Planning in India Voluntary Vs. Institutionalization · PDF filePlanning in India Voluntary Vs. Institutionalization ... The ancient town planning ... The evolution of modern town

Community Engagement in Spatial Planning in India

Voluntary Vs. Institutionalization

Dr. Abdul Razak MohamedProfessor, Department of Planning

School of Architecture and Planning

Anna University, Chennai, India. 20-08-2010

Email: [email protected] & [email protected]

Planners’ Challenge

Community engagement in planning is no more voluntary but politically demanded

Developing instruments and to increase the level of participation

Invited and interest group participation to voluntary and democratic engagement in various levels of planning processes

Community Participation to Community Partnership

Community Involvement and ownership

Structure

1. Background

2. Community Participation

3. Decentralization and Local Governments

4. Lesson from Different Levels

5. Conclusions and Way Forward

The Argument is

Historically people’s participation tookplace out of governmental decision andsupport :

Community- Centered Participation

At present after the wake of 73-74th

Constitutional Amendment, it is Governmentdecision and support:

Government-Centered Community Participation

Questions Raised

1. What extent CP is considered inspatial planning practice in India?

2. What caused the shift from public togovernment-centered participationand its spatial planning?

Background

The ancient town planning in India is evidentfrom 4th century B.C. – Mohanjo Daro andHarappa

The evolution of modern town planningstarted during 1898 when the BombayImprovement Trust was started

Town planning as sectoral development andsubdivision of land

Background – Contd.

During 1915 after Patric Geddes visit to India add toestablish comprehensive surveys including social andeconomic surveys

Master Plan for town and cities started during 1954when Bombay Town Planning Act was formulatedand put in to practice during 1957

Apart from surveys inviting objections andsuggestions against draft development proposalsalso considered in town planning

2nd Five Year Plan – preparation of regional plans

NGOs association as representatives in committees,commissioning research works to formulate policy

Background – Contd.

Conventional method – Objection and suggestion

Professional demand

Interest groups/ Affected parties

Voluntary participation

Method Notification in the gazette

Display of land use plan – planning office

News paper messages

Focus Community participation

IDENTIFICATION OF PROBLEMS

OPPORTUNITIES & CONSTRAINS

IDENTIFICATION OF GOALS

IDENTIFICATION OF OBJECTIVES

DATA ANALYSIS

(STATISTICAL METHODS)

FORECASTING

IDENTIFICATION OF AREA OF

UNCERTAINITY

PREPARATION OF ALTERNATIVE

PLANS OF POLICIES

SELECTION OF ONE PLAN OR

GROUPS OF POLICIES

IMPLEMENTATION

MONITORING

REVIEW

OU

TS

ID

E

OP

TI

ON

PU

BL

IC

P

AR

TI

CI

PA

TI

ON

SU

RV

EY

NOTIFICATION OF PLANNING BOUNDARY

O/O THE CTP TO PREPARE DEVLOPMENT PLAN

GOAL FORMULATION

STUDY OF THE EXISTING SITUATION

DRAFT PLAN

APPROVAL BY LOCAL BODY

SECONDARY SURVEYPRIMARY SURVEY

PUBLICITY OF DRAFT PLAN

OBJECTIONS AND SUGGESTIONS FROM PUBLIC

1

Hearing of Objections and Suggestions

MODIFICATIONS IF ANY

SUBMISSION TO THE GOVERNMENT

VERIFICATION BY HIGH LEVEL

SANCTION OF DEVELOPMENT PLAN

PROJECT FORMULATION BY VARIOUS DEPARTMENTS

PROJECT IMPLEMANTATION BY VARIOUS DEPARTMENTS

2

3

Background – Contd.

After the 73-74th CA – Formulation of projects

Political demand

Elected representatives

Induced participation

Method Ward level meetings

Mass media

Organizational unit/Cell

Focus Decentralization of power

The lesson is …

Shift in terms of

Professional demand to political demand

So the Participation is Institutionalized

The Community Development Dilemma

The top-down planning

– specific purposes aimed at meeting people’s immediate needs

The bottom-up planning

- To enable people to develop their own decision making ability

Examples-1990s

1. People’s Planning Program (PPP) -Kerala

2. Bagidhari System (BS) - Delhi

DEVELOPMENT SEMINAR

TASK FORCE

MUNICIPAL COUNCIL

MUNICIPAL LEVEL EXPERT COMMITEE

DISTRICT PLANNING COMMITEE

BENIFICIARY COMMITTEE FOR IMPLEMENTATION

PEOPLE

WARDS

DEVELOPMENT

SUGGESTIONS

IDENTIFICATION

FORMULATION

IMPLEMENTATION

PROCESS INVOLVED IN PEOPLES PLANNING PROGRAMME

DEVELOPMENT SEMINAR

TASK FORCE

MUNICIPAL COUNCIL

MUNICIPAL LEVEL EXPERT COMMITEE

DISTRICT PLANNING COMMITEE

BENIFICIARY COMMITTEE FOR IMPLEMENTATION

PEOPLE

WARDS

DEVELOPMENT

SUGGESTIONS

DIRECT PARTICIPATION

INDIRECT PARTICIPATION

DIRECT

PARTICIPATION

NATURE OF THE PUBLIC PARTICIPATION IN DIFFERENT STAGES OF PEOPLES PLANNING PROGRAMME

PPP – Kerala

Visible moves of poor and oppressedfrom marginalization

Development through distribution

Common public – ward level

People participation more of individualbenefit rather than community and city

BS - Delhi

Visible moves of rich and middle classenhance their quality of life

Government - public partnership

Civil society movement – residence welfaressociations

People participation is more of communitybenefits rather than individual and city

The Issue

Decentralization vs. Devolution Decentralization is an issue in developing

countries due to the situation

Lack of political integration

Scarcity of resources

Manpower

Community-Engaged Planning

Delhi Experience

Urban Rich and Middle Income

Social Infrastructure Building

Economic Benefits

SOCIAL

WELFARE

ECONOMIC

GROWTH

INCOME GENERATING

ACTIVITIES

STRENGTHENING

SOCIAL AND

RELIGIOUS

NEEDS

INCREASING THE

STANDARD OF

LIVING

IMPROVING THE

QUALITY OF

LIFE

PRIVATE PROPERTY COMMON PROPERTY

HOME

BUSINESS

INDIVIDUAL

FAMILY

DECISION

INDIVIDUAL FAMILY WELFARE COMMUNITY WELFARE

PAVEMENTS,

PARKS,ROADS,

PLAYGROUNDS

PAVEMENTROAD,

STREET

WORSHIP

PLACE

GATES,WALLS

CHECKPOST

MIDDLE INCOME

HIGH INCOME

COMMUNITY

DECISION

PAVEMENTS,

PARKS,ROADS,

PLAYGROUNDS

PUBLIC UTILITIES AND SERVICES

WATER SUPPLY

ROADS

SEWERAGE

SOLID WASTE DISPOSAL

PARKS,PLAYGROUNDS

SCHOOLS,HEALTH

CENTRES, COMMUNITY

HALL,SHOPPING AREAS

COMMUNITY

FACILITIES

LOCAL GOVT

PUBLIC PRIVATE

SOCIAL INFRASTRUCTURE

SECURITY

RELIGIONS

COMMUNITY FINANCING

SOCIAL REALITY AND CHANGING PHYSICAL FORM

HIGH INCOME MIDDLE INCOME

NEW FRIENDS COLONY AREA FACILITIES AND SERVICES

PROVIDED AS PER THE

NORMS

PATPARGANJ

RESIDENTIAL AREA

INDEPENDENT

BANGALOWS

COLONIES WITH

OUT PHYSICAL

BOUNDARIESLACK OF SOCIAL

INFRASTRUCTURECOLONIES WITH

BOUNDARY WALLS

FLATS

INDIVIDUAL SECURITY SYSTEM COMMUNITY CENTERED

PARTICIPATION

INSTALLATION OF

WALLS, GATES

STREETS

ROADS

SERVICE

LANES

COMMUNITY

SECURITY

SYSTEM

CREATION OF

WORSHIP PLACES

FOOTPATH

INSIDE

COLONY

AWARENESS

ACCEPTANCE

FOR CERATION

FORMULATION

OF PLAN

IMPLEMENTATION

MANAGEMENT

C

O

M

M

U

N

I

T

Y

S

P

E

C

I

A

L

G

R

O

U

P

SUSTAINABLE COMMUNITY LIVING ENVIRONMENT

Experiences 2010

Integrated District Development Plan Model of Kollam, Kerela

Redevelopment Plan for T.Nagar, Chennai,Tamil Nadu

DEVELOPME

NT REPORT

LDP&IDDP

(Pilot)

WATERSHED

BASED

MASTERPLAN

DEVELOPME

NT REPORT

DEPARMENT-

WISE DETAILS

OF DISTRICT

PLAN

-PEOPLE’S CAMPAIGN

PROGRAMME

PUBLIC PARTICIPATORY

APPROACH

PEOPLE’S CAMPAIGN

PROGRAMME

PUBLIC PARTICIPATORY

APPROACH

TOP DOWN

APPROACH—

PLANNING AT

ADMINISTRATIVE

LEVEL

10 TH PLAN PERIOD9TH PLAN PERIODUPTO 8 TH FIVE

YEAR

DISTRICT PLAN

STATE

PERSPECTIVE

PLAN

LDP &IDDP

11 TH PLAN

PERIOD

District Planning Committee

LDP processing committee

Chairman-Dist Collector

Convener -Dist. Town Planner

Members-DPO, ADC(General) ,

DD Pyt, RJD,Pyt /Mlty

Secretaries

Working groups

/Spatial integration

committee

Panchayat/Municipality

IDDP integration committee

Chairman-DPC Chairman

Vice Chairman –Dist Collector

Co vice chairman-Chairman SPSG of Spl TAG

Convener- -Dist. Town Planner

Members - 3 members of DPC, 3 Non official members of Special TAG,DPO,DD-Dept of economics & statistics

IDDP specialTAG

Chairman- District Collector

Convener- District Town Planner

Members- All other members of TAC

Spatial

planning sub

groups(SPSG)

SPL TAG –

sub groups

District T&CP

Office

-- PREPARATION OF IDDP-- PREPARATION OF LDP

Co-ordination committee

LDP & IDDP

Chairman-DPC Chairman

Co-chairman-Mayor Corp.

Vice Chairman –Dist Collector

Convener -Dist. Town Planner

Members-Pyt/Mly Chairpersons

IDDP2030-Palakkad, Kerela

Joint effort of

Dept. of Planning, Anna University, Chennai. Department of Town Planning, Government of Kerela and

District Planning Committee-Palakkad.

Planning Sector – Restructure

Sectors - Dept. Vs. Planning

Sector Workshops-data/analysis – Dept. – Staff status – no consistency

Community Participation - added

Workshop-Sectors

Community Meeting

Planning Project Work

From July to November 2010

July- Appraisal of District Planning approaches, methods and plans

Evolve adjusted method

August- Field Visit- Interactive data finding and gaps fillings – this is the current stage

September - analysis/identify problem/potentials

October – development projects identification- field visit –consultation sector groups and public

November – Development projects finalization/Draft Report

Redevelopment Plan-Chennai

T.Nagar

Redevelopment Plan

Chennai Corporation Initiative

TNUDF Awarded the Project

JLLM, Chennai Office – Consultant

Social Development Expert – my involvement

Interim Report Stage

Completion by October 2010

36

Stage – 1

Inception

Data Collection

Stage – 2

Interim

Stakeholder

ConsultationData & Site

Analysis

Primary

Survey

Land use

SurveyData Review

Site Inspection &

Workshop

SWOT Analysis

Benchmarking

Case studies

Project Vision

Inception Report

Target Oriented

Consultation

Road

Show

Master Plan Alternatives &

Conceptual Proposals

Land use

AnalysisReal Estate Study

& Analysis

Environment

Study

Traffic Study &

Traffic Planning

Interim Report

Formulation of Draft

Conceptual Master Plan

Stage – 3

Final

Revenue Model

Finalization of

Master Plan

Area Management

Plan

Guidelines

Stakeholder

Consultation

Final Report

Redevelopment

Options

DE

LI

VE

RA

BL

ET

OC

LI

EN

T

DE

LI

VE

RA

BL

ET

OC

LI

EN

T

37

Community Engagement

Consultative meetings conducted (1) both in English and Tamil (2) in

the following manner:

1. Workshops,

2. Interactive discussions, and

3. Street and road side exhibits

Three levels of consultative meeting planned as follows:

(1) Collective Consultation with all stake-holders to understand the

problems and potentials – at the beginning after the Inception

report

(2) Target Oriented Consultation with specific target groups to

debate issues, alternative solution and get consensus – during the

process of study

(3) Collective Consultation with all stake-holders to debate and

conform the prospective solutions- at the end before the

submission of the draft final report

38

consultation

Collective Consultation (CC) - open consultative meeting to identify the

problems and seek their concerns and corrective measures for reducing

or solving the problems in general.

Ice Breaking Meeting with all stake-holders to build awareness and

discuss about the broad issues and possible solutions. Also to set the

momentum and will be of useful to share the relevant information for

preparation of the redevelopment plan –

Target oriented Consultation (TOC) – Aiming at specific groups to

address the problems and discuss suitable and alternative solutions and

seek consensus

Government Departments – Representatives of CMDA, Corporation of Chennai, TWARD

Board, TNEB, Tourism Department, Police Department, Transport Corporation – One day

workshop focus on sector wise problems and solutions

Political Groups – there are two meetings as (I) Ruling party political representatives and (ii)

other political parties – Interactive discussions – Half Day

Local Residents, Social Organizations – religious, youth groups, school children, women

associations, disable people and NGOs’- Interactive discussions and Exhibits – To present

the existing situation and also address the likely solutions to have a sustainable

redevelopment scenario – Half Day

39

Consultation

Traders Associations – There are two separate meetings as (i) Interactive discussions with

the formal traders and (ii) Interactive discussion with informal traders – Interactive and

Exhibits – To present the existing situation and also address the likely solutions to have a

sustainable redevelopment scenario – One Day each

Customers and Pedestrians – Road and street side Exhibits and questionnaire and interactive

discussions in strategic locations to give an opportunity to the people to share their views

and opinion on the good and bad experiences towards coming, walking and shopping and

return. There are aspects to cover their origin, mode of travel, parking, movement in the

roads and streets, support services present, absent and needed, safety and security system

present and needed etc. – evenings between 4.00pm to 8.pm for one week

Collective Consultation (CC) - open consultative meeting to discuss

openly the problems and best corrective measures. Consensus Meeting

with all stake-holders to discuss the broad possible alternative

solutions. Also to set the common understanding not just the

participants of the consultative meeting but as the partners of the

redevelopment of T. Nagar – before the submission of the Draft Final

Report as Workshop

Need for local initiatives for the people

Spatial development is related to socialaction and physical planning

Experience shows – people participation

City Corporate plan -ward level

City Development Plans-City level

Still lacks people participation at

Planning

Implementation

Management

Cases 1990s

Kerala - Kollam : Political bias –

people’s plan vs. planner’s plan

individual benefits vs. community benefits

Delhi - State Capital city (SCC)

National Capital City (NCC)

Rich – 15-20% - physical boundaries – parks

Changing Needs

Middle – 40-45% - physical boundaries – religious places

Basic Needs

Poor – 40% - basic livelihood needs

Livelihood Needs

Cases 2010

1.Integrated District Development Plan-Kerela Model-Kollam

a. Sectors – departmental vs. planning

b. Integration of dept. data and analysis

But lack of integration in implementation

c. No concern of general public engagement

d. No stress on monitoring and review

Cases 2010

2. Redevelopment of T.Nagar, Chennai

a. Community Consultation-different types and levels

b. Community engagement in planning and partnership in development

c. True sense of democratic participation

Use of Community Participation as

concept, method, strategy, policy, movement etc.

– people – public – community.

Way Forward

1. Understand decentralization there is need to analyze thepolitical system and administrative structure of the nationaland local government system

2. To find out the type and practice of decentralization it isessential to analyze the historical and socio-cultural factors ofthe country

3. Understanding community participation as sociological entityand not as professional or political entity

4. Understanding community at the local level in terms ofattitudes towards people and places

Way Forward – contd.

5. Community and people’s participation could be realized interms of sociological perspective of politics, bureaucracy andprimary groups.

6. Create an institutional space for the poor people for theiractive participation

7. Community participation in the spatial planning could betreated as a functional spatial area along with different socialcommunity areas.

Unorganized Community Development Activities

Public works agency

School agency

Welfare agency

Other public agency

Parks agency

Fraternal groups

Women’s groups

Church groups

Other citizen groups

Real estate interests

Construction interests

Other private interests

Industrial interests

Construction

interests

Labour interests

Philanthropic

interests

[Source: F. Struart Chapin, Jr., “A Plan for Citizen Participation in Community Development”, Social Forces, XXV (March, 1947), 314-315.]

[Source: F. Struart Chapin, Jr., “A Plan for Citizen Participation in Community Development”, Social Forces, XXV (March, 1947), 314-315.]

PUBLIC AGENCY

Public works agency

Parks agency

Welfare agency

School agency

Other public agency

CITIZEN ORGANISATIONS

Fraternal

groups

Women’s

groups

Church groups

Other citizen groups

PRIVATE INTERES

TS

Industrial

interest

Construction

interest

Labour interest

Philanthropic

interest

PRIVATE INTEREST

S

Real estate interest

Construction

interest

Other private interest

Co-ordinated Community Development Activities

Public works agency

School agency

Welfare agency

Other public agency

Parks agency

Fraternal groups

Women’s groups

Church groups

Other citizen groups

Real estate interests

Construction interests

Other private interests

Industrial interests

Construction

interests

Labour interests

Philanthropic

interests

[53 years the PARTICIPATION IT IS THE GOVERNMENT MOVVING TO THE COMMUNITY AND SEEK PARTNERSHIP AND COLLOBRATION –razak 2002

Community Development Activities

Thank You