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
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OC
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T
DE
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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