mysore city are

5288 Karnataka slum clearance board has build 3414 houses under above said

schemes in Mysore city

At the time of preparation of Detailed Project Report discussions held

with slum dwellers and some suggestions are given by the beneficiaries have

been incorporated in the detailed estimate as below. The water supplies to

beneficiaries are partly provided by Mysore City Corporation through public

stand posts and the slum dwellers are urging for individual water supply.

Many of the Slums already have Anganavadi, Primary Schools, Primary Health

Center and Samudaya Bhavan within a radius of 1km.


264

The phenomenal growth of Mysore city has lead to mushrooming of

slums. The vulnerable places for slum development are mostly

environmentally fragile areas namely marshy and swampy areas, low lying

areas, vacant of Government and its agencies, Railway lands, Defense lands,

Road margins, lands under high tension lines etc., In habitants of these slums

are basically Urban poor, who are a legitimate part of the city. They contribute

to its growth and deserve a share of the benefits of that growth.

The plan is to build houses with RCC framed typical structure in (G+2)

unit configuration in Slums& in nearby open lands provided by Revenue

dept/MCC &MUDA, Mysore. Each house will be having a Living Room, Bed

Room, Kitchen, and separate Bathroom &Toilet.

These houses will have all the basic amenities required for a

comfortable living. This will includes Individual Drinking water supply

connection, Roads, Drains, Culverts, Under Ground Drainage & Internal

&External Electrification.

The basic house is designed/planned as per the guide lines laid down

by GOI under BUSP scheme, so that each house has an overall area of 300

Sq.fts. Area of each amenity if as follows with internal dimensions.

Table-5.11: Area of Houses

1 Living Room 9.00 Sq. Mtr.

2 Bed Room 8.605 Sq. Mtr.

3 Kitchen 3.565 Sq. Mtr

4 Both Room 2.04 Sq. Mtr

5 Water Closet 0.855Sq.Mtr

Source: KSCB Report 2009

INFRASTRUCTURE COMMUNITY CENTRE

Wherever the Community Centre, Primary School, Primary Health

Centre are near by the slums, these provisions are not provided in the scheme.


265

DRINKING WATER SUPPLY

In this slums/Housing colonies water supply distribution Network has

been proposed as per the requirement and individual sumps and overhead

tanks with Mono block pumps has been proposed and the same will be

connected to ULB’s distribution network.

ELECTRIFICATION

Lump some provision for layout electrification has been made and

provision for individual house connection has been in this project and

obtaining Electricity Service Connection will be the responsibility of the

dweller obtaining NOC from KSCB and observing necessary the formalities in

CESC by metering. The houses will be provided with internal wiring for

lighting and necessary UG cable work for getting Service in this scheme, with

necessary External Electrification.

5.7.6 Scenario of Slums in Mysore City

The overall condition of the slums is very bad and Pathetic with respect

to Fresh air, proper Sun light, housing, water supply, drainage, sewerage and

roads etc. Most of them do not have proper water supply, drainage and

Sewerage system and the slum dwellers have to face hardships during rainy

season especially the life of slum dwellers situated adjacent to storm water

drains and low lying areas are critical and the situation is not different in the

case of dwellers residing below Electric High tension lines and Road margins.

Also due to lack of proper drainage diseases are also rampant in slums,

affecting their healthy living. Most of the Slum dwellers live in makes shift

arrangement with no protection from sunlight, rain, wind and other weather

conditions.

STATUS OF DEVELOPMENT WORKS IN SLUMS BY KSCB

Since Inception KSCB has constructed 3414 houses in Mysore City

under different Schemes in various slums of the city. Infrastructure facilities

such as roads, drains, culverts, sanitary, electrification, community facilities

and water supply, have been provided in many of the slums under ADB grants,

State grants, NSDP, Nirmala Jyothi (SUDP).


266

DETAILS OF IDENTIFIED SLUMS

KSCB has identified 20 slums for up-gradation/Rehabilitation by

providing housing and infrastructure under BSUP PHASE-1 on in-situ basis

Wherever slums are situated on Govt/ MCC/MUDA Lands and Feasible for

construction of houses and human habitation and relocation proposed in the

case of slums situated Below High tensions lines, road margins, , low lying

areas adjacent to storm water drains etc. The list is given I the following table.

Table-5.12: Slums Identified For Upgradation/Relocation in Mysore City

under BSUP Phase-I

Sl. No

Name of the Slum

1 Hanchya Sathagally Layout

2 Roopanagara Bogadi

3 Medars Block-1 slum

4 RMY Yard A-Block slum

5 RMY Yard B-Block slum

6 RMY Yard C -Block slum

7 RMY Yard D-Block slum

8 Manjunathapura slum

9 Raja Soap Factory slum

10 KSRTC Depot neat slum

11 Metagalli Ambedkar Jnanaloka slum

12 KSRTC /MUDA Land

13 Dharmasing colony B-block slum

14 Usmania Block slum(kesare)

15 Savitha Ambedkar colony slum

16 Hebbal Colony slum

17 Nachanahalli palya

18 Medars block-II slum

19 Rajarajeswari Rice mill

20 Behind Public Hostel

Source: KSCB annual report 2010.


267

COMMUNITY INTERACTIONS:

The community was consulted while preparing the DPR under this

program. The field officers of the KSCB had detailed discussions/Interactions

with the beneficiaries/ Slum dwellers, women self help groups and NGOs prior

to preparation of project Report to provide them shelter with in the stipulated

time and are eager to see an end to their decade problem and expressed their

willingness to pay the Beneficiary contribution as per GOI Guidelines with

active cooperation and participation from the community people. The

beneficiaries are also ready to pay property Tax, Electricity charges, Water

supply charges to the concerned Authorities by maintaining the assets created

from this programe properly after construction of the house and allotment.

PROPOSED SCHEME

The plan is to build houses with RCC framed typical structure in (G+2)

unit configuration in slums and in nearby open lands provided by Revenue

dept/MCC &MUDA, Mysore. Each house will be having a Living Room, Bed

Room, kitchen, separate Bathroom & Toilet.

These houses will have all the basic amenities required for a

comfortable living. This will includes Individual Drinking Water supply

connection, Roads, Drains, Culverts, Under Ground Drainage and Internal &

external Electrification.

The infrastructure generally considered is only as per the requirements

with the slum areas.

PROPOSED HOUSES IN IDENTIFIED SLUMS

KSCB has Notified Slums under KSA (I&C)Act/allotted land from

MUDA/MCC/Revenue dept for developing the housing projects for slum

dwellers. The list of sites &proposed houses are as follows.


268

Table-5.13: Slum wise details of Proposed Houses and Configuration

Sl. No.

Name of Slum/Housing colony Houses Accommodated

1 Hanchya Sathagally layout MUDA 366

2 Roopanagara Bogadi GOVT 144

3 Medars Block –I slum MCC/MUDA 72

4 RMY Yard A-Block slum KSCB Acquired 36

5 RMY Yard B-Block slum KSCB Acquired 24

6 RMY Yard C-Block slum KSCB Acquired 24

7 RMY Yard D-Block slum KSCB Acquired -

8 Manjunathapura slum MCC 18

9 Metagally Ambedkar Jnanaloka slum

GOVT 276

10 Raja soap factory PVT 25

11 KSRTC depot near slum MCC 60

12 KSRTC/MUDA land MUDA 45

13 Dharamsing Colony B-Block slum MUDA 108

14 Usmania Block slum(kesare) MCC 132

15 Savitha ambedkar Colony slum PVT 105

16 Hebbal Colony slum PVT 55

17 Kuppalur Sy no.51 of Nachanahally MUDA 252

18 Medars Block –II slum MCC/MUDA 60

19 Mandakally MCC 480

20 RajaRajeshwari Ricemill near slum MCC/MUDA 108

As already indicated earlier, The Karnataka Slum Clearance Board is

responsible for Improvement/Upgrdation of identified slums. Under the

proposed project the KSCB will take up construction of housing and

infrastructure.

5.7.7 IEC Activities

It is not enough only to provide housing & infrastructure for these slum

dwellers. We should make them economically independent and health


269

conscious through Information Education and Communication (IEC) activities.

This will enable the slum dwellers to become on par with other sections of the

society and maintenance of assets created under the project.

COMMUNITY CARE

Information Education and Communication is an education endeavor

targeted in slum dwellers for improving quality of life by increasing the

standard of health, by utilizing the appropriate methods and support of

adequate media to bring out behavioral changes. Overall IEC formulation is

expected to help in the following ways in respect of health awareness.

� Sensitization of the target groups

� Enhancing the awareness levels

� Participation of the different target groups

� Adoption

� Changes in the attitude resulting in behavioral change

ENVIRONMENTAL ASSESSMENT

Identification and assessment of the likely environmental impact and

analysis of alternatives to minimize them. The environmental benefits after

project implementation are tabulated as under.

Table-5.14: Summary of Environmental Benefits

Sl.. No.

Envisaged Measure Environmental impact

1 Provision of Toilet/Bath for each & every House

Ensures hygienic living for the slum dwellers

2 Solid waste management- The Municipal body will take care of solid waste cleaning

3 Underground drainage

Ensures hygienic living of slum dwellers and reduce risks of epidemic diseases in summer thereby reducing mortality & morbidity rates in these slums

4 Piped water supply Water borne diseases will be reduced considerably

5 Tree planting in coordination with forest Department

Improves environmental condition in these slums


270

The sustainability of the program is maintained & increased by

achieving convergence with related schemes of the State/ Central

Governments such as “Shri Shakthi”, “Prime Minister’s Shaharee rozgar” and

other schemes. The level proposals for water supply sewage treatment, storm

water drains, solid waste management is converged with Municipal body

schemes.

Chart-5.1: Allotment of BSUP Scheme

The Mysore city has 11% of population residing in slums and is bound

to rise in the coming years as a result of the growth of the city. Most of the

population do not have adequate housing & infrastructure facilities viz. Road,

water. The current project envisages to improve the slums on a

comprehensive basis covering houses & infrastructure. As a result of this

project a population of 13940 will be benefitted with Housing & infrastructure

facilities. As a result of the project the 31% of the slum families will be

benefited.

5.7.8 Achievement of BSUP Projects:

The following objectives of BSUP will be achieved by implementation of

the projects.

� Housing as the scheme envisaged in the slum areas will be provided with

all infrastructural services like sanitation, streetlights, etc.


271

� This will lead to a qualitative improvement in the living condition of the

urban population living below the poverty line.

� The qualitative improvement in the living condition of these people will,

consequently, reduce the epidemic diseases, facilitate the reduction in

crime rate in the overall urban scenario.

� The project will create vast employment opportunities to the urban poor

leading to an improvement in local economy.

� Adequate Investment is identified to fulfill deficiencies in the urban

infrastructural services.

� Co-operative societies formed in the newly developed areas through the

provision of community centr3es in the project will lead to an effective

linkage between asset creation and asset management.

� Since the beneficiaries are also contributing to the development there will

be an effective participation and the infrastructure will be managed

efficiently leading to a self sustaining system.

� The project areas are selected in such a way that the urbanization takes

place in a dispersed manner.All the families residing in the identified

slums will be rehabilitated and get better civic amenities emphasizing

universal access to the urban/semi-urban poor.

� Social security, education, health are provided through convergence of the

schemes available in the concerned Departments.

� Skill upgradation for the slum dwellers will ensure better earning

prospects & thus improving their standard of living.

� The project will quantitatively and qualitatively enhance the living

condition of the urban population living below the poverty line.


272

Table-5.15: BSUP Schemes

Approved Status Sl. No

Name of the Project Project cost

Name of Appraisal Agency Outcome Date

1 2 3 4 5 6

1 BSUP Scheme covering 46 slums in Mysore, Phase-II

89.97 HUDCO Approved 06-10-06

2 Scheme of BSUP at Ekalavya Nagar Slum area for construction of 1040 houses in Mysore


3 BSUP Scheme for Mysore city (Phase-IV) Mysore Municipal Corp.


4 EWS Housing &infrastructure Development in Corporation limits (Phase-II), Mysore


Source: DPR BSUP REPORT

Table-5.16: JNNURM-BSUP PHASE-II Biometric Card Details

Sl. No

Name of the slum No of houses

1 Haleemnagar 147

2 Raja Soap Factory 21

3 Bovi colny -Kesere 20

4 Kesere Ambedkar colony 17

5 Gokulam 3rd Satge 124

6 Kudure mala 13

7 Hanumanthnagar 32

8 V V Mohalla 16th cross 178

9 Kesere II stage 48

10 Kesere III stage 64


273

Sl. No

Name of the slum No of houses

11 Sonia Gandhinagara 123

12 Dharamsingh "A" Block 75

13 Nachanhalli Pally 32

14 Shivaratresswarnagar 98

15 Chamundeswari road Gandinagar 43

16 Behind P.K. Sanitorium 27

17 Dongri Colony 32

18 KSRTC slum 94

19 Siddappaji Cross 96

20 Kalyanagiri usmaniya block 165

21 kyathamaranahalli 48

22 Joganakere 24

23 Kesre Park 128

24 Kesare 1st Stage 55

25 Gopika gudiselu 85

26 Gousiyanagar "A" Block 45

27 Chamundi Bettada Pada 59

28 Nurse Quarters -KRS Road 37

29 BB Keri, Pulikesiroad 60

30 Asoka puram 25

31 Behind Jail 26

32 In front of mysore sawmill 164

33 Yallamma Slum 201

34 Vandematharam 94

TOTAL 2500

Source: BSUP DPR Report 2010.


274

Table-5.17: Progress for BSUP-MYSORE – 31.10.2011

Project Phase-I Phase-II Phase-III Total

No. of sanctioned dwelling units

2788 2500 1040 6328

Total Project Cost (Rs.in crores )

67.58 90.93 47.77 203.97

No.of Slums 20 46 1 67

Date of sanction by CSMC

11-10-2006 06-10-2007 30-01-2009

Start Date Dec - 2008 Jan - 2009 Jan - 2011

No. of DU's Completed 2436 1636 0 4072

No. of DU's in Progress 132 724 1024 1880

Work to be started 220 140 16 376

Amount Released (Rs. in crores)

30.81 58.03 10.11 98.95

Expenditure (Rs.in crores)

51.08 48.06 10.99 110.13



275

Table-5.18: Physical and Financial Progress of Mysore City-1st Phase JNNURM/BSUP

Work in Progress Sl. No.

Name of the project No. of Houses

Entrusted Amount

Date of Starting

No. of Houses Started Fn Pl. RF Fin. Comp

Expenditure Rs. in lakhs

1 2 3 4 5 6 7 8 9 10 10 12

1 Mandakalli 576 1130.61 1/12/2008 576 0 0 0 576 1184.76

2 Roopanagar 156 301.87 22-12-2008 156 0 0 156 314.37

3 Metagalli 368 699.37 1/1/2009 304 0 16 288 529.19

4 Hanchyasatagalli-1 180 384.32 23-12-2008 180 0 0 180 361.51

5 Hanchyasatagalli-2 240 521.38 23-12-2008 240 0 0 240 450.00

6 RMC Yard - A B C 84 180.61 18-6-2009 84 - 28 24 32 - 48.00

7 Kuppalur Sy. No. 5 336 822.60 2/5/2009 336 - - - 336 324.59

8 Manjunatha pur, Savitha Ambedkar & RMC D Block

100 350.00 25-2-2009 100 100 0 12 0 88 106.36

9 Slum adjacent to KSRTC Depot.

74 200.00 8/5/2009 80 0 0 0 80 119.64

10 Medar Blocks 96 200.00 25-6-2009 96 0 - 0 0 96 120.80

11 Usmania Block 176 352.49 18-7-2009 176 0 - 16 0 160 251.64

12 Rajarajeshwari Rice Mill 144 294.28 18-7-2009 112 - - 20 - 92 100.20

13 Dharmasingh colony 144 302.48 18-7-2009 144 - - - - 144 57.80

14 Different Slums Yadavagiri

114 108

TOTAL 2788 5970.01 2568 2436 3968.86


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Table-5.19: Statements Showing the Details of Projects under BSUP-Mysore

Work in Progress Sl. No

Name of the project No. of Houses

Entrusted Amount

Date of Starting

No. of Houses Started Fn Pl. RF Fin. Comp

Expenditure Rs. in lakhs

1 2 3 4 5 6 7 8 9 10 10 12

1 Mandakalli 576 1130.6 12/1/2008 576 0 0 0 576 1184.76

2 Roopanagar 156 301.87 12/22/2008 156 0 0 156 314.37

3 Metagalli 368 699.37 1/1/2009 368 0 0 368 529.19

4 Hanchyasatagalli-1 180 384.32 12/23/2008 180 0 0 180 361.51

5 Hanchyasatagalli-2 240 521.38 12/23/2008 240 0 0 240 450

6 RMC Yard - A B C 84 180.61 6/18/2009 84 28 24 32 - 48

7 Kuppalur Sy. No. 5 336 822.6 5/2/2009 336 92 0 20 224 324.59

8 Manjunatha pur, Savitha Ambedkar & RMC D Block

100 350 2/25/2009 100 20 0 0 0 80 106.36

9 Slum adjacent to KSRTC Depot. 74 200 5/8/2009 74 0 0 0 74 119.64

10 Medar Blocks 96 200 6/25/2009 96 0 8 0 0 96 120.8

11 Usmania Block 176 352.49 7/18/2009 176 0 32 0 0 144 251.64

12 Rajarajeshwari Rice Mill 144 294.28 7/18/2009 144 48 16 0 48 32 100.2

13 Dharmasingh colony 144 302.48 7/18/2009 144 112 8 24 57.8

Different Slums 14

Yadavagiri 114 268 Started

TOTAL 2788 5970 2624 3968.86


277

BSUP-II

1 Maragowdana Halli 320 871.73 2/25/2009 154 0 0 160 457.25

2 Shivaratreshwara - 1 208 524 4/30/2009 208 0 0 208 362.34

3 Package -2 - 396 Houses ( G+2) Dongri Colony

48 48 0 0 48

Behind P.K. Sanitorium 24 24 0 0 0 24 250.42

V.V. Mohalla 16th cross 192 136 32 0 104

In front Mysore Saw mill 132

1102.3 2/23/2009

4 Package -3 348 Houses (G+2) K.M. Hally,

48 924.6 2/2/2009 48 0 0 48 370.64

Siddappaji Cross 84 96 96

Kalyanagiri Usmania Block 72 144 0 0 128

Behind Jail Building 24

Chamundeshwari nagar 60

Durgamba Gandhi nagar 60 60

5 Package -7 52 193.95 2/27/2009 Toilet Completed Infrastructure under Progress

Ondemataram Slum 96 254.25 96 96 75

6 Different Slums 132 - - 132 12 120 36.59

7 Differece Slums - G+3 DBT 1000 3637.2 - 1000 720 280 936.22

GRAND TOTAL 2500 7508 2252 2645.5

BSUP-III

1 Ekalavya nagar 1040 3285.4 10/30/2010 992 628 344 20 - - 489

TOTAL 1040 3285.4 992 628 344 20 489



278

Chart-5.2: Status of the Projects

Chart 5.3 Financial Progress: Allocation, Released & Utilised


279

5.8 SLUM EVALUATION BY MYSORE CITY CORPORATION

The Mysore City Corporation is the implementing agency for centrally

funded “Swarna Jayanthi Shehari Rozgaar Yojana” and the state government

funded Urban Shri Shakthi programme, both of Which aim to empower urban

poor women through formation of savings and microfinance groups. MCC

plays an important role in the slum declaration process since it is entrusted

with the authority to Issue a ‘No Objection Certificate’ for slums coming under

its jurisdiction. According to a recent amendment to the Karnataka Slum

Areas (Improvement & Clearance) Act of 1973, MCC is now authorized to issue

title deeds to slums located on its properties. MCC is required to allocate18%

of its annual budget towards the welfare of communities and persons

belonging to one of the Scheduled Castes (SC). Since a large number of slums

are composed of people and communities belonging to SC, they receive a part

this budgetary allocation which is popularly known as ‘18%’. MCC also

undertakes construction of houses and provision of basic services in slums

out of its own budget from time to time. MCC is the implementing agency for

the “Nirmal Nagar” (clean city) Scheme which aims to harness the self help

groups created under the “Urban Stree Shakti” (women power) Programme for

solid waste management in cities and towns.

The elected councilors of the MCC act as the informal nodal points of

interaction between the slum dwellers and the MCC and in mediating the

accrual of benefits to select slum communities. The Involvement of councilors

and/or councilor aspirants and through them their parties in the slum

redevelopment process has fostered patron-client relationships between local

political leaders and slum leaders

5.8.1 Slums in City Plan Documents

The Revised Comprehensive Development Plan for Mysore (RCDP)

prepared by the Mysore Urban development Authority in 1996 makes only

scant references to slums and their rehabilitation. Slums are listed under

subsection (A) of Chapter III of the RCDP titled “slums and unauthorized

Constructions” where 30 declared slums are listed followed by a list of 29

areas as unauthorized constructions on government land which however have

made their entry into the current official list of slums maintained by the KSCB.


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Under Subsection (B), titled “main problems of the city”, slums are listed as

one of the main problems (MUDA 1996). It is not clear whether estimates of

housing stock required in Mysore include slums as part of the demand

assessment. The very notion of slums as “problems and unauthorized

constructions” as recorded in the RCDP report leads to infer that slums are by

and large excluded from the prevailing formal planning processes.

5.8.2 Other Laws, Agencies and Schemes for Slum Rehabilitation and

Improvement in Mysore

Apart from the KSCB and MCC, the following agencies of the

Government of Karnataka also play a significant role in slum housing and

basic infrastructure. They are:

- Mysore Urban Development Authority (MUDA) is responsible for

construction of houses for Economically Weaker Sections (EWS) under

“Ashamandira” housing scheme (MUDA 1996).

- Karnataka Housing Board (KHB) and the Rajiv Gandhi Housing

Development Corporation for construction of EWS houses under

“Ashraya” housing scheme.

- Chamundeshwari Electricity Supply Company for household electricity

and street lighting

- Department of Primary Education for schools.

- Department of Health for primary health care centers.

- Department of Women and Child Welfare for “Anganwaadis” (day care

centers) and nutritional programmes for children in slums.

- Department of Social Welfare for vocational and skill training.

5.8.3 Slum Improvement Cess

The Government of Karnataka introduced Slum Improvement Cess (SIC)

in 1996 to be collected by development authorities and municipal bodies at

the time of approving building plans, commercial complexes and group

housing schemes as a revenue generation measure for slum rehabilitation.

Accordingly, a Slum Development Fund has been set up in Mysore in the form

of joint bank account operated by MCC, MUDA and the KSCB to which both


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MUDA and MCC are mandated to transfer 70% of the SIC collected on an

annual basis. The KSCB is authorized to utilize these funds for slum

redevelopment projects in Mysore. Both the MUDA and the MCC are allowed to

utilize the remaining 30% for administrative expenses as well as towards slum

improvement activities on their own (Government of Karnataka notification

no.UDD:812: MIB: 95 dated 8.07.96).

5.8.4 Slum Improvement Arena: A Multi Institutional and Schematic

Terrain

As is evident, the slum improvement and rehabilitation in Mysore lacks

an integrated approach driven by a multitude of institutions and schemes with

out appropriate mechanisms for interagency coordination. More than fourteen

agencies or line departments are involved in slum improvement and

rehabilitation either directly or indirectly such as MCC, KSCB, MUDA,

CHESCOM, DC’s Office, KHB, RGHDC, State Government Ministries and the

departments of housing, urban development, revenue, education, health,

women & child welfare, social welfare etc. Each one of them is entrusted With

the task of implementing one or the other scheme. The problem of

institutional multiplicity is not limited to the state alone. The numerous civil

society organizations, caste-based identity groups, local community groups,

and public charitable organizations etc. active in slums have rendered the

slum improvement arena into a complex terrain.

5.8.5 Civil Society Associations and Slum Rehabilitation in Mysore

From the database of civil society associations generated during the

exploratory phase of field research and based on the findings of the collective

empowerment survey, one external and professionally managed civil society

association and two of its affiliates that are community based federated

associations were identified and selected as the case study associations. The

term ‘external’ in this context means organizations which are not founded on

community membership. They may be voluntary or externally funded with

fulltime paid staff etc. The Rural Literacy and Health Programme Doctoral

Dissertation: Manjunath Sadashiva (October 2004 to February 2008) Faculty of

Spatial Planning, Technical University of Dortmund, Germany 150 (RLHP), an

external association and the Mysore Slum Dwellers Federation (MSDF) and


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Dhwani Mahila Okkoota (DMO, a federation of women’s groups in slums of

Mysore), both founded by RLHP Were chosen as the case study associations to

study the nature of the institutional effects they induce on inclusive

governance for the slum dwellers in Mysore.

5.8.6 Rationale for Selection of Case Study Associations

There are several external civil society associations intervening and

operating in the slums of Mysore. RLHP elicited the highest recall rate (25%)

during the exploratory phase of the field research for all associations working

with the urban poor. Amongst all the associations documented during the

exploratory phase, RLHP emerged as the only association which appeared to

have adopted an integrated and holistic approach to slum improvement and

rehabilitation not only in Mysore but also in the two neighboring districts

(Section Seven). RLHP is currently working in 56 slums across three districts

with 34 slums in Mysore city alone. RLHP is also active in the policy arena and

acts as an interface between the state institutions and the slum communities.

RLHP was instrumental in the creation of MSDF as a federation of community-

based associational representatives from various slums to function as a

sustainable grassroots people’s institution and as a legitimate voice of the

communities. Similarly DMO was also created by RLHP as a forum of

representatives of women’s groups in slums. RLHP, MSDF and DMO will

henceforth be referred to as the “RLHP Combine” One of the most compelling

reasons for selecting the RLHP Combine for empirical analysis is provided by

the findings of the collective empowerment survey in which the community

members across the fourteen sampled slums intervened by RLHP attained

significantly higher empowerment scores than four other associations working

with the urban poor including slum dwellers

Associations such as GUARD, Pratham and ODP are focused on

providing specific services in the areas of education, health services, savings

and micro-credit etc. The Karnataka Kolache Nivasigala Samyuktha Sanghatane

(KKNSS), a state level federation of slum dwellers headquartered in Bangalore,

the state capital, is also active in several slums of Mysore, though its presence

is rather scattered and its approach, less holistic than the RLHP combine. The


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caste-based identity associations like Dalit Sangarsh Samithi (DSS), Akhila

Bharatha Jana Jagruthi Maha Sabha (AJMS) etc. are

Involved in mobilizing the members of the Scheduled Castes on a range

of issues and are also known to have significant impact on community life in

slums. However, declaration and rehabilitation of slums is of marginal

importance in their activities. Husband-wife duo, qualified as a sociologist and

a nurse respectively, with the support of a few Italian Catholic nuns who were

already involved in social welfare activities for the poor in Mysore district.

Before their relocation to Mysore, the couple had work experience in a slum in

Mumbai called Dharavi, known as the largest slum in Asia. With the husband

currently involved as a member of the Governing Council and the wife as the

Director, the Couple continues to be RLHP’s prime moving force. Though RLHP

had commenced work in Jyothinagar slum as early as 1982, it was formally

registered as a Society only in 1984 and is known to be the first ever external

civil society association to have intervened in Mysore’s slums Currently RLHP

has a team of 40 staff, both part and full time and works in 56 slums spread

across three districts of Karnataka namely Mysore, Mandya and

Chamarajanagar. From amongst the three senior most staff, one works as the

Assistant Director and the other two as Programme Coordinators of various

projects and as supervisors of field-level coordinators n charge of activities in

various slums. The three senior staff and the Director together constitute the

Core Group for day-to-day decision

5.8.7 Mission and Focus Areas of RLHP

RLHP’s stated mission is, “to bring about positive changes in the lives of

poor people in slums, especially women and children and help them lead their

lives with dignity”. The present focus is on four areas: people’s development

through building people’s associations; child rights and child protection;

women’s empowerment through women’s groups and self help groups for

savings and micro-credit; and community health (RLHP 2002).

Over the years, the scope of RLHP’s intervention has expanded from a

single slum in 1984 to 14 slums in 1989, 24 slums by 1992, 30 slums by 1996,

46 slums by 1999 and 56 slums as on date. The transformation of Jyothinagar

slum (the first slum RLHP intervened) into a healthy and vibrant neighborhood


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spread the word around and attracted other slums to their fold RLHP

strategies towards empowerment and holistic development RLHP has an

integrated approach to slum redevelopment that encompasses a focus on all

aspects of a community life starting with declaration of slums and provision

of basic amenities such as housing, water supply, street lights, underground

drainage, sanitation, electricity, schools, community halls, community health,

socio–economic empowerment of women, vocational training for youth and

women, eradication of child labor, domestic violence, alcoholism etc. RLHP’s

main strategy is to help the community help themselves. The emphasis is on

capacity building of communities through training of community leaders on

effective leadership, human rights, gender issues, environmental awareness,

awareness of government schemes and projects. Their approach to non-formal

education has won accolades from various quarters. RLHP encourages the

community to fight for their rights and entitlements by facilitating a dialogue

between the service providers and the communities, thus empowering them in

the process. Confrontation as a strategy is selectively used to open the doors

for negotiation. By and large, RLHP acts as a facilitator to stimulate the

communities to help themselves except in rare, distressful situations caused

by natural calamities or accidents; it also becomes a service provider (RLHP

2002 and 2004). Facilitating people’s associations and federations: A collective

voice In its endeavor of empowering people, RLHP has adopted an

associational approach to the development of communities by facilitating

creation of people’s organizations and their federations through which to

negotiate, bargain and advocate inclusion of the urban poor in the formal

planning and service delivery structures and processes. Apart from facilitating

formation of community development associations, women’s associations,

youth associations and women’s self help groups in slums, RLHP also fostered

formation of federations of these associations. The Mysore Slum Dwellers

Federation (MSDF) was formed in 1991 initially with 13 community

development associations each representing a slum. Dhwani (Voice) Mahila

Okkoota (DMO), a federation of women’s associations was established in 1993.

Kirana, a federation of women’s self help groups for savings and micro-credit

was created in 1995. These federations have lent a collective voice to the

problems and issues of slum dwellers. All the federations are formally


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registered and membership based organizations with a Board of Directors

elected from amongst members annually or once in two years. None of the

federations have paid full time employees. Of particular importance is MSDF

which is far more actively involved in mobilizing various communities in the

process of declaring slums and gaining access to government schemes and

projects (RLHP 2004).

5.8.8 Mysore Slum Dwellers Federation

The membership of Mysore Slum Dwellers Federation (MSDF) is

currently estimated to be around 40,000 and the General Body comprises of

members of various local community development associations working in

slums as well as those from the two women’s federations. Beginning with 13

associations, MSDF has gradually widened its membership base to more than

50 slums. Elections are held either annually or once in two years to elect the

office bearers like president, working president, treasurer, secretary etc. The

governing council comprises of 20 to 25 members. Though the governing

council has traditionally been male heavy, women’s representation on the

Council has gradually increased from none in 1991 to seven in 2003. The

financial needs are met with membership fee which is supplemented through

periodical contributions by RLHP. Book keeping and financial audits are fairly

regular which are presented to the Annual General Body for approval (MSDF

2004; FGD with MSDF leaders 24.01.07). Community mobilization, protests,

demonstrations and conventions: Actions in the public sphere MSDF has used

protests and demonstration as an effective strategy in attaining its objectives.

With the support of RLHP, the MSDF, in tandem with DMO has been

instrumental in mobilizing the Communities in slums through the local

associations and women’s groups to not only help them organize themselves

but also to participate in protests and demonstrations from time to time. Ever

since its inception, the RLHP Combine have organized seven city level and

several community level protests and demonstrations against arrack (cheap

liquor) shops, domestic violence, child abuse, police atrocities, evictions, lack

of basic services etc. MSDF has also supported protests by local associations at

the slum level. Two large conventions were organized in 1993 and 2004

respectively which saw participation of more than 5000 slum dwellers each

time. These conventions and protests have helped MSDF gain identity in the


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public sphere and strengthen its mass base in individual slums. MSDF has

intervened in the process of slum declaration on several occasions and helping

local associations’ to gain access to government schemes for slum

improvement through mass contact programmes with officials.

5.8.9 Dhwani Mahila Okkoota

Like MSDF, Dhwani Mahila Okkoota (DMO) is a federation of local

women’s associations in the slums and has emerged as a strong forum

fighting for women’s issues. DMO is formally registered as a society with an

elected governing council and rotating frontline leadership with more than

10000 members from 56 slums across three districts. DMO has played an

active role in resolving family disputes, restoring women’s rights and

complimented MSDF’s efforts in securing access to basic amenities and

services and education of children. In some slums, the member associations of

DMO have been instrumental in fostering solidarity and stimulating the male

leaders to form community development associations. While the caste factors

have not yet assumed divisive proportions, the political orientation of DMO is

largely influenced by that of MSDF. DMO leaders who represent various slums

exuded more confidence than their MSDF counterparts about achieving self

reliance for sustaining their struggles.

5.8.10 Chronology of Developmental Events: Role of the Community

Development Association

1990: With the support of RLHP, the Vasanthnagar Community Development

Association was formed as a registered society with twelve Executive

Committee members representing the various religious and caste groups.

Every family by default is considered as a member of the development

association. The current membership fee is Rs.2/- per month. As expressed by

one of the leaders, the proportional representation of different ethnic groups

in the Executive Committee “helps prevent multiple nodes of leadership and

acts as a safeguard against inter-caste/religious conflicts” (Interview 27.01.07:

Executive Committee Member MSDF).

1991: The Vasanthnagar Community Development Association became

affiliated to MSDF as one of the founding members. During the same year, the


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works for chip carpeting of the roads and construction of ‘L’ shaped box type

storm water drain were taken up.

1992: Shakthi Mahila Sangha, the women’s association was formed initially to

oversee community awareness activities with regard maternal and child

health. Subsequently the women’s association has become an integral part of

all other development activities in the slum.

1993: The women’ association became affiliated to Dhwani Mahila Okkoota, a

federation of women’s associations created by RLHP. Streetlights were

installed followed by provision of electricity connections to households and

construction of the underground drainage system.

1994: Due to sustained petition by the Community Development Association,

the Mysore City Transport Service created a new transport route number 52

and commenced plying of buses on this route thus providing public transport

connectivity to the residents of Vasanthnagar.

1995: The Community Development Association succeeded in getting a

primary school for the slum and also availed funds from the Mysore City

Corporation for construction of individual household toilets for the 65

families belonging to the Scheduled Caste under the 18% grant for the welfare

of Scheduled Castes.

1997: A new slum consisting of 18 huts put up by families who were relatives

(extended families) of the Vasanthnagar community members made its

appearance on the vacant land next to the Vasanthnagar. The new slum which

was believed to have enjoyed the support of some leaders of the Vasanthnagar

slum grew in time to host 97 families by 2004. The creation of a new slum is

understood to have created a rift amongst the senior leaders of the

association.

1998-2000: A community hall was constructed for holding community

meetings and other public functions. Paving of streets and construction of

individual household toilets for the remaining 110 families were taken up and


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completed under the KUIDP funded by the ADB. During this period three

women’s self help groups were formed for savings and micro credit which

became affiliated to Kirana a federation of women’s self help groups

promoted by RLHP. Also an Urdu (medium) Primary School was constructed

for children of religious minority groups.

2001: The individual households were provided piped water supply. A

neighborhood Citizen-Police Committee was formed to prevent unwarranted

harassment of the community members by the police officials.

2004: The new slum was demolished by MUDA since it was an encroachment

upon the land allotted for a private housing lay out and the process of

resettlement of slum dwellers is currently underway.

2006-07: During the by-elections to the Chamundeshwari Assembly

constituency of which Vasanthnagar is a part of, there were rumors and

allegations against some senior leaders of indulging in discriminatory

practices with regard to the distribution of money collected from the political

parties as incentives to vote in their favor. This is believed to have triggered

off a rift between the senior and some of the youth leaders in the community.

5.8.11 EWS Housing and Infrastructure Development in Corporation

The Jawaharlal Nehru National Urban Renewal Mission (JNNURM) is an

ambitious programme launched by Ministry of Urban Development

Department. as per the direction of Government of India (GOI) to bring about

improvement in the existing urban service levels and Slum upgrdation in a

financially sustainable manner. The primary objective is to take up

environmental improvement, clearance and redevelopment of slums and

enable the slum dwellers to live in hygienic condition by providing basic

amenities, such as drinking water, street lights, roads, drains, community

bathroom, storm water drain and community halls wherever possible.


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NEED OF THE PROJECT:

Mysore, being the heritage epitome of the Southern Karnataka,

landscapes through rich profiles of urban infrastructure and its growth

together with fringes of backward area / revenue pockets in its belt. The ever

increasing number of dwellers in backward and revenue areas has caused

tremendous pressure on urban basic services and infrastructure.

Under the JNNURM, Karnataka Slum Clearance Board has taken up

rehabilitation of 63 Declared slums in the city. In the present scheme, 62 slum

areas have been identified for providing housing and infrastructure services.

These backward areas are scattered throughout the city of Mysore.

The houses in these areas are mainly pukka houses having thatched,

tiled or asbestos sheet roofing. The roads in these areas are mainly mud road

or metalled road with bitumen toppings. There are no proper road side

drains. The present condition of the houses and roads are annexed in the form

of photographs. As the apex body at the City level for development of housing

and infrastructure, Mysore City Corporation has the primary objective of

enabling its citizens to live in hygienic conditions through providing of basic

amenities. The vision of MCC is to provide shelter and basic amenities to all

people living in the city and strive for a society having shelter in the coming

years. However, the development of backward and revenue pockets have not

improved much on the constraints of internal revenue of the Municipal

Corporation. Although an approximate 20% of the budget is approved and

expenditure done using the internal accruals of Corporation, the speed of

providing infrastructure facilities in the backward areas is not upto the

benchmark. In the background of this, there is an urgent need to fulfil the

housing and infrastructure requirements in these backward areas.

Under the Structural reforms of the Municipal Corporation, nine zonal

offices have been set up within the ambit of the limits of Municipal

Corporation. The backward areas fall within the jurisdictional limits of the

nine zonal offices. Following details presents the backward areas in the

Mysore city.


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MAP- 5.1: Upgrdation Programmes of Slums in Mysore City


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Table-5.20: Zonal wise Upgrdation of Slums by JNNURM Project


292

5.8.12 Social Status of the Backward Areas

The urban poor living in the heart of the backward areas and its

peripherals have living standards far below the standards. Socio-economic

survey was conducted on 5490 households in the limits of the zones of MCC.

Socia-economic survey of households including the occupations or livelihood

profile of beneficiaries essential for inclusion was conducted during December

2008 and January 2009. The socio-economic survey on the households

included the following criteria.

a) Caste details

b) Income details

c) Employment details

d) Literacy details

e) Ownership of house details

Following parameters were accounted in the identification of the beneficiary’s.

a) Physical Indicators

1) Quality of houses whether RCC structured, AC sheet one with

dilapidated condition or thatched roof houses.

2) Lack of insufficient living areas / spaces

3) Access to sanitation facilities such as open air, street drain, public toilet

4) Access to water supply such as individual piped network, stand post,

hand pump, well and others.

5) Availability of street lighting.

b) Economic Indicators

1) Income levels / categories of the households

2) Security of tenure

3) House ownership as to whether own house, rented /leased

c) Social Indicators

1) Literacy level

2) Socially advantaged as to belonging to BPL / APL, SC /ST/OBC/Others


293

With the physical, economic and social parameters, out of the surveyed

5490 households, 4305 households were identified for housing requirements.

The balance of 1185 households were left off on the criteria of having Pacca

houses in the form of RCC structure, access to sanitation facilities, access to

piped water supply and having higher income.

The Mysore city corporation has been administratively divided into nine

zones. Revenue pockets and backward areas are existing in all the nine zones.

The scale of priority for selection of backward areas for providing

infrastructure was predominately due to the need of housing for people of

below poverty level and lack of basic infrastructure. Scio-economic survey has

been carried out on all the nine zones of Mysore City Corporation. A total of

5490 houses have been surveyed in which 4305 have been listed as the

beneficiary’s for housing. The balance of 1185 houses is of RCC structure.

These structures are sound with light and ventilation. The present detailed

project report confines to providing houses to Identified beneficiary’s and

providing infrastructure facilities in the form of bituminous roads and surface

drainage in zones of utter requirements.

The other infrastructure requirements in the form of piped water

supply, underground drainage network, storm water drainage, solid waste

management have not been included in this project as these infrastructure’s

are being undertaken in the city through the projects approved and being

under approval by Government of India under the sub-mission Urban

Infrastructure and Governance of the Jawaharlal Nehru National Urban

Renewal Mission.

Table-5.21: Caste wise details of Beneficiaries


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PROPOSED SCHEME

The plan is to build houses typically single floor configurations in this

area and resettle the beneficiary’s in these houses. Each will have a bedroom,

living room, and kitchen, bath room and toilet. These houses will have all the

basic amenities required for comfortable living. The list of surveyed people

who do not own land have not been considered as beneficiary’s in this project.

They will be suitably considered for housing in the in-house schemes of

Mysore City Corporation such as Ashraya yojana and also through the EWS

houses for applicants from the Mysore Urban Development Authority.

The infrastructure generally considers the requirements of providing

bituminous road surface with proper road side drainage system. The water

supply and underground drainage system shall be connected with the nearest

service connections. Cross drainage works have been proposed on each cross

roads for proper drainage network. The infrastructure works such as water

supply, storm water drainage, and solid waste management have not been

considered as these have already been approved for improvement under the

JNNURM further, detailed project report in respect of missing links of

sewerage network for Mysore city has been submitted to Government of India

for approval under JNNURM. As approval from Mission directorate is awaited,

the project of Underground drainage system has not been considered for

inclusion under this project.

The socio-economic survey carried out reveals the following


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Chart- 5.4: Castewise Detials for Indivdual Zones

Chart-5.5: Income wise Details of Individual zones


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Chart-5.6: Employment Details for Each Zone


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Chart-5.7: Literacy Details for every Zone

In this project the basic infrastructure facilities such as bituminous

roads and surface drains on both sides has been proposed. The revenue

pockets/backward areas of the zones of Mysore City Corporation are

predominantly void of infrastructure facilities. However, as development

work has been taken by Mysore City Corporation in providing infrastructure

facilities in few of the pockets of revenue/ backward areas, those areas with

very few infrastructure facilities have been proposed for bituminous surface

roads as well as for surface drainage network together with cross drainage

network for effective drainage of rainwater. Further, as community buildings,

livelihood buildings, shri shakthi buildings, hospitals, anganwadi, schools are

existing in the proposed backward areas for infrastructure, social

infrastructure components have not been proposed. Unit facilities like school,

health center, anganwadi, community center and shri shakthi bhavan etc are

existing in nearest place from the individual houses would be utilized by the

beneficiaries.. Distribution of water shall be made to all individual houses

through pipelines. Internal water supply system shall be provided. The

sewerage drain will join to a main drain from where it will be carried to


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underground drainage system of the city and metering will be the

responsibility of local electricity Distribution Company after the beneficiary

has paid appropriate connection charges, deposits etc. The flats however will

have internal wiring from the proposed metering cubical to every room and

will also have a few power points for TV. The existing roads will be improved

to bituminous roads. Roads will be of 4 to 6 meters width and these will lead

to a main road.

5.8.13 Initiatives taken by Various Agencies

The main objective of Government is to take effective steps in meeting

the minimum needs of housing, water supply, underground drainage, health

care besides maintaining peace and security in the community.

For the identification and improvement of the lives of people in urban

areas and to tackle urban poverty related issues in general, various agencies

and institutions have been working together with the Government of

Karnataka. Mention may be made of Department of Town and Country

Planning, Urban Development Department, Urban Local Bodies in the state,

Asian Development Bank, Rural Literacy Health Programme and Karnataka

Slum clearance Board.

Department of Town and Country Planning The Karnataka Town and

Country Planning Act was passed in the year 1961.The head office of the

Department of Town and Country Planning is at state capital with offices at

divisional head quarters.

The main objective of the Department of Town and Country planning is

to prepare “Master Plan’ for cities of the state aiming at the planned

development and extension of cities providing clean environment in the

residential areas

MYSORE URBAN DEVELOPMENT AURTHORITY

The Mysore City Improvement Trust Board Act was enacted in 1903,

which was first of its kind in the country. The extensions formed by it were

vontikopal,Jayalakhmipuram, Yadavagiri, Saraswathipuram, Vidyaranyapuram,

jayanagar, N R Colony, etc.


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The Town and Country Planning Act, 1961was enacted to provide for

regulation of planned growth of land use, development, for the making and

execution of Town Planning Schemes and the Act came in to force from 15-01-

1965. The State Government declared the Mysore Local Planning Area On 30-

04-1966 in accordance with Section 4(A) of the Act for an area of 233 Square

Kilometers, comprising of Mysore City Municipal area, and 13 villages of

Srirangapatna Taluk and 43 villages of Mysore Taluk.

The Government of Karnataka established the Urban Development

Authorities for the planned development of major and important urban areas

in the State and the area adjacent thereto and to matters connected therewith

under the Karnataka Urban Development Authorities Act 1987. As per the said

Act, the City Improvement Trust Board (C. I. T. B), Mysore and Local Planning

Authority of Mysore was amalgamated and the present Mysore Urban

Development Authority came into existence. The Mysore Urban Development

Authority (MUDA) was constituted on 16th May 1988.

As per the KUDA Act 1987, the Commissioner of the Authority is the

Chief Administrator and Chief Executive of the authority. The Chairman heads

the authority. He can call the meeting of the authority and put policy issues

before the authority for decision.

The authority has formed many layouts and distributed nearly 35,000

sites and 10,000 houses after it came into existence. Also it has handed over

the developed layouts to Mysore City Corporation for further maintenance.

Vijayanagara Layout Ist, IInd, IIIrd and IVth Stage, formed by the Authority, is

the biggest layout in South Asia, covering an area of nearly 2000 acres having

25,000 sites.

HOUSING STATUS

The Problem of housing in Mysore city is not as acute as in other fast

growing cities. Mysore city, being the former capital of the State, has better

planned extensions and better housing conditions compared to any other city

where congestion, mixed land uses and unorderly developments are observed.

The old city area has the maximum concentration of population namely

parts of residential areas of Mandi Mohalla and Lashkar Mohalla between


300

Bangalore Nilgiri Road and Sayyaji Rao Road. Some areas between Albert

Victor Road and Pulikeshi Road and the areas between Chamundeswari Road

and Basaveswara Road are having a very high density of population up to 500

persons per hectare.

In general, between the high-density areas and normal density areas,

viz., some parts of Mandi Mohalla, Lashkar Mohalla and Krishnaraja Mohalla

areas, which can be considered as the core area of the city, do not have a very

high density. In fact, the density seems to vary according to the distance from

the central area and also the prevailing land value. The existing public use

areas such as, palace, hospitals, educational institutions etc. have also played

key part in the determination of the density pattern. Thus, in extension areas

like Sarswathipuram, Kuvempunagar, Kesare, Ittigegudu, Jayalakshmipuram,

Kirshnamurhtypuram, Rajendranagar the density is between 125 persons per

hectare to 250 persons per hectare. In areas like Gokulam, Yadavagiri,

Nachanahalli, the density is between 100-125 persons per hectare. The new

extensions such as Vijaynagara, Devanur, Sathagalli, Alanahally,

Kyathamaranahally, Sri Rampura, Dattagalli, Bogadi, Hebbal,

Chikkaradanahally layouts have very low density.

The agencies involved in building housing stock are Mysore Urban

Development Authority, Karnataka Housing Board, Karnataka Slum Clearance

Board, Private Co-operative Housing Building Societies and Private Developers

etc.

An attempt has been made to estimate the shortage and demand for

house in Mysore city. For calculation purposes an average of 5 persons per

family has been assumed. The number of houses required by 2011 Ad is 2.8

Lakhs for an expected total population of 14, 00,000.

The number of houses of stock as per 1981 Census is 79000. Assuming

the construction of 2000 houses per year from 1981 to 1991, the number of

houses that would have been constructed are 20000. Thus, the number of

houses on stock is equal to 99000 say 1.00 lakh. This means another 1.8 lakh

houses are required by 2011 AD. Hence, sufficient irrigation land and planning

should be undertaken to career to the rising demand.


301

The agencies involved in building housing stock are Mysore Urban

Development Authority, Karnataka Housing Board, Karnataka Slum clearance

Board, Private Co-operative Housing Building Societies and Private Developers

etc.

During 1987-89, the city Improvement Trust Board/Mysore Urban

Development Authority has constructed 9210 houses under HUDCO

assistance as noted below.

1. Mahadevapura Layout 419

2. Gangothri 523

3. Jayanagar T Koppal I stage 504

4. Jayanagar T Koppal II stage 807

Total 2304

These houses have been handed over to the identified beneficiaries.

2. The Mysore Urban Development Authority has constructed 107 EWS houses,

64 LIG houses and 21 MIG houses at Bade Makan for physically Handicapped

people under HUDCO Scheme. The houses have been handed over.

3. Apart from the above, the Mysore Urban Development Authority has taken

up the construction of 6714 houses under ‘ASHRAMANDIRA’ scheme:

NAME EWS LIG MIG HIG TOTAL

Bogadhi 180 1191 710 325 2406

Devanur 271 463 231 88 1054

Hebbal 477 867 383 116 1843

Kyathamaranahalli 424 610 306 71 1411

Total 1353 3131 1630 600 6714

In addition to the above, the Mysore Urban Development Authority has

taken up schemes to construct houses under Bank aid under Self Financing

Schemes.

The Karnataka Housing Board has built 1000 houses for Beedi workers

and 500 houses under Composite Housing Scheme in Kyathamaranahally

which are occupied. The Karnataka Housing Board has taken up a huge

project of building 3000 houses in Hootagally.


302

The Slum Clearance Board has constructed houses in Bogadhi and

Satagally and Gokulam for rehabilitating the Slum Dwellers of the City.

In addition to these agencies/s Bharath Earth Mover Limited, M/s Rare

Material plants have completed the Industrial Housing Scheme for their

employees. The total of all these works out to nearly 6000 houses/sites.

All the above, works out to nearly 20000 houses which almost tallies

with the expected number of houses between 1981-91.

Thus, taking into account the above, provision has to be made to

another 1, 80,000 housing units by 2011 AD. Hence, housing programme will

have to be worked to ensure sufficient housing stock by 2011 AD.

After 1991, in addition to the number of houses constructed by Private

developers and individuals, the Mysore Urban Development Authority has

constructed houses under Own Your Housing Scheme and also distributed the

sites as follows:

a) Houses allotted under Own Your Housing Scheme:

During 1994 1762

During 1994 1774

Total 3534

b) Sites Allotted

During 1994 12528

Number of sites available for allotment. 8403

Total 20931

Total a+b = 24465

The Mysore Urban Development Authority has prepared 7 new schemes

as shown below which are already approved by the Government. The

acquisitions of lands for these schemes are under progress.


303

Extent No. of. Sites

1.Bogadi Layout III stage I Phase 372.06 3623

2.Bogadi Layout III Stage II Phase 299.40 3588

3.Bogadi Layout III Stage III Phase 371.75 2645

4.Nachanahally Layout III stage 208.00 3796

5.Rajivnagar III Stage 690.92 7758

6.Satagally Layout II stage 486.60 4929

7. Alanahally Layout II Stage 339.00 4098

Total 2766.73 30737

All these works out to 55202, say 55000 sites and houses. Therefore

the balance number of sites by 2011AD is 125000.For providing different size

plots, it requires another 5000 acres.

Hence, provisions are made to reserve areas at Koorgally, Kergally,

Madagally, Madgally, Ajjayanahundi, Lingambudi, Srirampura, and Kuppalur,

Nadanahally, Hanchya, Satagally, Kesare and Belavattha for residential

purposes in the revised Comprehensive Development to meet this demand.

SLUMS AND UNAUTHORISED CONSTRUCTIONS

There are 69 declared slums in Mysore City out of which 37 of them are

situated in Municipal Land, 16 are in Mysore Urban Development Authority

land, eleven slum are in Govt land and the remaining are in the private lands.

Under improvement scheme, the Karnataka Slum Clearance Board has

constructed 1390 tenaments for the benefit of the following 11 slums:

1. Medar’s Block

2. Ashokapuram

3. Raja Soap Factory

4. Doddakere Maidan

5. Govinidarao Memorial Hall

6. Jyothinagar


304

7. Viswesaranagar

8. Slum between Railway line and RMC premises

9. Chamundeswari Block

10. Janatha Saw Mill

11. Durgamba Temple

In addition to the slums, number of unauthorized constructions in

revenue land has come up on 29 pockets up to 1994. The names of

unauthorized layouts and number of houses existing thereon are as

follows.

Name of the Layout No of the House

1.Kanakagiri 334

2.Gunduraonagar (Muneswaranagar) 471

3. Vijayashreepura 534

4.Kumberakoppalu, Metagally, 1541

5.A J Block 364

6.Ghousianagar 1284

7.Kyathamarnahally 2621

8.Kurubarahally 14

9.Panchagavimath 109

10. Madhuvana 20

11.K.S.R.T.C Bus Stand 01

12.Nachanahally 81

13.Srirampura 209

14.Chinnagirikoppal 302

15.Dattagally 1530

16.Bogadi, Janathanagar 1416

17.Hinkal 27

18.Shadanahally 03


305

Name of the Layout No of the House

19.Siddalingapura 06

20.Belvantha, Kesere 247

21.Shanthinagar (Devanur) 1414

22.Rammanahally 04

23.Sathagally 01

24.Raghavendra Nagar 530

25.Yaraganahally 416

26.Alanahally 06

27.Kadakola 01

28.Veeranagere 638

29.Koorgally 05

Total 14129

BSUP SCHEME SANCTIONED

Sl. No

Project Name

CSMC Approval

date

Approved project cost

No of Sanctioned

D’ us

1 Rehabilitation of 20 slums- phase-I

11.10.06 67.58 2788

2 Rehabilitation of 46slums- phase-II

06.10.07 90.93 2500

3 Construction of houses and providing infrastructure works in slums phase-III

20.02.09 47.78 1040

4 EWS Housing & Infrastructure Development in Mysore Corporation

28.09.09 52.35 1806

TOTAL 258.64 813406


306

REHABILITATION OF SLUMS IN MYSORE CITY


307


308

61

SONIA GANDHI BADAVANE -

MYSORE

62

SONIA GANDHI BADAVANE -

MYSORE


309

67

KESARE USMANIYA BLOCK -

MYSORE

68

ROOPA NAGAR – MYSORE


310

69

ROOPA NAGAR – MYSORE

73

SIDDAPPAJI CROSS - MYSORE


311

74

SIDDAPPAJI CROSS - MYSORE

76

VANDEMATHARAM MYSORE


312

81

81

DBT PROJECTS - SATAGALLI, MYSORE

57


313

REFERENCES

Basu, Ashok Ranjan, 1988, Urban Squatter Housing in Third World, Mittal

Publications, Delhi

Cherunilam, Francis and Heggade, Odeyar D, 1987, Housing in India, Himalaya

Publishing House, Bombay

Desai, Vandana. 1995, Community Participation and Slum Housing- A Study of

Bombay, Sage, New Delhi

George Vernez, 1974, a Housing Services Policy for Low-Income Urban Families

In Underdeveloped Countries, Rand Corporation, California

Michael Dewit and Hans Schenk, 1989, Shelter for the Poor in India: Issues in

Low Cost Housing, Manohar Publications, New Delhi

Mukhija, Vinit, 2003, Squatters as Developers?, Ashgate Publishing Ltd,

Hampshire

Muttalib, M A and Khan, Dr. Mohd Ali, 1986, Public Housing, Regional Centre

for Urban and Environmental Studies, Hyderabad

R N Morris and John Mogey, 1968, the Sociology of Housing: Studies at

Berinsfield, Routledge and Kegan Paul, London

Sivaramakrishnan K C; Kundu, Amitabh and Singh, B N, 2007, Oxford

Handbook of Urbanization in India- Second Edition, Oxford University

Press, New Delhi

Stokes and Charles, 1962 (quoting Basu), A theory of Slums, Land Economics,

Vol.38

Sudha Mahalingam, 1998, the False Ceiling, Frontline, Vol. 15, No. 16, Aug 1-14

Swapna Banerjee-Guha, Neoliberalising the ‘Urban’: New Geographies of Power

and Injustice in Indian Cities, Economic and Political Weekly, May 30-

June 5, 2009

Swati Ramanathan, 2007, Ground Rules: Challenges to the Implementation of

Security of Land Title in Urban India, Urban Space Foundation,

Bangalore

UN Habitat, 2003, the Challenge of Slums, United Nations Human Settlement

Program

UN Habitat, 2006, State of the World’s Cities 2006/7, United Nations Human

Settlements Program

Wakely, Schmitzer and Mumtaz, 1976, Urban Housing Strategies- Education

and Realisation, Pitman Publishing Ltd, London.


314

DOCUMENTS:

AVAS, 2003, Report on Wahab Garden, procured from Housing and Urban Development Corporation, Bangalore

Census 2001, Slum Census, Vol.I, Office of the Registrar General and Census Commissioner, procured from IIM Bangalore library

DPAL, 1961, Karnataka Town and Country Planning Act, Department of Policies and Legislations, Govt. of Karnataka, available at dpal.kar.nic.in

DPAL, 1963, Karnataka Housing Board Act, Department of Policies and Legislations, Govt. of Karnataka, available at dpal.kar.nic.in

Data from Indiastat (www.indiastat.com)

UDCO, 2009, Scheme No. 17444 and 17445, procured from Housing and Urban Development Corporation, Bangalore

Karnataka Human Development Report, 2005, Planning and Statistics Dept, Government of Karnataka, procured from IIM Bangalore library

Labournet, 2004, “Labournet- a study”, available at www.labournet.in

NUHHP (National Urban Housing and Habitat Policy), 2005, Ministry of Housing and Urban Poverty Alleviation, available at mhupa.gov.in

NUHHP (National Urban Housing and Habitat Policy), 2007, Ministry of Housing and Urban Poverty Alleviation, available at mhupa.gov.in

STEM, 2005, Infrastructure Development and Investment Plan for Bangalore: 2006-30, procured from MINDS library, Bangalore