Documenting the social angle of implementing Slum Rehabilitation Scheme in Ahmedabad

Mahila Housing SEWA Trust Introducing the Gujarat Slum Rehabilitation Policy – PPP - 2013 The ‘Rehabilitation and Redevelopment of Slum Regulations, 2010’ was announced on 4th March, 2010 under the Mukhya Mantri GRUH (Gujarat Rural Urban Housing) Yojana to provide in-situ formal housing to the urban poor under a publicprivate-partnership model.

In order to make urban Gujarat slum free, the Government of Gujarat had announced the Mukhya Mantri GRUH Yojana as part of a five year plan. About 7 lakh families reside in slums in the urban areas of Gujarat as of 2013.

The State government aims to accord priority to rehabilitate these slum dweller families in-situ.

Main Objectives

1. In-situ rehabilitation of the slums situated on public land in urban areas of the State.

2. Provision of pucca houses with basic • amenities having two rooms, kitchen, bath room and latrine for slum dwellers families. •

3. Ownership rights of the house to the beneficiaries after 15 years.

4. Provision of hygienic and healthy life style especially for urban poor.

5. Qualitative improvement in socio - economic and environmental conditions of towns and cities of Gujarat.

6. Attracting private investment by public-private partnership for this purpose.

7. Simple and transparent policy framework to rehabilitate slums in-situ on public land through public private partnership.

In 2013, The 2010 policy was under active consideration of the State Government to make required modifications in the regulations.

Major Amendments (From 2010 to 2013) There are two broad categories in which the amendments can be divided: Procedural Regulatory

Type

Procedural

2010

2013

Remarks

Consent of 75% slum dwellers should be taken

Consent of 50% slum dwellers should be taken

Experience of 2010 proved very difficult for the Implementation of SRS due to 75% consent

Project developer was selected on first come first basis

A transparent and a more competitive process was adopted

It became popular, more developers started showing interest

Functions of the prescribed authority was not well distinguished between state and city

Prescribed authority at state level was the policy making body and that at city level supervised the implementation.

It could be implemented on private land

Only public and semi public land

Difficult to implement on private land

.

Minimum dwelling size 36 sq. m

Minimum dwelling size 25 sq.m

Make it affordable for developers

F.S.I. as per base zone

F.S.I. = 3

Providing higher built space to go higher in confined plots

Additional F.S.I has to be used on same plot, only then it can be used on another plot if area is not left on SRS plot

Cost of built up – premium of remaining land= TDR; which could be traded or used in any other plot.

Incentive for developers

Land ownership was transferred to CO.OP housing society

Land rights remained with AMC

Parking, height and common plot shall be provided as per GDCR.

Special height and common plot regulations provided.

Regulatory

The SRS Policy involves notifying slums based on the criteria defined by the Municipal Corporation and then inviting bidders through releasing tenders.

The private builder fulfilling criteria defined by the Policy is selected who funds the project for

Increased flexibility

construction, soil testing, commission to the Urban Local Body, transit rent to the slum dwellers etc., payment to NGO etc. In return, the builder benefits by acquiring Transferable Development Rights (TDRs) and additional land (if left after construction completion).

Eligibility criteria for receiving Policy benefits

An eligible slum dweller refers to any slum dweller who is registered as one with competent authority in the survey carried out before 1st February 2010.

Implementing SRS - PPP – 2013 in Ahmedabad Based on the notification criteria, 11 slums were identified in 2010 and 8 slums were identified in 2013 for implementing the project in Ahmedabad.

Though the Policy did not compulsorily require the involvement of NGOs in the implementation process, it became a pre requisite since there was trust and information deficit within the stakeholders i.e. Ahmedabad Municipal Corporation (AMC), private builders and the slum dwellers.

Hence, in all of the identified nineteen slums, Mahila Housing SEWA Trust (MHT) was involved in some way or the other.

Typically what happens is builders are expected to carry forward the entire project once the bidder is selected by AMC. However, it is very difficult for the builders to mobilize slum dwellers, demarcate plots, collect and file complete applications to AMC on behalf of the slum dwellers, negotiate rent money and sensitivise and pacify people to cooperate with them. Builders have to take care of technicalities like soil tests, demolition, transit rent payment, housing layout design etc.

Hence, MHT was selected because it already had a grass root level connection within the slums as they were already involved with the Slum Networking Program (SNP) implementation in Ahmedabad. MHT’s crucial presence has ensured the PPP model is a through and through success in Ahmedabad.

MHT’s role in implementing SRS - PPP – 2013 Broadly, MHT is involved in 5 phases with the Slum Rehabilitation Program in Ahmedabad which follows the PPP model. These five phases are: 1. Participation in the scheme - MHT helps the private builders approach the slum residents,

pacify and enlighten them with regards to the project and build grass root level trust. Hence, approach taken is initially social in nature.

2. Active assistance - MHT is a unique NGO with employees who are able to assist slum residents and builders technically (architects, engineers, advocates, urban planners etc.) as much as socially (community workers and a spearhead teams). MHT consults, gives design inputs based on grass root level demands and apprehensions as well as their own experience and expertise. Without being sound technically as well as socially, MHT could not have made PPP as much a success in Ahmedabad, by assisting over 19 slums and 7333 households.

3. Transit period - MHT ensures continuous communication and assistance is provided to the beneficiaries. MHT’s presence gives them the confidence and assurance at all stages which is crucial for the project to sustain.

4. Shifting - Beneficiaries require assistance in attitude and outlook change as well, because they shift to a new environment to live. This is very often not an easy task. MHT makes sure sufficient training, workshops and knowledge is imparted. Transit rent negotiation with builders on their behalf is also carried out by MHT. Sound technical and social understanding is required to do the needful.

5. Long term maintenance - MHT foresees and takes care as much as possible to make the project a thorough success. By forming the RWA, it takes a step to ensure the end result sustains even after MHT withdraws from it. By strengthening the RWA’s capability, MHT leaves the beneficiaries in able hands.

Drawing from experiences in Ahmedabad: A collection of Case Studies elaborating the social challenges faced by MHT CASE STUDY I Kailashnagar (new) SLUM PROFILE T.P. no.

F.P. no.

Ward No. of hutments Private builder

: 23 : 453 to 460 all : Sabarmati : 220 : Nila Infrastructures Ltd.

Also, what happened was that out of greed, a few slum dwellers marked multiple numbers on a single dwelling unit to get back more houses out of the scheme. Also, some began building new houses in the hopes of reaping maximum benefits. MHT workers carried out surveys, marked their own numbers on each house; carried out thorough videography as well as photography. This documentation helps identify the age of buildings and their eligibility in the scheme.

MHT is one of the very few NGOs which is special in the sense that it helped eligible slum dwellers produce the necessary documents if they did not possess them, filed these documents by repeatedly coaxing the people and visiting Kailashnagar over several months and after organizing the documents, took them to AMC and also transferred the data entries into electronic medium for record keeping purposes.

MHT workers carrying out on site survey

Every PPP project begins with surveys. Without knowing the exact number of hutments existing, the exact number of dwelling units to be given back cannot be determined. Eligibility largely depends on demarcation of plot as well.

When AMC carried out cluster level survey in Kailashnagar, the number of households came to a total of just 80. However, when MHT workers began door to door survey after demarcating the plot mentioned in the AMC work order, the actual eligible households came to 200. This gap of 120 households increased the private builder or developer’s budget substantially. Without involving the NGO, the actual picture would have been oblivious to them.

Multiple hutment number in the same household

Electric meter displaying number series outside hutment

People with electricity bill submit these and the serial number serves as a proof that they have been residing there since 2010. The meter outside their hutments serve the purpose. Others without electricity connection are advised by MHT to either submit voter IDs or gas bills or Aadhar cards. Many of them do not have any of these documents with them. In this case, MHT workers facilitate the process of creating these documents on behalf of the slum dwellers. MHT makes sure the deserving are helped in the best ways possible. This has helped the SRS-PPP model to become successful and smooth in Ahmedabad.

CASE STUDY II Bheel Vaas - Islampura SLUM PROFILE T.P. no.

F.P. no.

Ward No. of hutments Private builder

: 24 : 2/2 : Maninagar : 400 : Siddhi Developers

Bheel Vaas residents’ hutment list

Entrance to the slum on FP no. 2/2

The plot 2/2 on which the PPP project was to be implemented suffered some technical problems initially since the plot had a public school on the plot and also a TP road ran across the plot. This resulted in less area for the developers. AMC agreed with including 2/3 plot (Ramgiri Slum) in the project to recover the land lost. However, when MHT workers began survey, the slum dwellers of Ramgiri revolted angrily citing religious reasons. This resulted in verbal violence and MHT decided to back out. Finally, only 2/2 was considered for the project.

Often, projects in their initiation phase, face a few problems. This project was no different. Already, alum dwellers possess the mindset that private builders do not have their best interests in mind and only want to take away their homes, lands and livelihoods. In Bheel Vaas this problem was bigger since many people practiced illegal hooch business and owned multiple homes in the slum.

They resisted and even blackmailed MHT workers mentioning influential contacts and threats. These problems did not deter MHT staff to back off. With 20 years of experience in socially mobilizing the less fortunate ones in the society, this case was handled with patience and peace.

Document collection in Bheel Vaas took about six months (December ‘15 to May ‘16). MHT workers

visited the site daily to collect documents of each and every slum dweller. On compiling and submitting files the first time to AMC, the officials rejected citing a few discrepancies like alternate documents required, missing documents etc.

Even after MHT workers guide slum dwellers the best possible, some problems persist and MHT workers take care to repeat the process again and again until the files are passed by the authorities. This is a very tedious and repetitive task which not many stakeholders have the ability to undertake. MHT’s patient and diligent workers make sure they work hard.

The SRS Policy 2013 states that the builder will have to give back a home for a home and a shop for a shop. This doubled MHT worker’s work as separate files had to be maintained collecting shop documents as well as house documents.

What one should understand is that this model was so successful in Ahmedabad because in this city, land prices are much higher than construction prices. If land was cheap, builders would opt out and simply buy new land for construction. Hence, the builder is ready to give back so much in exchange for land and TDR.

Islampura residents’ shop list submitted to AMC

CASE STUDY III Indiranagar SLUM PROFILE T.P. no.

F.P. no.

Ward No. of hutments Private builder

:1 : 199, 202, 265 : Odhav : 1500 : Siddhi Developers

Another tool introduced by MHT which is nowhere mentioned in the SRS – PPP – 2013 guidelines is the issuing of ID cards. ID cards are prepared by MHT after AMC clears the document files of the slum dwellers. Before AMC department officials sign and stamp on the ID cards, site checking takes place. The three AMC departments involved are Housing, Vigilance and Estate.

Once, the officials are convinced, the IDs are duly signed and tamped and passed on to MHT for their stamp and project head’s signature.

The ID is then handed out to the respective beneficiaries. MHT identifies the human psychology and acknowledges the importance of convincing the slum dwellers repeatedly that the project is for their benefit. The ID card serves as a proof and also gives them assurance. This tool has created the much needed trust factor and has proved to be extremely successful to make the SRS Project comparatively easy and smooth in Ahmedabad.

Signatures & stamps of AMC departments and MHT Project Head

Indiranagar slum is one of the largest project that was undertaken by MHT. Just like any other slum, the people here were apprehensive about vacating the place they had been living for so long. MHT, based on their experience of about 20 years have developed some internal tools and techniques that help them handle critical situations in a smooth and efficient manner.

Firstly, when MHT workers carry out on ground surveys, they grade the houses based on their eligibility. For example a house which has been existing since 2010 will go scot free and will ne numbered say 36. However, if its owner has built another house post 2010, the forms or survey numbers will be marked 36-A and 36-B and so on. This is for all the MHT employees working on the project to know that the dicey house may be rejected when AMC scrutinizes the documents.

However, this is internal scrutinization.

The slum dwellers are not told about this right from the start as they will get agitated and hinder the project. This may lead to others backing out or causing verbal and physical violence. Many of them are not able to grasp the fact that they are illegible for the project and their homes will be taken away as they settled in the slum post 2010.

This is one of the innumerable measures that MHT takes to peacefully mobilize communities and advocate them in the best possible manner.

CASE STUDY IV B-Colony SLUM PROFILE T.P. no.

F.P. no.

Ward No. of hutments Private builder

:8 : 221, 223 : Girdharnagar : 633 : Nila Infrastructures Ltd.

Similar to the Kailashnagar case, B-Colony there was a mismatch in the survey done by AMC and MHT. This lead to document verification, collection, compilation and filing. Finally, the mismatch came down to 18 hutments. These hutments were the ones which were not confirmed an eligibility for the SRS Program.

Poster of the Scheme on site

To arrive at a final decision, MHT suggest a decision making process called the Panchnamu.

A disputed hutment not demolished

Copy of the document

A handful of houses were under dispute as the owners were unable to prove that they lived in the slum before 2010 due to lack of documents.

In Panchnamu, the builders, MHT workers, AMC officials (housing and vigilance department) and of course the slum residents were involved. RWA was given the right to judge the beneficiaries as they are the able leaders who represent the slum.

They have been staying there long enough to conclude who is genuine and who is cheating.

Finally 8 beneficiaries were given the right to acquire dwelling units. The rest were not able to prove themselves as beneficiaries and the RWA out ruled their rights after consideration. The Panchnamu was signed by RWA, builders and MHT worker present. The hutments that passed were again given ID cards stamped by Vigilance officer after permission was granted by the commissioner. Then the rest had to vacate and builders went ahead with complete demolition.

Vigilance department, AMC, Danapith

Before the decision is made, complete demolition does not take place. The houses under fire are kept as is. In the case of B Colony, the people refused to vacate until a decision was made.

MHT faced innumerable social challenges in the B Colony project. Apart from the aforementioned hutment eligibility issue, there were some religious and superstitious cases that were faced as well. There is a temple on site which holds religious sentiments of the slum dwellers. When demolition was to commence, all the residents revolted. Even the crane operator backed out citing excuses. MHT workers are sensitive to such situations and instantly backed out and suggested the builders to keep the temple intact.

Also, the slum dwellers were superstitious and wanted the project personnel to carry out rituals post which they would be convinced that the intentions of the scheme and the stakeholders were genuine. In the absence of MHT workers, no builder or AMC officer would give in to these demands. Due to MHT workers, the rituals were carried out peacefully and the project moved forward.

MHT is a trusted NGO because of its technical understanding and ability which goes hand in hand with its social mettle. B Colony slum is being developed as a high rise building which will consist of lifts. This caused a turmoil among the slum dwellers who avoid using lifts even when they come for training to the MHT office. They were extremely concerned and put forth their views to the MHT workers. Due to technical understanding, lift designs were altered to be as people friendly as possible.

What is important to understand is that shifting slum dwellers to a completely new environment which they are not at all used to is not easy. MHT trains them to adapt to the new environment as much as possible. Without their sensitivity and advocacy, these people would have not been so accepting and cooperative.