Category Archives: Urban Planning & Policy
This past weekend, I returned after a three week long international trip to the worst smog Delhi has faced in 17 years. Yes, it was bad. My nostrils felt the stench immediately and my eyes watered. My daughter wore a mask to go out and play. Non-stop media reports and social media feeds placed immense pressure on the government to act, forcing stop gap measures like shutting down schools, construction sites and power plants.
Three days later, the winds are blowing and the air is already clearing up. Believe it or not, the smog is beginning to fade from Delhi’s memory. New, more exciting stories will be out. This will soon be old news. Till the next time!
Mismatched! Short-term memory and long-term solutions
My friend Amit aptly calls the interest in smog “seasonal” in his succinct piece today. He also focuses on the need to address the problems of air pollution with long-term measures. This is the dominant line of thinking in the community of urban professionals I interact with. It is not with glee, but with extreme sadness that we want to wag the finger and say “I told you,so!” to Delhi’s residents and policymakers. Because public imagination is, for the moment, captured by the problem of pollution, we see the opportunity to hammer home the harsh reality. And also offer, once again, the solutions that we have been talking about for years.
The truth is that there are no magic bullets. Combating pollution and ensuring air quality needs a multi-pronged and long-term approach. Because the source of pollution are so many, including automobile emissions, waste burning, construction dust, industry and cooking (see this excellent piece by Dr. Sarath Guttikunda for a deeper understanding), several strategies need to be deployed at the same time. Because cities are ever-expanding creatures in these times, the magnitude of these problems will also keep growing, so solutions will have to be planned for the present and in anticipation of the future. Most of the solutions likely to yield results involve difficult decisions on the part of the government, but also substantial changes in behaviour on part of citizens. This change can be triggered by alarm, nurtured by a sustained awareness campaign and sustained by incentives. For example, investments in public transport and good pavements need to be accompanied by measures to discourage private car usage, like higher parking charges or congestion pricing (Another piece by Dr. Sarath lists a set of solutions in this vein).
Professionals have been talking about these measures for years, but only sustained pressure from citizen groups can result in these kind of changes. To do so, we will have to transform our short-term memory to a real awareness of the problems at hand.
A matter of survival: Reducing consumption, community action, sustained pressure are small steps towards long-term change
This is hard to do, primarily because of the extremely confused (and shrill) discourse we have had around this issue. We’ve quibbled and played blame games about who caused the problem and we’ve pointed fingers at who should be accountable for it. In all of that, we have forgotten that year-round pollution levels in Delhi are high; so anything seasonal like fire crackers and stubble burning tips the balance and the situation spirals out of control.
Like many commentators have already pointed out, high levels of pollution should be a cause of long-term concern. The harsh impact of air pollution on human health, including premature births and deaths, is being recognized widely and especially in Africa and Asia, where the majority of urban growth is taking place (see recent report on African situation). It is not about apportioning blame, but about understanding the seriousness of the problem and finding solutions.
There is a lot we can do at an individual level. We can consume less so that we waste less and dispose waste in a responsible way; we can walk, cycle, car pool or use public transport wherever possible; we can prevent the burning of dry waste in our neighbourhood; we can bring down dust by planting more trees and bushes, using permeable surfaces for parking and driveways, and storing construction material properly. At a community level, we can do all of this and more! Garbage segregation and composting is an obvious example. So is discouraging of car use to walk to bus stops and local shops by creating walking infrastructure & community help groups to help children and elders cross roads etc. Efforts at a larger scale are also a great idea. Some of my friends have been running Facebook groups on air quality where information on problems and solutions are shared. All of these measures not only help us but also make it possible to influence the direction of government policy and public investment.
This is not a problem that is going away, folks! And it is not someone else’s problem either! It must mean something that the words ‘disaster’ and ‘resilience’ featured in nearly all of the conversations I had at the United Nations Habitat III conference I attended a few weeks ago. There is a tangible sense now that the significant economic benefits of urbanisation are coming to us at a terrible price and that humans are responsible for much of the damage. Reversing the course of climate change and protecting ourselves from disaster (including episodes like the Delhi Smog) is possible only if we all take responsibility. And make governments heed our concerns! It is a matter of survival.
It would be remiss of me to not thank my friends and family for fueling my thoughts and pointing me to several credible sources while writing this piece. Thank you, you know who you are!
There are moments during fieldwork when you feel like a voyeur, part guilty and part fascinated by intimate details revealed before you. That’s how I felt in Tangtou, where we unexpectedly found an entire block of vacant homes that had been locked up in 2008 unlocked and available to us for exploration.
Built as resettlement housing for villagers displaced by a water reservoir project in the late ’50s and subsequently found to be unsafe in the ’90s, families were finally asked to vacate in 2008 (facts from Mary Ann’s post on Tangtou dated 23rd May 2016).
On the day that we visited, surveyors from the district administration were measuring the homes in preparation for redevelopment of the area. The homes stood open for us and I felt a bit like what an archaeologist might during an excavation. Time had stood still for these spaces that were once lived in and used. A beautifully painted facade. A child’s jacket, broken study table and English language alphabet chart. A kitchen slab where utensils had been left behind and a living room where posters were still on the wall and papers strewn across the floor. All these conjured up vivid images of how hurriedly families might have gathered their possessions when the eviction orders came in.
Our understanding of the redevelopment process in Shenzhen’s urban villages was to grow over the next few days, but that afternoon in Tangtou we began to grasp the rudiments. That residents were compensated basis the built-up space they had at the time of eviction. That these compensations could be several times the size of the originally occupied space and were usually hugely profitable for villagers but migrants, who lived as renters got nothing. In Tangtou that day though, where waste pickers sorted thermocol and plastic along its main spine even as we walked in and out of the homes, it was hard to visualize a swank apartment block going up where we stood.
It is hard not to make comparisons to slum redevelopment models in India, especially the SRA model and its various spin-offs, where the developer is permitted to use the redeveloped parcel of land to build for sale commercial apartments while taking the responsibility of rehabilitating eligible slum dwellers on site, in a prescribed ratio. The idea is to leverage the value of the land occupied by slums (illegally, as is often emphasized in government documentation while hardly ever bringing up the failure of the State to provide affordable housing ) to improve living conditions as well as create more housing stock.
Like in Shenzhen, cross-subsidy driven redevelopment schemes in India like the SRA impose eligibility criteria that leave out some residents, usually renters, though the proportion of the ineligible varies by location and may not be as high. Activists have often pointed out that these schemes sanitize the city, but accentuate inequalities by turning families onto the streets. As you can imagine, the cut-off date as well as the documentation that households have to produce for eligibility are hotly contested.
Second, while in-situ rehabilitation does not displace poor households, the replacement of low-rise housing with high-rise apartments has been traumatic for slum households in Indian cities, whose income sources are diverse, home-based occupations are common and for whom the street is the focal point for interaction. The scheme has provisions for community consultation, but the design of redevelopment housing has hardly taken community needs into account.
In Tangtou, the narrow and deep row houses had double height spaces that residents had configured the spaces creatively to meet their specific needs (apparently the width was counted by the number tiles in traditional homes, more the width the higher the family’s status, while depth remained standard). I wondered how residents would alter their lifestyle in their new standard issue apartments. Would they miss the flexibility their older homes offered them?
Through the week in Shenzhen, we discussed redevelopment several times, and the concern over the issue of rights and citizenship was expressed in many forms, not only by activists and planners but even by village residents. In this short trip, we weren’t able to get a first had sense of how migrants felt about being sidelined, but one expert we spoke to pointed out that the self-perception of migrants as outsiders was perhaps the biggest barrier to building a campaign for more inclusive redevelopment mechanisms. Another similarity with rapidly growing cities in India, where despite democracy and the Constitutional right to mobility, low-income rural migrants have little voice until they remain long enough in the city to become a vote bank, which is often a few decades.
I started bemoaning the condition of Indian museums very early in life. I may have been eight or nine when I found myself peering through a stained glass at an exquisite Ming vase at Hyderabad’s Salarjung Museum. I remember being horrified and declaring an immediate ambition to become a ‘museumologist’, a term I was offered in an attempt by my bemused parents to add some vocabulary to what was clearly an emotional moment! Of course, my attitude of despair must have its roots in what I sensed around me, chiefly mum’s constant critique of how poorly Indians appreciated their own cultural heritage.
Today, as a mother of two eternally curious children, I am a vehement museum goer. No matter how dowdy or dusty, we go to as many as we can, as often as is possible. Not only to museums where collections are formally housed but also to archaeological sites that I see as museums of a different kind. Sometimes there is some interpretation offered, other times we have to do our own reading and research, but it is always interesting. And yes, with children now better traveled and exposed to international standards of preservation and interpretation, the questions on the quality of Indian museums are sharper.
Interestingly, they come with less angst. I don’t think my kids see life from the lens of Indian nationalism nor do they have that same view of India as an under-resourced nation fighting for its place among the cultures of the world. Instead, they seem to take things for what they are. ‘They could be better, but if it isn’t here, we shall see something else somewhere else!’- that’s what their attitude seems to suggest. Simply put, being Indian does not seem to be the focal point of their identity. Being city-bred, educated, English-speaking, internet-savvy, politically aware- these attributes seem more pronounced, and so they fit in easily with children of friends from other nations and contexts who are from similar backgrounds.
A few of my SPA students have taken up museums an other sites of heritage interpretation as their final design thesis projects. We have had intense discussions; for instance- Whose heritage are we choosing to interpret? Are we commodifying heritage? Is commodification ok if we also benefit communities? And then deeper issues about the self-perception of communities about what is their cultural heritage. All of these discussions highlight the vast differences in how people, across cultures and generations, perceive their identities and how sensitivity to a wide range of identities is crucial to nearly everything we do as interventionists- whether as architects, engineers, social workers, policy makers, lawyers and what have you.
To come back to museums and specially the debate after the pathetic and tragic case of Delhi’s Natural History Museum, clearly much needs to change in how we manage our museums. Whether the fix is in devolving management or in bringing them all under a single umbrella, the fact is that museums and all sites of heritage interpretation must be given the utmost importance in our public culture. I’d vote for bringing a larger number of sites into public use for a variety of uses, of course with attention to safety and long-term preservation. The Purana Qila hosts a dance festival in Delhi, as do the Khajuraho and Konark Temples. The Lodi Gardens is a fantastic urban space where families picnic, couples embrace, theatre groups rehearse and fitness enthusiasts work out and the Nehru Park is known for music performances and food festivals, where kids in keds holding badminton rackets will sometimes tumble into a Bhakti music concert! Many other spaces that are now being considered obsolete, like Rewal’s Hall of Nations in Delhi, can be refurbished and used practically even as they serve as markers of our modern history. Instead, they are being demolished and petitions to save them seem to be currently unheeded.
There are similar sites across the country that offer a chance at cultural education through osmosis, that offer the freedom of expression and exploration, that are in themselves spaces of interpretation. These must be better integrated with the city fabric through transport, branding and the seeding of activities as and when appropriate. A strategy that works on improving the quality of museums as well as opening up the idea of cultural interpretation through the creative use of heritage-rich public spaces can achieve two important objectives. First, they will open culture out to a much larger number of people and in this, keeping spaces and events free and open to public is key. Second, the new and varied interpretations of culture born out of these new experiences will impact how young people view their identities; indeed, this will generate some much-needed thinking about the question of identity in our society. I can see this ruffling feathers too, but that’s part of the social churn and I believe the more space we give for this churning to happen, the better off we might be!
Homelessness is a concern in cities across the world, both in the more developed Global North and in the Global South, where poverty and inequality are of urgent concern. Yet, from my broad readings on the subject, the connection between homelessness and housing appears to be tenuous in the eyes of policymakers. And increasingly, in the modus operandi of NGOs as well.
Let me explain. While it appears rational that the response to the problem of homelessness must be an attempt to increase access and supply to affordable housing, responses to homelessness are nearly entirely focused on addressing its manifestations. Soup kitchens, temporary shelters, education and healthcare interventions, usually spearheaded by NGOs, are some examples.
The gap in housing policy has been bothering me for a while, but I was emboldened to write about it today after reading my friend Carlin’s piece that frames these concerns rather directly. She posits that India’s ability to provide shelter to the homeless will hugely contribute to the success of the much-feted Sustainable Development Goals (SDGs).
Her piece focuses on Court-directed pressure on Indian State governments to build homeless shelters. However, my sense as a housing expert is that there needs to be some thinking around other housing options for the urban poor. Unless there are housing mobility choices available for city dwellers, income notwithstanding, a discuss focused on the building and management of night shelters seems to be a piecemeal and unsustainable solution.
There are gaping holes in what we know about how the poor, homeless included, make housing choices. We know even less about what would their ideal choices be. Because of these gaps, good intentions often translate into poor policy.
Governments find it easy to promote supply-side interventions like homeless shelters or even rental housing, something that has appeared more aggressively on the agenda of late. The Government of India’s Ministry of Housing and Urban Poverty Alleviation recently brought out a Draft Urban Rental Housing Policy, which recognizes the homeless as a “vulnerable” group to which social rental housing supply should be directed. In Odisha, the State government is exploring the construction of rented accommodation for informal sector workers, particularly in construction.
More needs to be known about the demand side of the housing market. The choices and preferences of the urban poor must form as much a part of the housing strategies of Indian cities as those of middle- and high-income home renters and buyers (research on the latter is thin as well!). This is one of the essential first steps towards achieving a functional urban housing market.
So today the 5th of January, I got to work in my odd numbered car, and it took me 10-15′ or so less than usual. I have the privilege of working part time and flexi-time. So the ‘odd-even’ formula has not had me scrambling for solutions to commuting problems.
For those unfamiliar with the term that has become part of the our lexicon of late – Delhi recently achieved the distinction of the ‘most polluted city in the world’ and the State Government took a decision to implement a policy of ‘on the roads, only cars with odd no. plates on odd days and even on even days’ for the period of 1st to 15th January. They did this around 10th of December and in the 20 days to the New Year, build up was interesting (hmmm!!) and showed up the petty side of many players. While the print media…
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Photographs, paintings and pieces of writing are often the only evidence we have left, our tools to preserve memories of what a particular part of the city was in a rapidly changing cityscape. Who would be able to recall the dark and dinghy East Side of NYC if not for those who have worked hard to preserve those memories? And would we value where the city has come today if we did not that it rose on the back of somebody’s hard work so many years ago?
(Two Tenements, Down. New York, September 2015. Image by Greg Gordon)
Two Tenements, Down. A companion piece to our prior post, Two Tenements Standing, chronicles the demise of two stalwart buildings which stood guard over Grand Street for over a Century. Somehow, in the mess of the 50’s Urban Renewal destruction, they escaped the mass demolition of tenement complexes in the surrounding blocks and served as steady reminders of a New York, since passed.
Two Tenements Down will now be New York ghosts. For the inhabitants of this City, their absence will remain as a memory marker to a generation. And chronicled by the painter Hedy Pagremanski, Two Tenements Down are memory pieces edified through artistry, serving as a snapshot of urbanity in rapid change.
(Hedy Pagremanski painting Two Tenements, Standing. Image by Josh Haner from The New York Times)
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The hilly states of India have had a long history of out-migration. In Uttarakhand, officials in the smallest towns and district capitals cite palaayan (migration) as a top concern. Farmers talk about falling productivity, climate change and poor connectivity to markets and youth rue the lack of employment opportunities for them in and near their villages. The sense one gets from conversations is that migration is not always a matter of choice, the city is not necessarily seen as a place of opportunity and that there are many young men (and increasingly women) who would rather live closer to home if they were able to access non-farm jobs.
Development to fight out-migration hasn’t yielded the best results
A key aspect of the hilly region’s bid to disengage from Uttar Pradesh through a long separatist struggle that lasted through the ‘90s and resulted in Statehood in the year 2000 was the concern that focused resources and strategies were required to develop the region and strengthen it economically so that people are not forced to migrate out to earn a basic living. The strategy of fighting out-migration with development has, therefore, been part of the Uttarakhand’s DNA since inception.
However, Uttarakhand’s initial successes have yielded intense development in its non-hilly foothill regions. The Census 2011 shows high growth in decadal population in the four districts of Dehradun (32.5 percent), Hardwar (33.1 percent), Udhan Singh Nagar (33.4 percent) and Naini Tal (25.2 percent) that have much of their land areas in the plains. On the other hand, population in the hilly districts like Chamoli (5.6 percent) and Rudraprayag (4.1 percent) has grown slowly or been in the negative as in the case of Garhwal (-1.50 percent) and Almora (-1.73 percent)!
Can strategic investments impact migration patterns?
Last month, the Chief Minister Harish Rawat launched 15 new development projects worth Rs 62 crore that include road upgrades, pumping of drinking water and housing. While these development projects follow the old mantra of using development to fight out-migration, they seem to be wisely located projects in remote hilly locations like Pithoragarh.
Similar timely interventions are required to develop quality educational skill development infrastructure, encourage entrepreneurship and invite private sector investment in hilly regions. While value-added agricultural initiatives like floriculture and cultivation of exotic vegetables has taken off in many parts of the State and the tourism sector is a large employer, service sector jobs created by rural BPOs are also making inroads here. How do these investments impact migration in the State?
Narendra Nagar case study reveals migration decisions are complex, rational
Detailed interviews conducted in 2014 with employees of eGramServe, a rural BPO located in the Nagar Panchayat of Narendra Nagar, Tehri Garhwal, reveal that decisions regarding migration are complex and rational. When a new opportunity emerges in their vicinity, it compels young people to rethink their alternatives and opens new avenues that are alternatives to the dominant pattern of out-migration.
The study found that while aspiration is still strongly connected with migration to the city, imagined as a place of opportunity and also risk, educated youth from rural areas around Narendra Nagar, find themselves unable to or unwilling to migrate far away from their villages in pursuit of a better life. Young people in Narendra Nagar viewed a business like eGramServe as an opportunity to work in an IT-related job that they perceived as respectable and exciting without the need to migrate out in pursuit of one. They also saw it as a learning platform and stepping stone to something better.
With the Internet and mobile telecommunication easily and cheaply available, young people have considerable access to information about opportunities and hardships in the big city. These information flows impact their perceived value of migration, which in turn comes out of an analysis of the expected returns and costs of migration. The respondent analysis clearly shows that while the expected returns of a better job and better lifestyle come with risks, young people are able to identify several tangible and intangible costs of migration that urge them to remain closer to their families.
The responsibility of taking care of aging parents and dependent family members, for instance, was recognised as an inhibitor to out-migration for instance. Said Manvir, a 19-yr old boy, “There is a responsibility (upon us), we have to understand that. The family also needs us. If we go away, how will they manage?” Poor quality of nutrition and low-quality living environment in the city was another. Shakuntala, a young woman who was pursuing her MA while she worked in eGramServe and who lives with her family in Narendra Nagar said, “Here (in Narendra Nagar) I can eat well, home food is good. We like our dal chawal roti (simple food).”
Many rural youth feel passionate about bringing development to their villages. They want to return to their villages where they can live on their own land and wish for new kinds of livelihood that complement their agricultural earnings. They see the option of migrating out as a betrayal of what they believe in and hope for. Ajay Negi, who commuted to Narendra Nagar from his village every day to work in eGramServe and was also enrolled in college in NN expressed this conflict well. “I don’t like the idea of going out. People from the village are selling their land, but others are protesting new developments being proposed here by investors from the city. I want to stay here to be part of that movement. Maybe I can somehow save my family from misfortune and ensure their survival,” he said. His passion is reminiscent of the passion that marked the many years of Uttarakhand’s struggle for autonomy.
Understanding youth motivations, developing small cities key to influencing migration patterns
These perspectives run contrary to the larger and rather simplistic understanding of migration as something desirable to educated young people from rural India. The Narendra Nagar case study highlighted the need to listen carefully to these alternative voices. To me, they seem to be saying something important. By tapping into these perspectives, it could be possible to be more strategic about future investments and planned development in the hills of Uttarakhand. It would also be possible for this bountiful hilly State to reposition its small towns as critical conduits for development and migration.
Narendra, who worked in eGramServe in a supervisory role, the development of strategic opportunities in urban locations in proximity to the rural hinterland could trigger return migration as well. “Now I am nearer village,” Narendra told me, “its easier for me to stay in touch (with my family), attend to their needs. I can even manage much better in terms of expenses.” Narendra is also more hopeful about the development that has come to Uttarakhand and the Garhwal region and sees his return migration as his contribution to the positive changes in and around his home.
Naik, Mukta. 2014, Vibrant small cities can keep rural youth closer to home: A case study of Narendra Nagar, Tehri Garhwal presented at a Special session on Small Cities at the Annual Conference of the RGS-IBG, 2014
Todaro, Michael P and Smith, Stephen C. 2012. Economic Development, Tenth Edition. Pearson Education
My co-authored post with Kimberly Noronha on how we need to talk about the ‘real’ stuff when it comes to toilets and open defecation! being stuck at women’s honour has worked only in conjunction with ground level effort. It’s time to change the conversation
In today’s fast paced, slogan-driven policy environment, the pressure by the political masters (and indeed, the polity) on the bureaucracy to deliver on promises is enormous. The Prime Minister’s declaration of a “Swachh Bharat” by October 2019, complete with the status of an Open-Defecation Free (ODF) India is a commendable goal. But in a scenario of tight deadlines, the temptation is to pluck low hanging fruit, which in this case is women’s dignity and honour.
We live in a patriarchal society; we don’t have to like it, but that is a fact. Patriarchal values are structured around women’s position and identity in society relative to men – largely linked to control over women’s sexuality. The protection of women’s dignity is linked to the honour of the household in particular, and the community at large under…
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The occasional journal Agenda (published by the Centre for Communication and Development Studies) has focused on the subject of urban poverty. A collection of articles brings out the connections between population growth, the governance of cities and urban areas, the sub-populations of the ‘poor’ and how they are identified, the responses of the state to urbanisation and urban residents (links at the end of this post).
My contribution to this issue has described how the urbanisation of India project is being executed in the name of the ‘urban poor’. But the urban poor themselves are lost in the debate over methodologies to identify and classify them and the thicket of entitlements, provisions and agencies to facilitate their ‘inclusion’ and ‘empowerment’. I have divided my essay into…
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