H O U S I N G , FSI,

CROWDING,
A N D DENSITIES

H O U S I N G , FSI, C R O W D I N G , A N D
DENSITIES
H A N D B O O K Vol. I

Edited by

Mr. Shirish B Patel

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ACKNOWLEDGEMENTS
This

Handbook

is a n o u t c o m e

of t h e c o l l a b o r a t i v e

efforts

and

d e d i c a t i o n of v a r i o u s s t a k e h o l d e r s , w o r k i n g t o w a r d s t h e c a u s e of
a f f o r d a b l e h o u s i n g for c i t i z e n s of M u m b a i .
W e w o u l d like to e x p r e s s o u r h e a r t f e l t g r a t i t u d e t o Mr. S h i r i s h Patel,
w i t h o u t w h o s e c o n t r i b u t i o n s a n d c o n s t a n t g u i d a n c e this H a n d b o o k
w o u l d n o t h a v e b e e n p o s s i b l e . Mr. Patel has b e e n a n e x p e r t in t h e
d o m a i n of u r b a n p l a n n i n g f o r o v e r five d e c a d e s a n d is o n e of t h e t h r e e
original

authors

of t h e p l a n t o d e v e l o p

Navi M u m b a i . W e

are

h o n o u r e d to h a v e h i m as a m e n t o r a n d g u i d e .
It has a l s o b e n e f i t t e d i m m e n s e l y f r o m d i s c u s s i o n s a n d c o n s u l t a t i o n s
w i t h t h e f o l l o w i n g p e o p l e - Dr. A b h a y P e t h e a n d his P h . D s t u d e n t s at
t h e D e p a r t m e n t of E c o n o m i c s , U n i v e r s i t y of M u m b a i ; Mr. A s h o k Datar,
Dr. A m i t a B h i d e , M s . S h e e l a P a t e l , a n d M s . N e e r a A d a r k a r .
Lastly, w e w o u l d like t o a c k n o w l e d g e t h e c o n t r i b u t i o n s of all m e m b e r s
of Praja's t e a m , w h o w o r k e d to m a k e this H a n d b o o k a reality.
cz

Supported by

Narotam Sekhsaria Foundation

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Ford Foundation
Fried rich Neumann

STIFTUNG

F U R DIE F R E I H E I T

MADHU MEHTA FOUNDATION

CONTENTS

A b o u t Praja F o u n d a t i o n

Praja T e a m

Abbreviations

Foreword

Preface

7
9

Facts a b o u t G r e a t e r M u m b a i
I.

Housing Concepts
1.1 A f f o r d a b l e H o u s i n g

II.

10
_

11

1.2 I n c l u s i o n a r y H o u s i n g

13

1.3 I n c r e m e n t a l H o u s i n g

15

1.4 R e n t a l H o u s i n g

20

Urban Planning

22

2.1 M a h a r a s h t r a R e g i o n a l a n d T o w n P l a n n i n g ( M R T P ) A c t , 1 9 6 6

25

2.2 D e v e l o p m e n t P l a n

25

2.3 D e v e l o p m e n t C o n t r o l R e g u l a t i o n s ( D C R ) f o r G r e a t e r M u m b a i , 1991

28

2.4 D e m y s t i f y i n g FSI

29

A n n e x u r e I: A g e n c i e s a n d S c h e m e s

41

A n n e x u r e II: C e n s u s 2011 d a t a of M u m b a i

44

A n n e x u r e III: R e s o u r c e s f o r F u r t h e r R e a d i n g

47

Bibliography

48

End Notes

49

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List o f T a b l e s

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w

Table 1: M u m b a i - H o u s i n g S t o c k by T y p e

12

Table 2: P a r a m e t e r s to d e f i n e 'Affordability' .

13

Table 3: M u m b a i v s . M a n h a t t a n

31

Table 4 : S t r e e t C r o w d i n g in M a n h a t t a n a n d s e l e c t e d W a r d s of G r e a t e r M u m b a i

35

Table 5: List of F e a t u r e s / A r e a s e x c l u d e d f r o m FSI C o m p u t a t i o n

38

Table 6: List of F e a t u r e s / A r e a s i n c l u d e d in FSI c o m p u t a t i o n

39

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NIAJA.ORG
MAKING DEMOCRACY WORK

A b o u t Praja Foundation
F o u n d e d in 1 9 9 8 , Praja F o u n d a t i o n is a M u m b a i - b a s e d n o n - p a r t i s a n
voluntary

organisation

enabling

accountable

governance.

e m p o w e r s t h e c i t i z e n t o p a r t i c i p a t e in g o v e r n a n c e by

Praja

providing

k n o w l e d g e a n d p e r s p e c t i v e . W e a i m to p r o v i d e w a y s in w h i c h t h e
c i t i z e n c a n g e t politically a c t i v e a n d i n v o l v e d b e y o n d t h e ballot box,
thus promoting transparency and accountability.
C o n c e r n e d a b o u t t h e lack of a w a r e n e s s a n d a p a t h y of t h e
government

among

citizens, and

hence

the

disinterest

local
in

its

f u n c t i o n i n g , Praja s e e k s c h a n g e . W e strive t o revive t h e w a n i n g spirit

of M u m b a i City, a n d i n c r e a s e i n t e r a c t i o n b e t w e e n t h e c i t i z e n s a n d t h e
g o v e r n m e n t . To facilitate t h i s , Praja has c r e a t e d w w w . p r a j a . o r g , a
w e b s i t e w h e r e t h e citizen c a n e q u i p t h e m s e l v e s w i t h i n f o r m a t i o n s u c h
as: t h e i s s u e s f a c e d by m u n i c i p a l w a r d s , t h e e l e c t e d r e p r e s e n t a t i v e s ,
the responses received and a discussion board, thus allowing an
i n f o r m e d i n t e r a c t i o n b e t w e e n t h e c i t i z e n s of t h e a r e a a n d e l e c t e d
representatives.
W e b e l i e v e t h a t a c c o u n t a b l e g o v e r n a n c e f o l l o w s if y o u h a v e :
Well-informed and intentioned Elected Representatives (Municipal
IE

cz
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C o u n c i l l o r s , M e m b e r s of L e g i s l a t i v e A s s e m b l y a n d M e m b e r s of
Parliament)
Well-informed Media
Well-informed Citizens

D
|

W i t h this a i m t h e 'Praja D i a l o g u e ' w a s l a u n c h e d in 2 0 0 8 to b r i d g e t h e

>

g a p b e t w e e n c i t i z e n s , e l e c t e d r e p r e s e n t a t i v e s a n d g o v e r n m e n t in

o r d e r to i m p r o v e g o v e r n a n c e

m e a n i n g f u l d i a l o g u e o n b a s i c issues c o n c e r n i n g c i t i z e n s .

>

TO
o
o

and

bring accountability

through

Praja n o t o n l y p r o v i d e s i n f o r m a t i o n for m e a n i n g f u l d i a l o g u e

on

g o v e r n a n c e b u t w e a l s o t r a i n e l e c t e d r e p r e s e n t a t i v e s to u n d e r s t a n d
t h e n u a n c e s of l a w s g o v e r n i n g t h e i r w o r k i n g a n d e f f e c t i v e l y
information to solve citizens' issues.

use

I_

T h r o u g h o u r p r o g r a m m e , Praja K a t t a , w e e n g a g e w i t h y o u t h t o build
o n t h e i r u n d e r s t a n d i n g of t h e w o r k i n g of g o v e r n m e n t s (roles of l o c a l ,
s t a t e a n d n a t i o n a l g o v e r n m e n t ) , t o o l s like R i g h t to I n f o r m a t i o n A c t
a n d u n d e r t a k e projects f o r i m p r o v i n g t h e i r q u a l i t y of life t h r o u g h
good governance.
Praja b e l i e v e s t h a t w h e n t h e t h r e e m o s t i m p o r t a n t c o n s t i t u e n t s of
Governance
Administration

(viz.

Elected

and Citizens)

Representatives,
come together

Government

on a platform

/
for

d i a l o g u e w h i c h is b a s e d o n d a t a , f a c t s / i n f o r m a t i o n f r o m t h e local level
o n v a r i o u s civic a n d s e c u r i t y i s s u e s a f f e c t i n g c i t i z e n s , w e c a n b r i n g
about change and establish g o o d governance practices.

Board of Trustees
Nitai Mehta
Managing Trustee, Praja Foundation;
Entrepreneur
Sumangali Gada
Founder Trustee, Praja Foundation;
Entrepreneur
Jamal Mecklai
Trustee, Praja Foundation; Foreign Exchange
Consultant
Iris Madeira
Trustee, Praja Foundation; Education
Consultant, Board of Advisor's Centre for Civil
Society
Vivek Asrani
Trustee, Praja Foundation; Entrepreneur
Anuj Bhagwati
Trustee, Praja Foundation; Entrepreneur
Advisors to Praja

7t

K. M. S. (Titoo) Ahluwalia
Former Chairman & CEO A,C. Nielsen ORGMARG
Dr. Suma Chitnis
Social Scientist & former Vice Chancellor,
SNDT University
Julio Ribeiro
IPS (Retd.), former Commissioner of Mumbai
Police
D M Sukhtankar
Former Municipal Commissioner, Mumbai and
former Chief Secretary, Government of
Maharashtra
Dr. C. R. Sridhar
Market Research Professional
Rajan Mehra
Entrepreneur
Vinay Sanghi
Entrepreneur
Juju Basu
Advertising Professional
Sonali Shahpurwala
Banker
Mustafa Doctor
Solicitor
Dhruv Mundra
Entrepreneur
Shekhar Ghosh
Public Relations Advisor

PRAJA TEAM
Team Members
Milind Mhaske
Project Director
Priyanka Sharma
Project Manager
Balwant Kirar
Project Co-ordinator
Dakshata Bhosale
Data Entry Operator
Devank Gurav
Data Entry Operator
Diksha Redkar
Senior Data Entry Operator
Diksha Singh
Project Officer
Dilip Tambe
Chief Translator
Eknath Pawar
Senior Data Collection officer
Harshada Gundaye
Data Entry Operator
Kaustubh Gharat
Project Co-ordinator
Nilam Mirashi
Junior Data Analyst
Sadiqa Bagdadi
Administration cum Accounts
Officer
Shraddha Parab
Data Checker
Swapneel Thakur
Data Checker
Shweta Kesarkar
Project Officer
Vipul Gharat
Senior Data Entry Officer
Parinita Ganesh
Intern
Translation: Vidya Kulkarni
Designed by: Ashok Nirgulkar

ABBREVIATIONS
C D - C o m m u n i t y District
D C R - Development Control Regulations
D P - D e v e l o p m e n t Plan
E L U - Existing Land Use
E W S - Economically Weaker Sections
FSI- Floor Space Index
G D - Gross Density
HC- Home Crowding
HIG- High-income Groups
IC- Indoor Crowding
J N N U R M - Jawaharlal Nehru National Urban Renewal Mission
LIG- Low-income Groups
M C G M - M u n i c i p a l C o r p o r a t i o n of G r e a t e r M u m b a i

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M I G - Middle-income Groups

M M R - M u m b a i Metropolitan Region

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N D - Net Density

P A P - Project A f f e c t e d P e r s o n
P/Ha- Persons/Hectare
P F - Plot Factor

R A Y - Rajiv A w a s Y o j a n a
S C - Street C r o w d i n g
S R A - Slum Rehabilitation Authority
T D R - Transferable D e v e l o p m e n t Rights

in

FOREWORD
H o u s i n g is a b a s i c h u m a n n e e d . F o r e x a m p l e , p r o p e r h o u s i n g is
i n s t r u m e n t a l t o security, a s e n s e of w e l l - b e i n g , a n d a l o n e p r o v i d e s a n
e n v i r o n m e n t c o n d u c i v e to p r o p e r e d u c a t i o n a n d w h o l e s o m e h u m a n
d e v e l o p m e n t . A s m a n y h a v e a r g u e d , it s e e m s to m e t h a t t h e r e is
s i g n i f i c a n t m e r i t in t h e v i e w t h a t h o u s i n g s h o u l d be c o n s i d e r e d a
b a s i c h u m a n right. E v e n if r e a d e r s c o n t e s t t h a t v i e w , in a n y c a s e I
b e l i e v e it u n c o n t r o v e r s i a l t h a t p r o v i d i n g a d e q u a t e

housing

is a

f u n d a m e n t a l r e s p o n s i b i l i t y of society.
T h e statistics c o n c e r n i n g

h o u s i n g in M u m b a i

- and indeed

the

h o u s i n g statistics f r o m m o s t I n d i a n cities - a r e d o w n r i g h t d i s t u r b i n g .
In M u m b a i , t h e 2011 c e n s u s s t a t e s t h a t 4 1 . 8 5 % of t h e p e o p l e of
M u m b a i live in s l u m s (that is, n o t o n l y d o t h e y n o t h a v e p r o p e r h o m e s ,
v e r y o f t e n t h e y a r e d e n i e d basic i n f r a s t r u c t u r e i n c l u d i n g g a r b a g e
c l e a r a n c e ) . T h a t ' s a s t a g g e r i n g n u m b e r of p e o p l e - m a n y

many

m i l l i o n s . N o w o n d e r t h e n , t h a t w h e n city b a s e d n o n - p r o f i t

UDRI

s u r v e y e d M u m b a i ' s c i t i z e n s , t h e y i d e n t i f i e d h o u s i n g as t h e i r n u m b e r
o n e p r o b l e m . B u t it's n o t o n l y ' t h e i r ' p r o b l e m - it's a c t u a l l y a c h a l l e n g e
f o r e a c h o n e of us as c i t i z e n s to u n d e r s t a n d a n d a d d r e s s - a f t e r all,
each

o n e of us is p a r t of t h i s s o c i e t y ,

and

it's o u r

collective

r e s p o n s i b i l i t y to r e s o l v e this p r e s s i n g i s s u e . W e o w e it t o o u r f e l l o w
c i t i z e n s to m a k e rules a n d pass l a w s in a m a n n e r t h a t

promotes

d e c e n t a n d a f f o r d a b l e h o u s i n g f o r all.
G i v e n t h e i m p o r t a n c e of h o u s i n g , it's a l s o s u r p r i s i n g t h a t t h e r e is little
s e r i o u s d i a l o g u e a b o u t this issue. P e r h a p s m a n y of us h a v e ' t u n e d
out', c o n s i d e r i n g t h e issue t o o big to a d d r e s s ? O r w e h a v e a b d i c a t e d
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o u r r e s p o n s i b i l i t y t o w i s h f u l t h i n k i n g a n d h o p e in t h e i n v i s i b l e h a n d of
t h e m a r k e t ? W h a t I u s u a l l y c o m e a c r o s s in d i s c u s s i o n s o n h o u s i n g a r e
s o m e t h r e e letter a c r o n y m s , b a t t e d a r o u n d as s o l u t i o n s in a facile
m a n n e r : FSI, T D R , S R A a n d s o f o r t h .

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This h a n d b o o k makes a high quality effort to provide facts a b o u t the

h o u s i n g s i t u a t i o n in M u m b a i , f r a m e t h e b a s i c i s s u e s

concerning

h o u s i n g , e x p l a i n t h e b a s i c rules a n d t o o l s t h a t are u s e d , a n d a l s o p o i n t
to p o s s i b l e pitfalls in o u r c u r r e n t a p p r o a c h e s to t h e issue of h o u s i n g in
M u m b a i . It's w r i t t e n by e x p e r t s w h o , w i t h t h e i r e x p e r t i s e in u r b a n
p l a n n i n g a n d u r b a n affairs a n d t h e i r i n v o l v e m e n t in t h e affairs of t h e
city h a v e t h e b a c k g r o u n d a n d t h e d e p t h t o e x p l a i n t h e s u b j e c t s i m p l y

7t

and

clearly

distortion.

- but without

resorting to o v e r s i m p l i f i c a t i o n

and

www.microhomesolutions.org

By r e a d i n g t h e b o o k carefully, y o u will be r e w a r d e d by k n o w l e d g e of
t h e key a p p r o a c h e s t h a t h a v e b e e n u s e d s u c c e s s f u l l y to
housing for m o r e -

such

as i n c r e m e n t a l

housing,

provide

inclusionary

h o u s i n g , etc. You'll u n d e r s t a n d t h e i m p o r t a n c e of u r b a n p l a n n i n g in
g e n e r a l a n d M u m b a i ' s D e v e l o p m e n t P l a n in p a r t i c u l a r t o p r o v i d e
s p a c e a n d t o s e t priorities for a f f o r d a b l e h o u s i n g . You'll be a b l e to
v i s u a l i s e t h e r e l a t i o n s h i p b e t w e e n FSI a n d c r o w d i n g - a n d s e e in w h a t
m a n n e r h i g h e r FSI in plots l e a d s to m o r e l o a d o n t h e s t r e e t s . You'll
h a v e d a t a a b o u t t h e relative d e n s i t y of N e w Y o r k C i t y v i s - a - v i s M u m b a i
- another o f t e n - m i s u n d e r s t o o d subject.
Praja h o p e s m o s t of all t h a t this h a n d b o o k will e n a b l e

s
Mumbai's

a
a

c i t i z e n s , civil s e r v a n t s a n d c o r p o r a t o r s t o e n g a g e in a m o r e i n f o r m e d

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d i s c u s s i o n t h a t will s e t o u r d e m o c r a t i c w h e e l s in m o t i o n , a n d finally

p r o v i d e h u m a n e living c o n d i t i o n s f o r all.

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Praja
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PREFACE
"Housing
society

is a human
in which

right.

some

that risk, while others

There can be no fairness

live in homelessness,
cannot

even imagine

or justice

in a

or in the shadow

of

it."

T h e right to a d e q u a t e h o u s i n g a n d shelter, a basic h u m a n right, still

r e m a i n s a d i s t a n t d r e a m f o r m a n y in M u m b a i . A s p e r t h e 2011 C e n s u s
of I n d i a , o v e r 52 l a k h p e o p l e in G r e a t e r M u m b a i live in s l u m s . W i t h
2

s o a r i n g real e s t a t e p r i c e s a n d lack of a f f o r d a b l e h o u s i n g s o l u t i o n s ,
l a k h s of f a m i l i e s are f o r c e d t o live in i n h u m a n c o n d i t i o n s in t h e city of
dreams.
T h e m i s m a t c h in h o u s i n g d e m a n d - s u p p l y o c c u r s a c r o s s all i n c o m e
segments. While the economically weaker, low and

mid-income

s e g m e n t s r e m a i n u n d e r s e r v i c e d , s u p p l y e x c e e d s d e m a n d in t h e h i g h
i n c o m e s e g m e n t . T h e m e d i a n h o u s e h o l d i n c o m e in G r e a t e r M u m b a i
is o n l y R s . 2 0 , 0 0 0 per m o n t h , w h i l e t h e l o w e s t p r i c e for e v e n a s i n g l e
b e d r o o m p u b l i c h o u s i n g u n i t c o m m e n c e s at R s . 1 4 , 0 0 , 0 0 0 * . T h e r e is
a n u r g e n t n e e d to c o r r e c t this m i s m a t c h in d e m a n d a n d s u p p l y in the
city's h o u s i n g s t o c k , a n d h e n c e t h e r e is a c a s e for

Government

i n t e r v e n t i o n in t h e a f f o r d a b l e h o u s i n g s e g m e n t .
H o w e v e r , S t a t e h o u s i n g s c h e m e s h a v e b e e n s e v e r e l y i n a d e q u a t e in
a d d r e s s i n g t h e city's g r o w i n g d e m a n d . It is n e c e s s a r y t o c r e a t e 11
l a k h l o w - i n c o m e h o u s e s for s l u m d w e l l e r s , in a d d i t i o n to t h e c r e a t i o n
of n e w h o u s i n g s t o c k f o r t h e city's g r o w i n g p o p u l a t i o n . A s p e r d a t a
4

a v a i l a b l e w i t h P r a j a , a b o u t 2.2 l a k h h o u s i n g units h a v e b e e n c r e a t e d
by M H A D A , M M R D A a n d t h e S l u m R e h a b i l i t a t i o n A u t h o r i t y till d a t e .
T h i s n u m b e r i n c l u d e s r e h a b i l i t a t i o n of p e r s o n s d i s p l a c e d by v a r i o u s
cz
cn

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33

cn

i n f r a s t r u c t u r e projects a n d p r o j e c t s c u r r e n t l y u n d e r c o n s t r u c t i o n .
Moreover,

of a f f o r d a b l e

housing

projects

are

being

to 1 0 0 - 1 5 0 k m a d a y to a n d fro b u s i n e s s districts.
T h e q u a l i t y of life in u r b a n cities is a b l e n d of a m e n i t i e s (shelter, w a t e r
supply,

majority

d e v e l o p e d o n t h e o u t s k i r t s of t h e city, f o r c i n g p e o p l e t o c o m m u t e up

public transport

etc.), social

infrastructure

(facilities

p e r t a i n i n g to h e a l t h , e d u c a t i o n , s o c i o - c u l t u r a l activities etc.), a n d
o p e n s p a c e s a n d t h e s e f a c t o r s c a n n o t be i g n o r e d in t h e p l a n n i n g of
housing schemes.
U n d e r s t a n d i n g t h e w o r k i n g s of t h e Real E s t a t e a n d H o u s i n g s e c t o r

7t

c a n be c h a l l e n g i n g , w i t h a lack of readily a v a i l a b l e i n f o r m a t i o n f o r a
l a y m a n w h o m a y n o t be f a m i l i a r w i t h t h e c o n c e p t s of u r b a n p l a n n i n g .

This

Handbook

is

our

endeavour

to

familiarize

R e p r e s e n t a t i v e s a n d c i t i z e n s f r o m all w a l k s of life w i t h

Elected
Housing

c o n c e p t s a n d p r a c t i c e s , a n d lays e m p h a s i s o n l o w - c o s t h o u s i n g . It
e x p l a i n s c o n c e p t s s u c h a s I n c l u s i v e H o u s i n g , F l o o r S p a c e I n d e x etc. in
a simple manner.
Y o u g e t a n o v e r v i e w of:
K e y c o n c e p t s u s e d in H o u s i n g
T e r m s a n d C o n c e p t s f r e q u e n t l y u s e d in U r b a n P l a n n i n g
Important Agencies and their Functions
A c c o r d i n g t o t h e C o n s t i t u t i o n of I n d i a , l a n d , h o u s i n g a n d

urban

d e v e l o p m e n t a r e S t a t e s u b j e c t s a n d fall u n d e r t h e p u r v i e w of t h e State
g o v e r n m e n t . T h e State G o v e r n m e n t is e m p o w e r e d t o e n a c t

and

e n f o r c e n e c e s s a r y l a w s a n d f r a m e p o l i c i e s t h a t s u p p o r t this f u n c t i o n .
T h u s , it is t h e d u t y of o u r E l e c t e d R e p r e s e n t a t i v e s to p u r s u e p o l i c i e s
t h a t e n s u r e d e c e n t living c o n d i t i o n s f o r t h e r e s i d e n t s of M u m b a i .

s
a
a

CO

a
<
w

A w a r e n e s s m u s t p r e c e d e a c t i o n . T h e first s t e p t o w a r d s i m p r o v i n g t h e

EJ5

q u a l i t y of life a n d living s t a n d a r d s in o u r city is t o b e i n f o r m e d c i t i z e n s .

W e w e l c o m e y o u to refer this h a n d b o o k a n d h o p e t h a t it will b u i l d o n

your

understanding

of t h e

subject. W e

look forward

to

your

p a r t i c i p a t i o n in Praja's e n d e a v o u r , a n d h o p e to s t a r t a d i a l o g u e o n this

pressing issue.
W r i t e in t o us at i n f o @ p r a j a . o r g
to s h a r e y o u r t h o u g h t s / c o m m e n t s o n this H a n d b o o k .

in

Facts about Greater Mumbai

Total A r e a - 4 5 8 . 2 8 s q . k m
D e v e l o p e d A r e a - 2 7 1 . 1 7 sq k m ( 5 9 . 1 % )
A r e a u n d e r S p e c i a l P l a n n i n g A u t h o r i t i e s - 4 3 . 2 2 sq k m ( 9 . 4 % )

'

N a t u r a l A r e a s - 1 1 3 . 0 4 sq k m ( 2 4 . 7 % )
O

V a c a n t L a n d - 2 2 . 8 3 sq k m ( 4 . 9 % )

L a n d u n d e r p r i m a r y a c t i v i t i e s ( p l a n t a t i o n , salt p a n l a n d s ) - 8 sq k m ( 1 . 7 % )

cn

0
1
s

>
D

P o p u l a t i o n as of 2 0 1 1 - 1.24 c r o r e
P o p u l a t i o n living in s l u m s - 4 1 . 8 5 %
E a s t e r n S u b u r b s - P r o p o r t i o n of s l u m p o p u l a t i o n - 5 1 . 9 1 %
W e s t e r n S u b u r b s - P r o p o r t i o n of s l u m p o p u l a t i o n - 4 2 . 6 9 %
I s l a n d C i t y - P r o p o r t i o n of s l u m p o p u l a t i o n - 2 7 . 8 8 %

H o u s e h o l d size as of 2 0 1 1 - 4 . 4 8

Household Income Distribution- Only 9 % population earns more than Rs.60,000

per m o n t h

M e d i a n H o u s e h o l d I n c o m e ( a s of 2 0 0 8 ) - R s . 2 0 , 0 0 0 p e r m o n t h

Source:

Preparatory

Study, Development

Plan Mumbai

2014-34,

MCGM

I.HOUSING
CONCEPTS
1.1 Affordable Housing
1.2 Inclusionary Housing
1.3 Incremental Housing
1.4 Rental Housing

I.HOUSING C O N C E P T S
/n this section,
fundamental
institutions

concepts
such as

governments
bodies
housing

we introduce

needs

used

the

by
planning

growing

in urban

thetimes.co.uk

to

local

and urban

to address

you

CL-

!_ .

areas.

1.1 A f f o r d a b l e H o u s i n g
'Affordability' is a relative c o n c e p t a n d h a s a d i f f e r e n t m e a n i n g for d i f f e r e n t p e o p l e .
W h a t m a y be a f f o r d a b l e to o n e s e c t i o n of t h e p o p u l a t i o n is o u t of r e a c h for a n o t h e r .
H e n c e , for a large a n d d i v e r s e city like M u m b a i , no o n e size c a n fit all.
W h e n t h e British built t h e i r b u n g a l o w s t h e y w e r e c a r e f u l to p r o v i d e s e r v a n t s '
q u a r t e r s in t h e c o m p o u n d - f o r t h e i r b e a r e r s , t h e i r c o o k s , t h e i r m a l i s a n d t h e i r a y a h s .
W h e n t h e textile mills w e r e built in B o m b a y in t h e late 1 9 t h a n d e a r l y 2 0 t h c e n t u r i e s
c a r e w a s t a k e n to h o u s e t h e mill w o r k e r s in c h a w l s . T h o u g h this w a s p o o r q u a l i t y
a c c o m m o d a t i o n e v e n by t h e s t a n d a r d s of t h a t t i m e , b u t t h e r e w a s r e c o g n i t i o n t h a t
G o v e r n m e n t h a d t h e r e s p o n s i b i l i t y to m a k e s u r e w o r k e r s w e r e h o u s e d .
W i t h i n d e p e n d e n c e all t h a t c h a n g e d . N o c o n n e c t i o n w a s m a d e b e t w e e n p r o v i d i n g
employment

(and

this

was

welcomed,

and

encouraged)

and

providing

c o r r e s p o n d i n g h o u s i n g . It w a s no part of t h e e m p l o y e r ' s r e s p o n s i b i l i t y t o m a k e s u r e
his e m p l o y e e s w e r e h o u s e d . In t h e e a r l y y e a r s a f t e r I n d e p e n d e n c e s o m e e f f o r t w a s
m a d e t o p r o v i d e p u b l i c h o u s i n g , b u t this e f f o r t s o o n c e a s e d b e c a u s e h o u s i n g t o t h e
" m i n i m u m " s t a n d a r d of 2 5 0 sq ft of a p u c c a h o u s e w a s u n a f f o r d a b l e . In t h e
a l t e r n a t i v e , G o v e r n m e n t c o u l d h a v e p r o v i d e d at t h e v e r y least l a n d , w i t h w a t e r
s u p p l y a n d s a n i t a t i o n , for p e o p l e t o build t h e i r o w n s e t t l e m e n t s . T h i s w a s n o t d o n e .
A s a result, w e n o w h a v e o v e r 5 0 % of M u m b a i ' s p o p u l a t i o n living in s l u m s , w h i c h are
o

cz

cn

JJ
I

e s s e n t i a l l y u n a u t h o r i s e d a n d illegal. In 2 0 0 5 , t h e G o v e r n m e n t of M a h a r a s h t r a h a d
4 , 4 1 3 P o l i c e C o n s t a b l e s a n d 81 Police I n s p e c t o r s living in s l u m s . T h e n u m b e r s h a v e if
a n y t h i n g w o r s e n e d s i n c e . T h e s e a r e officers of t h e l a w w h o a r e illegal r e s i d e n t s of t h e
city. T h e G o v e r n m e n t is w i l l i n g to g i v e a p o l i c e m a n a j o b , b u t n o t a p l a c e w h e r e he
c a n p i t c h his tent.

cn

T h e a f f o r d a b i l i t y of h o u s i n g is d i f f e r e n t l y u n d e r s t o o d by d i f f e r e n t p e o p l e . T o d a y
a

s e v e r a l w e l l i n t e n t i o n e d d e v e l o p e r s a r e p r o d u c i n g h o u s i n g t h e y call " a f f o r d a b l e " at a

price of a r o u n d R s . 1 0 l a k h , m o s t o f t e n o n t h e o u t s k i r t s of a t o w n o r city. N o r m a l l y ,
a f f o r d a b i l i t y m e a n s a c a p i t a l c o s t of a r o u n d 3-4 y e a r s of a n n u a l i n c o m e o r a m o n t h l y
rental c o s t of a r o u n d 2 5 % of m o n t h l y i n c o m e . T h i s m e a n s t h a t a s e m i - s k i l l e d w o r k e r ,
like a m o t o r car driver, w h o t y p i c a l l y e a r n s R s . 1 0 , 0 0 0 a m o n t h , s h o u l d be a b l e to rent

7t

a p l a c e for a b o u t R s . 2 , 5 0 0 a m o n t h , o r b u y a h o u s e f o r a b o u t Rs.4 l a k h . G i v e n land

p r i c e s in t h e city, h o w a r e s u c h p r i c e s p o s s i b l e ?

11

T a b l e 1: M u m b a i - H o u s i n g S t o c k b y T y p e
No.

House Type

Pavement Dwellers

Slums

Chawls

Price Range I N R

% of Stock Nature of Stock

3,00,000-23,50,000

Informal

45

Informal

15

compliant with

Formal but non

present standard
20,00,000-40,00,000
4

Slum Rehabilitation

F o r m a l , initially
free to slum

dwellers
5

EWS/LIG

MIG/HIG

1 BHK apartments

2-3 B H K a p a r t m e n t s

65,00,000

3+ B H K apartments

25,00,00,000

10,20,000- 85,00,000

Public Housing

Public Housing
Formal
Formal

28

Formal

Total
Source: Policy Research

100
Working Paper 5475, November

2010, The World

Bank

In Table 1, total h o u s e h o l d s a r e a l l o c a t e d to a v a i l a b l e s t o c k a c c o r d i n g t o t h e i r
purchasing power using standard affordability multiples for h o m e purchase2.5 x
annual income.
Factors affecting Affordability
(a)

O n e is t h e c o s t of l a n d . If t h a t w a s e x c l u d e d f r o m t h e p r i c e , h o u s i n g w o u l d be
affordable for m a n y more people.

(b)

A n o t h e r is t h e d e m a n d f o r u p - f r o n t p a y m e n t . If t h e d o w n p a y m e n t w a s q u i t e
s m a l l , a n d p a y m e n t c o u l d be in i n s t a l m e n t s , m a n y m o r e w o u l d be a b l e to a f f o r d
t h e s a m e c o s t h o u s e . T h e a v a i l a b i l i t y of l o n g - t e r m f i n a n c e is t h u s critical to
e x p a n d i n g affordability.

S
a
a

CO

a
<

c)

A n d finally, if t h e h o u s e c o u l d be built n o t in o n e g o , b u t i n c r e m e n t a l l y , o v e r a
p e r i o d of (years o r d e c a d e s , e x p a n d i n g a n d
i m p r o v i n g in s t e p w i t h t h e g r o w i n g i n c o m e of

EJ5
a

t h e f a m i l y , a f f o r d a b i l i t y c o u l d be d r a m a t i c a l l y
improved.

A H i g h - l e v e l Task F o r c e o n ' A f f o r d a b l e H o u s i n g for

7

A l l ' has s u g g e s t e d t h a t t h e f o l l o w i n g p a r a m e t e r s be
u s e d to d e f i n e a f f o r d a b i l i t y :
in

12

T a b l e 2: P a r a m e t e r s t o d e f i n e ' A f f o r d a b i l i t y '
EWS/LIG
Size

MIG

3 0 0 - 6 0 0 sq ft c a r p e t a r e a

N o t e x c e e d i n g 1,200 sq ft
carpet area

Cost

Not exceeding 4 times household

Not

gross annual income

household

exceeding

gross

times
annual

income
EMI/Rent

Not

exceeding

30%

of

gross

monthly income

N o t e x c e e d i n g 4 0 % of g r o s s
monthly income

Source: Report of the High Level Task Force on Affordable

Housing for All,

2008

A s y o u c a n s e e , a f f o r d a b l e h o u s i n g m e a n s d i f f e r e n t t h i n g s to p e o p l e d e p e n d i n g o n
t h e i r n e e d s a n d r e s o u r c e s . F o r a P u b l i c H o u s i n g s c h e m e to be t r u l y i n c l u s i v e , it n e e d s
t o f a c t o r in t h e s e d i f f e r e n c e s .
1.2 I n c l u s i o n a r y H o u s i n g
Historically, a f f o r d a b l e h o u s i n g projects in M u m b a i h a v e b e e n m a r r e d by lack of
l a n d a v a i l a b i l i t y in t h e m a i n city. A s a result, m a n y h o u s i n g s c h e m e s h a v e b e e n
d e v e l o p e d o n t h e p e r i p h e r y of t h e city. In a bid to m a k e h o u s i n g a f f o r d a b l e , p l a n n e r s
h a v e o v e r l o o k e d t h e n e e d f o r ' i n c l u s i o n a r y ' h o u s i n g in u r b a n a r e a s . By d e v e l o p i n g
h o u s i n g projects s e g r e g a t e d o n t h e basis of e c o n o m i c b a c k g r o u n d s , d e v e l o p e r s
h a v e in a w a y c o n t r i b u t e d t o t h e g h e t t o i z a t i o n of M u m b a i . T h e p r i m a r y r e a s o n to
d i s t r i b u t e i n c l u s i o n a r y h o u s i n g t h r o u g h t h e city is to e n s u r e s o m e k i n d of s o c i a l
integration across income classes.
1.2.1 Inclusive

Housing

around

the

Globe

W i t h t h e n o t a b l e e x c e p t i o n of S i n g a p o r e , m o s t c o u n t r i e s in t h e w o r l d h a v e g i v e n up
o n p r o v i d i n g p u b l i c h o u s i n g . T h i s is b e c a u s e t h e y h a v e f o u n d p u b l i c

housing

u n m a n a g e a b l e . I n s t e a d , t h e y h a v e m a n d a t e d p o l i c i e s of w h a t is c a l l e d I n c l u s i o n a r y
cz
I
N

cn

I
33

I
N

H o u s i n g . T h e s e c o u n t r i e s i n c l u d e t h e U S A ( w h e r e t h e p r a c t i c e first s t a r t e d ) , C a n a d a ,
t h e U K , F r a n c e , Italy, S p a i n a n d o t h e r s .
A c c o r d i n g to this Policy, e v e r y d e v e l o p e r w h o u n d e r t a k e s a n y b u i l d i n g c o n s t r u c t i o n
p r o j e c t m u s t set a s i d e a s p e c i f i e d p r o p o r t i o n of t h e built f l o o r s p a c e f o r i n c l u s i o n a r y
housing.

ZI

o
a

B a s i c a l l y w h a t e a c h of t h e s e c o u n t r i e s m a n d a t e s is t h a t e v e r y d e v e l o p e r w h o
u n d e r t a k e s a n y b u i l d i n g c o n s t r u c t i o n project, w h a t e v e r its p u r p o s e , be it a mall
o r a n office o r h i g h - v a l u e r e s i d e n t i a l a p a r t m e n t s , m u s t set a s i d e a s p e c i f i e d

>

p r o p o r t i o n of t h e built f l o o r s p a c e f o r i n c l u s i o n a r y h o u s i n g . In m o s t c o u n t r i e s

t h e p r o p o r t i o n t o be t h u s set a s i d e is 2 5 % . In S p a i n it is 5 0 % . In m o s t c o u n t r i e s it

ZI

TO
o

is r e q u i r e d to be o n t h e s a m e site as t h e f o r - s a l e c o n s t r u c t i o n . In s o m e c o u n t r i e s
it c a n be o n a d i f f e r e n t site, b u t n o t t o o f a r away.

13

P u b l i c s p a c e s in p a r t i c u l a r a r e s h a r e d b y p e o p l e f r o m a v a r i e t y of w a l k s o f life.
T h e w i d e dispersion incidentally reduces travel d e m a n d because t h e loweri n c o m e p o p u l a t i o n c o m e s c l o s e r to w h e r e t h e i r j o b s are.
N e e d l e s s t o say, n o d e v e l o p e r in a n y c o u n t r y in t h e w o r l d likes i n c l u s i o n a r y
h o u s i n g . B u t it is m a n d a t e d b e c a u s e c o u n t r i e s u n d e r s t a n d t h e n e e d t o h o u s e
everybody, a n d since g o v e r n m e n t s have stopped building public housing there
is a n e e d t o f i n d a w o r k a b l e a l t e r n a t i v e .
I n c l u s i o n a r y h o u s i n g is n o t a d d r e s s e d t o t h e p o o r e s t o f t h e poor. It is i n t e n d e d
f o r all t h o s e w h o fall b e l o w 8 0 % of t h e m e d i a n i n c o m e i n o t h e r w o r d s , t h e y
c o n s t i t u t e t h e l o w e s t 4 0 % of t h e e n t i r e p o p u l a t i o n .
P u b l i c h o u s i n g d i d n o t w o r k b e c a u s e G o v e r n m e n t c o m b i n e d in itself t h e
functions of o w n i n g , building, maintaining a n d subsidising housing. W i t h
i n c l u s i o n a r y h o u s i n g t h e s e f u n c t i o n s a r e split b e t w e e n t h r e e s e p a r a t e a g e n c i e s ,
e a c h b e s t e q u i p p e d t o c a r r y o u t its s p e c i f i c f u n c t i o n .

The Developer

understands

construction. He builds the inclusionary

h o u s i n g . H e is r e i m b u r s e d t h e c o s t of c o n s t r u c t i o n . W h a t is n o t r e i m b u r s e d
is t h e c o s t o f l a n d . H e h a s t o p r o v i d e this w i t h o u t c h a r g e , b e c a u s e it is o n l y
o n t h a t basis t h a t h e g e t s p e r m i s s i o n t o build t h e f o r - s a l e c o m p o n e n t o f t h e
rest of t h e project.

A separate agency, usually an N G O , owns, m a n a g e s a n d maintains the

p r o p e r t y . It is s t r o n g l y r e g u l a t e d b y G o v e r n m e n t in r e g a r d t o w h a t it c a n
c h a r g e b y w a y of rents o r p r i c e s w h e n i n c l u s i o n a r y h o u s i n g is o f f e r e d f o r
s a l e . In t h e U K t h e s e N G O s a r e u s u a l l y H o u s i n g A s s o c i a t i o n s . T h e y c a n
borrow from banks against m o r t g a g e of the property. T h e y d r a w up t h e
specifications for the inclusionary housing which the developer has to
follow, and they supervise and pay for the construction.

Besides construction a n d maintenance, t h e third aspect of inclusionary

h o u s i n g is t h e s u b s i d y . T h i s is p r o v i d e d b y G o v e r n m e n t o n a f a m i l y - b y f a m i l y basis. In t h e U S A , it is in t h e f o r m of h o u s i n g v o u c h e r s w h i c h c a n o n l y
be u s e d t o w a r d s p a y i n g t h e i n c l u s i o n a r y h o u s e rent.

Since inclusionary housing can be bought by

Affordable

o c c u p a n t s , in a d e v e l o p m e n t it is o f t e n n o t
possible to distinguish between those w h o get
a subsidy and those w h o do not.
For t h o s e w h o b e l i e v e it is n o t p o s s i b l e o r
a c c e p t a b l e o n t h e s a m e site t o h a v e h i g h v a l u e
f l o o r s p a c e as w e l l as i n c l u s i o n a r y h o u s i n g , w e
s h o u l d n o t e t h a t in M u m b a i , a l b e i t e m e r g i n g
from a completely different context, w e have
several

successful

Slum

ptOjeCtS M
Mufflbdl tlCIVe
been
fflOtted
L

Redevelopment

A u t h o r i t y s c h e m e s . In t h e s e , s l u m d w e l l e r s
h a v e b e e n r e - h o u s e d in p u c c a b u i l d i n g s o n t h e
s a m e site a s t h e h i g h - v a l u e c o n s t r u c t i o n .

CD

Inrls

r%f lnw%M

***CA

Vf

tUfftf

availability In
.
lfflailfX
h

c i t y .

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14

1.3 I n c r e m e n t a l H o u s i n g
I n c r e m e n t a l h o u s i n g , a l s o k n o w n a s S i t e s - a n d - S e r v i c e s , is a s t e p - b y - s t e p
development

process

for

building

housing

communities.

Its

urban

fundamental

a p p r o a c h is t h a t o w n e r s c o n t r o l t h e e x p a n s i o n of t h e i r h o u s i n g b a s e d o n t h e i r n e e d s
a n d r e s o u r c e s . It is a n a f f o r d a b l e w a y to resettle h o u s e h o l d s w i t h m i n i m u m h o u s i n g
a n d s e r v i c e s a n d p r o v i d e s flexibility in h o u s i n g d e c i s i o n s . T h e w o r l d over, S i t e s - a n d S e r v i c e s p r o g r a m s e m e r g e d in t h e e a r l y 1970's, a n d in India t h e y w e r e i m p l e m e n t e d
in C h e n n a i as e a r l y a s 1 9 7 2 . T h e idea is t o p r o v i d e r e s o u r c e s t h a t h o u s e h o l d s c a n n o t
avail e a s i l y o r a f f o r d t h e m s e l v e s : E.g. a plot of land w i t h b a s i c , e s s e n t i a l utilities ( c l e a n
water, sanitation, flood

protection, security

l i g h t i n g , etc.), m u n i c i p a l

services

( g a r b a g e c o l l e c t i o n , s c h o o l s , etc.) a n d , f i n a n c i n g . I n f r a s t r u c t u r e is d e s i g n e d in a w a y
t h a t it c a n be u p g r a d e d a n d e x p a n d e d o v e r t i m e .
Key Features:
Allow building incrementally
Reduce up-front and future costs
M a k e b u i l d i n g a f f o r d a b l e (for h o m e o w n e r s , local g o v e r n m e n t s a n d s e r v i c e
providers)
Fit t h e e v o l v i n g n e e d s of l o w - i n c o m e c o m m u n i t i e s
I n c r e a s e d e n s i t y a n d u s e land m o r e e f f i c i e n t l y

cz
I

P r o v i d e flexibility

c
I
o

ZQ

Image:

Incremental

Gheda

colony

Housing,

of New

Savra

Delhi

c
ZI

o
a
z:
I
I
n

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ZI
a
o
o
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TO
Source:

15

http://lncrementalclty.wordpress.com/2012/09/18/unthlnklng-houslng-for-the-urban-poor/

Case Study: C h a r k o p sites-and-services Project

Location: Charkop, Mumbai
Period: 1985-1990
Cost: Rs.250 crore
C h a r k o p is laid o u t as a m i x e d - i n c o m e d e v e l o p m e n t , w i t h 5-6 s t o r e y e d m i d d l e i n c o m e a p a r t m e n t b l o c k s , 6 0 a n d 1 0 0 sq m b u n g a l o w p l o t s , a n d s i t e s - a n d - s e r v i c e s
u n i t s o n 2 5 - 4 0 sq m plots f o r t h e l o w e s t of t h e i n c o m e g r o u p s a c c o m m o d a t e d here.
T h e r e a r e s c h o o l s , p l a y g r o u n d s a n d p u b l i c p a r k s a c c e s s i b l e to all i n c o m e g r o u p s .
T h e p r o j e c t w a s d e v e l o p e d by M H A D A w i t h a l o a n f r o m t h e W o r l d B a n k

O n t h e s m a l l e s t p l o t s , in p r i n c i p l e all t h a t w a s p r o v i d e d w a s a p l i n t h a n d a w e t
p o i n t m e a n i n g a c o n n e c t i o n to w a t e r s u p p l y a n d s e w e r a g e . T h e o c c u p a n t w a s
e x p e c t e d t o b u i l d his o w n h u t o n t h e p l i n t h , w i t h w h a t e v e r c h e a p m a t e r i a l he
c o u l d a f f o r d . T h e r e a f t e r , he w o u l d i m p r o v e it o v e r t h e y e a r s as a n d w h e n
possible with more durable materials.

T h e bare plot itself w i t h its w e t p o i n t w a s g i v e n to t h e o c c u p a n t o n a 3 0 - y e a r

l e a s e , a n d w i t h a 2 0 - y e a r l o a n t o r e c o v e r t h e c o s t of land a n d t h e p l i n t h a n d w e t
point construction.

V i r t u a l l y all t h e a l l o t t e e s c h o s e to c o n s t r u c t t h e i r h o m e s w i t h b r i c k w a l l s a n d an
a s b e s t o s c e m e n t s h e e t roof. T w e n t y - f i v e y e a r s later, w i t h t h e 2 0 - y e a r l o a n f o r
t h e p l i n t h a n d w e t p o i n t fully p a i d b a c k , s o m e of t h e h o m e s h a v e r e m a i n e d
u n c h a n g e d . M a n y m o r e h a v e a d d e d a n i n t e r n a l stair a n d a f l o o r a b o v e a n d a
f e w h a v e g o n e e v e n higher. F l o o r i n g , w h i c h w a s o r i g i n a l l y r a m m e d e a r t h , is n o w
c o m m o n l y s t o n e , a n d in s o m e c a s e s m a r b l e .

Image: Charkop typical sites-andservices co-op society

of 33 plots. M o s t plots
are 3 m x 8 m . Those
abutting the road are
larger.

\\V\V\W\V\\\\\V\V\W\W\V

NT

d
a
o
r
e
d
i

m
9

S
a
a

CO

a
<

S h o w n a b o v e is a p l a n v i e w of t h e l a y o u t . T h e s h a d e d a r e a is o p e n t o t h e sky. N o t e

t h a t t h e r e a r e a b u t t i n g l a y o u t s o n 3 s i d e s , t o p , b o t t o m a n d left w h i c h a r e m i r r o r

EJ5

i m a g e s of t h e a b o v e . S o v e n t i l a t i o n is poor, w i t h a n o p e n i n g o n l y o n o n e n a r r o w s i d e

of t h e plot, b u t this is n e e d e d t o a c h i e v e t h e h i g h e s t d e n s i t i e s .
W i t h t h e a d d e d f l o o r a b o v e , t h e o r i g i n a l 2 2 sq m plot is n o w c o m m o n l y a 4 4 sq m

( a b o u t 5 0 0 sq ft) h o m e . It is t r u e h o w e v e r t h a t it is p o o r l y v e n t i l a t e d , w i t h o t h e r
h o u s e s a b u t t i n g b o t h long s i d e s a n d t h e rear w a l l , s o t h a t o n l y t h e f r o n t f a c e is o p e n .
H o w e v e r , in t h e w a y t h e plots h a v e b e e n laid o u t t h e y h a v e b e c o m e s t r o n g co
o p e r a t i v e c o m m u n i t i e s of 3 3 f a m i l i e s in e a c h c o - o p e r a t i v e .

in

16

L to R: Entrance
typical

internal

have added

to a typical
courtyard.

33-family

Some

houses

sites-and-services
have

an upper floor. Note the manholes

the centre of the

remained

co-op

and

view of a

single-storeyed;

of the drainage

most

line running

down

courtyard.

Here

is a gate

into

where the entrance

(illegally)

built

the

passage

courtyard
has

been

over to add an

extra

room.

cz
cz

I
,
z

zo
cz
W

I
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ZI

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ZI
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o
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17

Incremental
housing, also known
as Sites-andServices, is a stepby-step urban
development
process for building
housing
communities.

View

into

entrance
covered
stair

over,

placed

passage.
weak

The main road,

on plots

with apartment

that abut the main

the courtyard
passage

showing
within

from

which

has
the

the

access
entrance

This must be a co-op

enforcement

individual

member

away with

this.

and
who

the
been

a
can

with
strong
get

buildings
road.

18

Looking

towards

passage

from

Note

again

single

storied

the

within
that

the

some

entrance
courtyard.
houses

and some have

The 9m wide
courtyard

road

opens.

on to which

Note

are

services

plots

allowed

to have a shop opening

street,

with

behind

the

the shop.

gives

the street

and

active.

family

the

road

are

on

living

This works

a feeling

each

sites-and-

added

a floor.

abutting

that

well

of being

the

space
and
busy

Salient Features of the Project

cz
I

zv
cz

In t h e C h a r k o p s c h e m e t h e c o s t of land for t h e s i t e s - a n d - s e r v i c e s plots w a s

c r o s s - s u b s i d i s e d by c h a r g i n g m o r e f o r t h e b u n g a l o w a n d a p a r t m e n t plots.

A d j o i n i n g t h e s i t e s - a n d - s e r v i c e s , a t i n t e r v a l s , a r e plots f o r s c h o o l s , s c h o o l
p l a y g r o u n d s a n d a p u b l i c park.

T h e critical i s s u e h e r e is d e n s i t y , a n d h o w m u c h w e c a n a c h i e v e w i t h this k i n d of

scheme. The sites-and-services

ZI

i n c l u d e d , h a v e a n e t d e n s i t y of 3 4 8 d w e l l i n g units p e r h e c t a r e . T h e a p a r t m e n t

I
o
a
z:
I
I

b l o c k s h a v e a n e t d e n s i t y of half t h a t , 171 units p e r h e c t a r e of b u i l d a b l e plot

social facilities, 1 0 % by o p e n s p a c e a n d 2 0 % by r o a d s . T h e s e a r e all local r o a d s ,
n o t i n t e n d e d for a r t e r i a l traffic, w h i c h r u n s o u t s i d e t h e b o u n d a r i e s of t h e

TO

scheme.

T w o - t h i r d s of t h e s c h e m e ' s p o p u l a t i o n is in t h e s i t e s - a n d - s e r v i c e s s c h e m e ; o n e third is in b u n g a l o w plots a n d a p a r t m e n t b l o c k s .

19

courtyards

a r e a . T h e plots t o g e t h e r c o n s t i t u t e 6 0 % of t h e t o t a l a r e a . 1 0 % is t a k e n up by

>
ZI
a
o
o
z^

plots a l o n e , w i t h t h e i r i n t e r n a l

We

should

note

that

bankbazaar.com

sites-and-

s e r v i c e s , d e s p i t e all its plus p o i n t s , is

n o t a s o l u t i o n f o r t h e p o o r e s t of t h e
poor. Rather, it is a d d r e s s e d to t h o s e
a b o v e t h e b o t t o m 10 p e r c e n t i l e , w h o
h a v e a r e g u l a r s o u r c e of i n c o m e a n d
can

a f f o r d to p a y b a c k a l o a n

in

instalments, however small these may

be.

But

it d o e s t a k e

care

of

the

h o u s i n g n e e d s of a v e r y large s e c t i o n
of t h e total p o p u l a t i o n .

1.4 R e n t a l H o u s i n g
R e n t a l H o u s i n g refers to a p r o p e r t y o w n e d by s o m e o n e o t h e r t h a n t h e r e s i d e n t o r by
a legal e n t i t y f o r w h i c h t h e r e s i d e n t pays a p e r i o d i c rent to t h e o w n e r . S o c i a l rental
h o u s i n g is d e f i n e d as rental a c c o m m o d a t i o n in w h i c h t h e r e n t is set at a level b e l o w
m a r k e t rates t o m a k e it a f f o r d a b l e f o r e c o n o m i c a l l y d i s a d v a n t a g e d s e c t i o n s of
society. O n e s u c h f o r m of s o c i a l rental h o u s i n g is P u b l i c H o u s i n g in w h i c h t h e
h o u s i n g s t o c k is c r e a t e d a n d o w n e d by t h e G o v e r n m e n t . W h i l e h o m e o w n e r s h i p has
its o w n m e r i t s , rental h o u s i n g c a n p l a y a n i m p o r t a n t role in filling g a p s in h o u s i n g
m a r k e t s . A l s o , in a city like M u m b a i w i t h a large m i g r a n t p o p u l a t i o n , r e g u l a t e d rental
s c h e m e s c a n o f f e r c i t i z e n s a w i d e r r a n g e of h o u s i n g o p t i o n s t o c h o o s e f r o m .
"Rental

housing

is a valuable

in their

lifetime

and therefore

tenure

housing

stock of every

to virtually

should

every household

at some

a substantial

element

stage
in

the

T h e rental h o u s i n g s e g m e n t in M u m b a i is m a i n l y i n f o r m a l o r u n o r g a n i z e d

i.e.

society."

constitute

s e r v i c e d by i n d i v i d u a l p r o p e r t y o w n e r s . T h e s h o r t a g e of a f f o r d a b l e h o u s i n g in
M u m b a i has b e c o m e m o r e a c u t e w i t h t h e l a c k of a l t e r n a t i v e s s u c h as rental h o u s i n g .
T h e d e v e l o p m e n t of r e n t m a r k e t s has in t u r n b e e n h a m p e r e d by r e n t c o n t r o l
r e g u l a t i o n s s u c h as t h e M a h a r a s h t r a R e n t C o n t r o l A c t 1 9 9 9 .
"In many
transfer
sector.
poorer

European

countries,

the responsibility
In the United
households

has

In 2001,

total housing

stock

of the
Ireland,

rental

the Netherlands,
rental
stock."

housing

been

social

housing

rental

has

sought

income

of the responsibility
from

the

institutions

local

accounts

for

accommodating

authorities

accounted

have become
three-quarters

to

social
housing

for one fifth of the

of the rental
of all rental

to

to the

stock.
stock
housing

for half of the rental

institutions
contributed

increasingly

groups

to half of the new housing

for 43 per cent

sector

in 2001

lower

than two-thirds

social housing
and

sector

after

passed

contributed

and accounted

the social

much

and more

housing

1990s

for looking

Kingdom,

associations.
social

the public

In

CO

a
<
w

E/5
a

Denmark,

during

much

in 2001.

housing

stock.

the main providers

of the

a
a

total

In

In
of

rental
in

20

India's e x p e r i e n c e w i t h R e n t a l H o u s i n g s c h e m e s

has

been

l i m i t e d t h u s far. B a s e d o n t h e M a h a r a s h t r a S t a t e H o u s i n g Policy
of 2 0 0 7 , G o v e r n m e n t of M a h a r a s h t r a i n i t i a t e d a R e n t a l H o u s i n g
S c h e m e ( R H S ) w i t h t h e p a r t i c i p a t i o n of p r i v a t e s e c t o r in 2 0 0 7 .
1 0

M M R D A is t h e Project I m p l e m e n t a t i o n A g e n c y f o r t h e Rental
H o u s i n g S c h e m e . U n d e r t h e s c h e m e , t h e private s e c t o r is
o f f e r e d i n c e n t i v e F l o o r S p a c e I n d e x in r e t u r n f o r p r o v i d i n g selfc o n t a i n e d t e n e m e n t s of 1 6 0 sq ft c a r p e t a r e a , a l o n g w i t h t h e
l a n d to M M R D A f r e e of c o s t . T h e units shall t h e n be a l l o t t e d to
eligible low i n c o m e group

households. The

RHS

is

being

i m p l e m e n t e d s i n c e 2 0 0 8 in u r b a n a r e a s of t h e M M R ( e x c e p t in
t h e limits of N a v i M u m b a i a n d M a t h e r a n M u n i c i p a l C o u n c i l . )
C u r r e n t l y , R e n t a l H o u s i n g P r o j e c t s are in p r o g r e s s in t h e u r b a n
local b o d i e s of T h a n e , M i r a B h a y a n d e r , K a l y a n a n d in P a n v e l
T a l u k a of R a i g a d district. H o w e v e r , no project h a s t a k e n off in
M u m b a i t h u s far. M o r e o v e r , t h e s c h e m e is likely t o be r e p l a c e d
by a n o w n e r s h i p m o d e l of a f f o r d a b l e h o u s i n g , s i n c e t h e s c h e m e
h a s b e e n f o u n d to be u n v i a b l e .
1 1

I
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I
|
W
j
E
E
Z
K
V

21

Rental Housing
refers to a property
owned by someone
other than the
resident or by a
legal entity for
which the resident
pays a periodic rent
to the owner.

II. U R B A N
PLANNING
2.1

Maharashtra Regional and Town

Planning (MRTP) Act, 1966
Development Plan
Development Control Regulations
(DCR) for Greater Mumbai, 1991
stifying FSI

0%
^^g-i

^ ^ ^ ^ ^ ^ ' u A K I t i e DEMOCRACY WORK

^^^^

II. U R B A N P L A N N I N G
Urban Development Mumbai

Development Plan
Development Control
Regulations

In m a n y v i l l a g e s , h o u s e s are built c l o s e t o e a c h other. T h i s m a y be for security, o r for

s o c i a l r e a s o n s . T h e l a y o u t is i n f o r m a l . Paths c a n be w i n d i n g t h r o u g h t h e s e t t l e m e n t .
S o m e a r e w i d e e n o u g h o n l y to w a l k u p o n ; o t h e r s are w i d e e n o u g h s o t h a t a b u l l o c k c a r t c a n r e a c h e a c h h o u s e . T h e r e is u s u a l l y s o m e c o m m o n , c e n t r a l a r e a r e s p e c t e d by
all w h i c h no o n e b u i l d s u p o n . B u t n o t i c e t h a t in t h e v i l l a g e t h e r e a r e no c o m m o n
s e r v i c e s . E a c h f a m i l y f e t c h e s its o w n w a t e r f r o m t h e river, o r c o m m o n t a n k o r w e l l .
In m a n y of o u r u n a u t h o r i s e d s l u m s e t t l e m e n t s p e o p l e h a v e built t h e i r h u t s j u s t as
t h e y w o u l d in t h e i r v i l l a g e s . P a t h s b e t w e e n h u t s a r e n a r r o w a n d o f t e n m e a n d e r i n g .
W a t e r is f e t c h e d by all f r o m s o m e c o m m o n s o u r c e . P r o p e r s a n i t a t i o n is o f t e n n o t
p r o v i d e d , a n d u s u a l l y t h e r e is no o r g a n i s e d g a r b a g e c o l l e c t i o n . O n c e y o u h a v e a
l a r g e r s e t t l e m e n t t h e s i t u a t i o n c h a n g e s . N o w it b e c o m e s i m p o r t a n t to o r g a n i s e a
c o m m o n w a t e r s u p p l y , a n d a c o m m o n s e w a g e s y s t e m . T h i s w a s w h a t w a s d o n e in
H a r a p p a a n d M o h e n j o D a r o . S t r e e t s w e r e laid o u t t h a t w e r e w i d e e n o u g h to h a n d l e
traffic. D i f f e r e n t s e c t i o n s of t h e t o w n w e r e r e s e r v e d for d i f f e r e n t f u n c t i o n s . A l o n g t h e
s t r e e t , plots w e r e d e f i n e d w h e r e i n d i v i d u a l s c o u l d b u i l d t h e i r o w n h o u s e s . T h e
d i f f e r e n c e b e t w e e n a v i l l a g e a n d a t o w n is t h a t in t h e t o w n c e r t a i n s e r v i c e s are
c o m m o n , o r g a n i s e d a n d m a n a g e d by t h e t o w n . N o o n e n e e d s to d i g his o w n w e l l .
N o o n e n e e d s to p r o v i d e his o w n s e p t i c t a n k . G a r b a g e is c o l l e c t e d in a n o r g a n i s e d
w a y , c a r r i e d a w a y a n d d i s p o s e d of w i t h o u t t h e i n d i v i d u a l h o u s e h o l d e r h a v i n g t o
w o r r y a b o u t it.
o
d

D i f f e r e n t p a r t s of t h e city a r e d i f f e r e n t b e c a u s e e a c h locality in a city

h a s its o w n s p e c i f i c f u n c t i o n . W h e n y o u g o to t h e b a z a a r in a city y o u
w a n t all t h e s h o p s to be t h e r e . T h e y s h o u l d

n o t be

distributed t h r o u g h o u t the settlement. Residences also

randomly
similarly

cluster together. O n a busy street y o u might have shops on the

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g r o u n d f l o o r a n d r e s i d e n c e s a b o v e . In b e t w e e n , in e a c h locality, y o u
n e e d c o m m o n a r e a s for m e e t i n g a n d r e c r e a t i o n , j u s t as y o u h a v e in a
v i l l a g e . Y o u a l s o n e e d s c h o o l s , h o s p i t a l s , p o l i c e s t a t i o n s a n d all kinds
of o t h e r c o m m o n facilities t h a t are s h a r e d by all. N o w t h a t w e h a v e

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c o m e t o u n d e r s t a n d t h e i m p o r t a n c e of s a n i t a t i o n , w e c a n a g r e e t h a t
w e n e e d p u b l i c toilets t o o .

Different Layouts a n d Building Rules

In t h e m i d d l e of t h e 1 9 t h c e n t u r y N a p o l e o n III c o m m i s s i o n e d B a r o n H a u s s m a n n to
r e b u i l d Paris. H a u s s m a n n d e m o l i s h e d large t r a c t s of t h e o l d city, w i t h its m e a n d e r i n g
m e d i e v a l s t r e e t s . H e r e p l a c e d t h e m w i t h b r o a d a v e n u e s a n d v e r y strict b u i l d i n g
rules. B u i l d i n g s a l o n g a n a v e n u e w e r e r e q u i r e d t o build e x a c t l y to t h e s a m e f r o n t
line, t o u c h i n g t h e f o o t p a t h . E a c h f l o o r h a d to be at t h e s a m e level, f r o m b u i l d i n g to
b u i l d i n g . T h e o v e r a l l b u i l d i n g h e i g h t s w e r e a l s o i d e n t i c a l . T h e f a c a d e h a d t o be
f i n i s h e d w i t h t h e s a m e s t o n e . T h e g r o u n d f l o o r w a s for s h o p s , a n d c a f e s s p i l l i n g o u t
o n to t h e f o o t p a t h . It is t h e s e rules t h a t g i v e Paris its c h a r a c t e r i s t i c s t r e e t s c a p e .
In M u m b a i w e h a v e Ballard E s t a t e w h e r e t h e r e a r e n o f r o n t o p e n s p a c e s w i t h i n a
c o m p o u n d . A l l b u i l d i n g s f o l l o w a strictly d e f i n e d f r o n t line. T h e M a l a d s t o n e u s e d
t h r o u g h o u t is a l s o i d e n t i c a l f o r all f a c a d e s .
W e a l s o h a v e M a r i n e D r i v e , w h e r e t h e f o o t p r i n t of e a c h b u i l d i n g is i d e n t i c a l w i t h its
n e i g h b o u r ' s . T h e f r o n t line is a l s o d e f i n e d . B u i l d i n g h e i g h t s w e r e a l s o o r i g i n a l l y
i d e n t i c a l . It is this u n i f o r m i t y t h a t g i v e s M a r i n e D r i v e its p a r t i c u l a r c h a r a c t e r a n d
c h a r m . In B h u l e s h w a r , K a l b a d e v i a n d o t h e r p a r t s of w h a t t h e British c a l l e d t h e native
t o w n t h e rules w e r e less rigid. S o t h e localities d e v e l o p e d q u i t e differently. In D a d a r ,
plots w e r e laid o u t a n d t h e rule w a s t h a t y o u r p l i n t h c o u l d be n o m o r e t h a n o n e - t h i r d
of t h e plot. O n this y o u w e r e a l l o w e d t o build G r o u n d + 2 f l o o r s . Later, this w a s
r e l a x e d , a n d a t h i r d u p p e r f l o o r c o u l d be a d d e d .
T h e b a s i c p u r p o s e of b u i l d i n g r e g u l a t i o n s is to limit t h e n u m b e r of p e o p l e w h o c a n
r e s i d e in a n a r e a for t h e f o l l o w i n g r e a s o n s :

W a t e r s u p p l y a n d s e w e r a g e s y s t e m s h a v e limits to t h e n u m b e r of p e o p l e t h e y

T h e r o a d s y s t e m ' s c a p a c i t y is a l s o l i m i t e d . T h e locality's r o a d a r e a a v a i l a b l e for

can handle.
c i r c u l a t i o n s g e t s f u r t h e r c o n s t r a i n e d if o n - s t r e e t p a r k i n g is a l l o w e d , o r if t h e r e is
arterial traffic r u n n i n g a c r o s s t h e locality a n d t a k i n g up m u c h of t h e r o a d .

W e a l s o h a v e to m a k e s u r e t h a t e v e r y o n e g e t s s u f f i c i e n t light a n d air.
B u i l d i n g s m u s t n o t be s o c l o s e to e a c h o t h e r t h a t fire c a n s p r e a d f r o m o n e t o t h e

next.

cz

B y limiting h o w m u c h f l o o r s p a c e c a n be built o n a plot w e i n d i r e c t l y limit t h e

r e s i d e n t p o p u l a t i o n . O f c o u r s e if p e o p l e c h o o s e to live in s m a l l e r flats t h e r e will be

m o r e of t h e m . If t h e f l o o r s p a c e o c c u p i e d p e r f a m i l y is m o r e , t h e n for t h e s a m e f l o o r

s p a c e t h e r e will be f e w e r f a m i l i e s r e s i d i n g in t h e a r e a .

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2.1 M a h a r a s h t r a R e g i o n a l a n d T o w n P l a n n i n g ( M R T P ) A c t , 1 9 6 6
W i t h a v i e w to s e c u r i n g p l a n n e d d e v e l o p m e n t a n d u s e of land in a r e g i o n , t h e M R T P
a c t p r o v i d e s f o r t h e p r e p a r a t i o n of a D e v e l o p m e n t P l a n .
"Every
and

Planning
prepare

accordance
notice

Authority
a draft

shall carry out a survey

development

with the provisions

in the Official

Gazette

that the draft development

plan

of a Regional

area

The Planning

to the State

Government

about

Authority

the progress

an existing
within

land-use

map

its jurisdiction,

in

plan, where there is such a plan [publish

plan has been prepared]

for sanction.

the

prepare

the

and in such other manner

Government
prepare

for

as may be prescribed

and submit

the plan to the

shall also submit

a quarterly

made

in carrying

stating
State
Report

out the survey

and

plan."

12

T h u s , t h e s p a t i a l g r o w t h a n d d e v e l o p m e n t of M u m b a i is g u i d e d a n d m a n a g e d by
t w o main tools:

2.2
cz
I
N

I
o

D e v e l o p m e n t Plan

T h e D e v e l o p m e n t P l a n ( D P ) of M u m b a i p r o v i d e s a spatial f r a m e w o r k t o w a r d s
b u i l d i n g a n i n c l u s i v e a n d s u s t a i n a b l e city. T h e M a h a r a s h t r a R e g i o n a l T o w n

&

P l a n n i n g A c t 1 9 6 6 s t i p u l a t e s r e v i s i o n of r e g i o n a l d e v e l o p m e n t p l a n s a t least o n c e in
t w e n t y y e a r s . T h e first D P f o r M u m b a i w a s s a n c t i o n e d in 1 9 6 7 . D P 1 9 6 7 w a s r e v i s e d
subsequently

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and sanctioned

in p a r t s f r o m

1991

to

1994. As the

previous

D e v e l o p m e n t P l a n of M u m b a i c a m e into f o r c e in 1 9 9 4 a n d is c u r r e n t l y in its final

s t a g e s , a r e v i s e d D P f o r t h e p e r i o d 2 0 1 4 - 3 4 is b e i n g p r e p a r e d by t h e M C G M .
G a i n i n g a n u n d e r s t a n d i n g of t h e e x i s t i n g land u s e s i t u a t i o n is a k e y p r e m i s e of t h e

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p l a n . A realistic u n d e r s t a n d i n g of t h e e x i s t i n g s i t u a t i o n w o u l d e n a b l e f o r m u l a t i o n of

>

l a n d u s e z o n i n g a n d r e g u l a t o r y c o n d i t i o n s to m e e t w i t h d e m a n d s d u r i n g t h e

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h o r i z o n p e r i o d of t h e p l a n . In a d d i t i o n t o G e n e r a l Z o n i n g a n d D e v e l o p m e n t C o n t r o l
R e g u l a t i o n s , t h e P l a n will i d e n t i f y u n d e r t a k i n g of d e t a i l e d a r e a - s p e c i f i c p l a n n i n g
and regulations for significant areas.

25

T h e M C G M is c u r r e n t l y h o l d i n g c o n s u l t a t i o n s w i t h E l e c t e d R e p r e s e n t a t i v e s , o t h e r
g o v e r n m e n t organizations, N G O s , a c a d e m i c institutions and citizens based on the
Preparatory Studies for the D e v e l o p m e n t Plan.
T h e D e v e l o p m e n t P l a n c a n be a n i m p o r t a n t t o o l in t h e h a n d s of civic a u t h o r i t i e s a n d
civil s o c i e t y t o p l a n f o r a s l u m - f r e e M u m b a i a n d f o c u s o n g e n e r a t i o n of a f f o r d a b l e
h o u s i n g . H o w e v e r , a r e a s u n d e r t h e j u r i s d i c t i o n of S p e c i a l P l a n n i n g A u t h o r i t i e s s u c h
as S R A , M M R D A etc. h a v e b e e n left o u t of t h e p l a n n i n g p r o c e s s in t h e P r e p a r a t o r y
S t u d i e s of t h e D P 2 0 1 4 - 3 4 . T h e result is t h a t M u m b a i ' s s l u m p o p u l a t i o n has b e e n left
o u t of t h e s c o p e of t h e D e v e l o p m e n t P l a n .
2.2.1 Fatal Flaws in the Development

Plan:

T h e e n t i r e D e v e l o p m e n t P l a n is f a t a l l y f l a w e d . First, as a p r o c e s s it h a s l o n g since
b e e n a b a n d o n e d all o v e r t h e w o r l d . G r e a t B r i t a i n , f r o m w h o m w e c o p i e d t h e p r o c e s s ,
g a v e it up 50 y e a r s a g o . T h i s is b e c a u s e it is b a s e d o n f o r e c a s t i n g w h a t t h e city w i l l
. - .-

- - j

.-

~. .

...

l o o k like 2 0 y e a r s f r o m n o w . T h i s is a n i m p o s s i b l e t a s k b e c a u s e t h e r e a r e t o o m a n y
f a c t o r s o u t s i d e t h e p l a n n e r ' s c o n t r o l t h a t d e t e r m i n e h o w t h e city finally d e v e l o p s .
S e c o n d l y , it is a p u r e L a n d U s e P l a n , as if t h a t is all t h a t is n e e d e d t o c o n t r o l a n d d i r e c t
d e v e l o p m e n t . In p r a c t i c e t h e w a y t h e city g r o w s is d e t e r m i n e d m o r e b y u r b a n
policies and infrastructure projects, particularly transport systems a n d w h e r e n e w
a c c e s s i b l e land is a d d e d to t h e city. Policies in r e g a r d t o F S I , o r r e d e v e l o p m e n t , o r
r e n t c o n t r o l h a v e a h u g e i m p a c t o n t h e city, a n d all t h e s e lie o u t s i d e t h e s c o p e of t h e
D e v e l o p m e n t P l a n . Further, in t h e s p e c i f i c c a s e of M u m b a i , large h o l e s a r e c u t o u t of
t h e p l a n n i n g a r e a , as b e i n g e i t h e r s l u m s , o r a r e a s u n d e r t h e c o n t r o l of a d i f f e r e n t
S p e c i a l P l a n n i n g A u t h o r i t y s u c h as M M R D A , w h i c h d o e s its o w n p l a n n i n g f o r t h e
a r e a u n d e r its c o n t r o l , w i t h o u t r e f e r e n c e to t h e D e v e l o p m e n t P l a n . W h a t is left
t h e r e f o r e is n o t c o m p r e h e n s i v e p l a n n i n g , n o t e v e n of L a n d U s e .
S o t h e D e v e l o p m e n t P l a n is e s s e n t i a l l y a f u t i l e e x e r c i s e , c a r r i e d o u t w i t h n o

d e e p e r o b j e c t i v e t h a n f o r m a l c o m p l i a n c e w i t h a n o u t d a t e d law.

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maguspmc.fiies.wjdJ3ss.com

sustainable city.
26

2.3 D e v e l o p m e n t C o n t r o l R e g u l a t i o n s ( D C R ) f o r G r e a t e r M u m b a i , 1991
T h e i m p l e m e n t a t i o n of t h e D e v e l o p m e n t P l a n is a d d r e s s e d t h r o u g h D e v e l o p m e n t
Control

Regulations. The

regulations were framed

to control

development/

r e d e v e l o p m e n t in G r e a t e r M u m b a i . T h e p r e s e n t D C R c a m e into f o r c e f r o m 2 5 t h
March 1991.
T h e m o s t c r u c i a l r e g u l a t i o n u n d e r t h e D C R is t h e s p e c i f i c a t i o n of F l o o r S p a c e I n d e x
( F S I ) f o r c o n s t r u c t i o n p r o j e c t s in G r e a t e r M u m b a i . T h e FSI is d e t e r m i n e d d e p e n d i n g
o n t h e l o c a t i o n a n d t y p e of c o n s t r u c t i o n p r o j e c t s . E.g. T h e FSI a l l o w e d in M u m b a i
C i t y is 1.33 f o r all t y p e s of c o n s t r u c t i o n . H o w e v e r , f o r a c e s s e d " b u i l d i n g , t h e FSI c a n
v a r y b e t w e e n 2.5 t o 4 . For M H A D A l a y o u t s , t h e FSI is 2.5 a n d for S l u m R e h a b i l i t a t i o n
p r o j e c t s t h e FSI is 4.
Other important Provisions under D C R

H i g h e r FSI for u r b a n r e n e w a l s c h e m e s , r e d e v e l o p m e n t of o l d a n d d i l a p i d a t e d
c e s s e d b u i l d i n g s , a n d r e h a b i l i t a t i o n of s l u m d w e l l e r s

Granting

permission

for

development

of

land

reserved

for

public

h o u s i n g / r e h a b i l i t a t i o n by i n t r o d u c i n g h i g h e r t e n e m e n t d e n s i t y f o r t h e a r e a s
located for these reservations

Insisting

upon the

developer for providing

basic amenities

in c a s e

of

d e v e l o p m e n t of large c h u n k s of land m e a s u r i n g m o r e t h a n t w o h e c t a r e s

P e r m i t t i n g h i g h e r FSI f o r r e c o n s t r u c t i o n o r r e d e v e l o p m e n t of o l d b u i l d i n g s
c o n s t r u c t e d prior to 1 9 4 0

P e r m i t t i n g r e s i d e n t i a l / c o m m e r c i a l d e v e l o p m e n t in i n d u s t r i a l z o n e l a n d s w i t h
the

p r o v i s i o n of p r o v i d i n g

proportionate

amenity

spaces for

additional

population

P e r m i t t i n g r e d e v e l o p m e n t of land of c o t t o n textile mills f o r o p e n s p a c e s a n d

public housing

P r e s e r v a t i o n of b u i l d i n g s a n d p r e c i n c t s of h i s t o r i c a l , a e s t h e t i c a l a n d c u l t u r a l
value

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2.4 D e m y s t i f y i n g FSI
'Cidco proposes

floor space index of 3 for building

'FSI of 4 for old buildings:

redevelopment'

CM'

F l o o r - s p a c e i n d e x o r FSI is a c o m m o n l y u s e d a n d o f t e n m i s u n d e r s t o o d t e r m in
U r b a n P l a n n i n g . I n t r i g u e d by all t h e f u s s a r o u n d this t e r m 'FSI', w e s p o k e t o Mr.
S h i r i s h P a t e l , a n e x p e r t o n u r b a n p l a n n i n g a f f a i r s , to s o l v e t h e FSI m y s t e r y . W h a t is
FSI a n d w h a t d o e s a n i n c r e a s e o r d e c r e a s e in FSI m e a n for a city like M u m b a i ? T h e s e
a r e s o m e of t h e q u e s t i o n s w e a d d r e s s in this s e c t i o n .
Praja:

What is FSI?

S h i r i s h P a t e l : FSI ( F l o o r S p a c e I n d e x ) is t h e ratio of t h e b u i l t - u p a r e a of a
b u i l d i n g to t h e g r o u n d a r e a of t h e plot o n w h i c h it is built. T h i s is a n idea t h a t c a m e
f r o m A m e r i c a p o s t W o r l d W a r II. I n s t e a d of p r e s c r i b i n g t h e m a x i m u m plot c o v e r a g e
( o n e - t h i r d in t h e c a s e of D a d a r H i n d u C o l o n y , o r D a d a r P a r s e e C o l o n y ) a n d a l s o
p r e s c r i b i n g t h e m a x i m u m n u m b e r of f l o o r s ( G r o u n d + 3 in D a d a r ' s c a s e ) , w e c o u l d
i n s t e a d p r e s c r i b e a n FSI of 1.33. O n t h e s a m e f o o t p r i n t , this rule w o u l d p r o d u c e
e x a c t l y t h e s a m e b u i l d i n g s . T h i s is w h e r e t h a t p e c u l i a r n u m b e r of 1.33 FSI c o m e s
f r o m . It c o r r e s p o n d s t o o n e - t h i r d plot c o v e r a g e a n d G + 3 f l o o r s . T h e a d v a n t a g e of
t h e FSI rule, for a r c h i t e c t s , is t h a t t h e y are n o w f r e e t o alter t h e f o o t p r i n t , m a k i n g it
s m a l l e r o r b i g g e r t h a n o n e - t h i r d of t h e plot a r e a . T h e b u i l d i n g will t h e n h a v e
c o r r e s p o n d i n g l y m o r e o r f e w e r f l o o r s , as d e s i r e d . B u t t h e total b u i l t - u p f l o o r a r e a will
r e m a i n u n c h a n g e d b e c a u s e of t h e p r e s c r i b e d FSI limit. For e x a m p l e , if t h e f o o t p r i n t
is r e d u c e d t o o n e - s i x t h of t h e plot a r e a t h e b u i l d i n g c a n h a v e 8 f l o o r s (G + 7) w h i l e still
a d h e r i n g to t h e FSI limit of 1.33.
O v e r t h e y e a r s , FSI has c o m e to be t h e d o m i n a n t b u i l d i n g r e g u l a t i o n in M u m b a i .
F a c a d e s w i t h a n y k i n d of c o m m o n t h e m e , e v e n a c o m m o n f r o n t line, are a t h i n g of
t h e p a s t . T h a t is w h y w e n o w h a v e a m o r e a n d m o r e c h a o t i c l o o k i n g

urban

e n v i r o n m e n t . E a c h b u i l d i n g is a l w a y s s t r i v i n g to be s t r i k i n g l y d i f f e r e n t f r o m its
d

neighbour.
ijg, Praja:

33

increase

Can you

give

an

example of what

happens

when

we

suddenly

FSI?

S h i r i s h P a t e l : In t h e W e s t e r n s u b u r b s t h e FSI w a s e a r l i e r 1.0. In t h e 1 9 9 0 s t h e
ZI

o
a

n o t i o n of T r a n s f e r a b l e D e v e l o p m e n t R i g h t s ( T D R ) " w a s a c c e p t e d . T h e s e w e r e
g r a n t e d t o b u i l d e r s w h o t o o k up r e d e v e l o p m e n t w o r k w h i c h t h e city w a n t e d . In
c o m p e n s a t i o n t h e y w e r e a l l o w e d to build in t h e W e s t e r n s u b u r b s u p to a n i n c r e a s e d

>

FSI limit of 2. T h i s w a s d o u b l e t h e p r e v i o u s v a l u e . B e c a u s e t h e f l o o r a r e a a v a i l a b l e

ZI

d o u b l e d , t h e p o p u l a t i o n r e s i d e n t in t h e a r e a a l s o d o u b l e d . T h i s w a s p e r c e p t i b l e

i m m e d i a t e l y in t h e i n c r e a s e d s t r e e t c o n g e s t i o n .

TO
a

29

Praja:
Can FSI
another?

be varied

from

one plot

to another

or one

locality

to

^0 S h i r i s h P a t e l : Y e s i n d e e d it s h o u l d . W h a t is c a l l e d T r a n s i t O r i e n t e d
D e v e l o p m e n t ( T O D ) m e a n s e x a c t l y t h a t . T O D m e a n s t h a t y o u a l l o w h i g h e r FSI ( a n d
t h e r e f o r e m o r e c r o w d i n g , a h i g h e r d e n s i t y of p e o p l e ) a r o u n d a t r a n s i t n o d e . A r o u n d
s u c h a n o d e p e o p l e a r e w i t h i n w a l k i n g d i s t a n c e of t h e t r a n s i t s t o p . A s y o u m o v e
f u r t h e r a n d f u r t h e r a w a y t h e FSI s h o u l d g o o n d e c l i n i n g . T h e l o w e s t F S I , f o r e x a m p l e
f o r b u n g a l o w p l o t s , s h o u l d be f u r t h e s t a w a y f r o m t h e t r a n s i t s t o p .
Praja: In that case why have we not adopted this earlier? Why has FSI been
more or less uniform,
7.33 throughout
the Island City, and 1.0 in the
Suburbs?
S h i r i s h P a t e l : T h e r e has b e e n a n o t i o n t h a t o n e m u s t be e q u a l l y fair to all
l a n d l o r d s . S o t h e y s h o u l d all h a v e t h e s a m e FSI. But t h e r e are o t h e r w a y s of
c o m p e n s a t i n g o w n e r s f o r d i f f e r e n c e s in FSI. It is a l s o p a r t l y l a z i n e s s o n t h e p a r t of
u r b a n p l a n n e r s . It is t o o m u c h t r o u b l e to w o r k o u t w h a t t h e FSI s h o u l d be in e a c h
locality. T h i s w o u l d d e p e n d o n its t r a n s i t c a p a c i t y a n d o t h e r p h y s i c a l a n d s o c i a l
i n f r a s t r u c t u r e . It w o u l d d e p e n d a l s o o n h o w w e a l t h y its r e s i d e n t s are ( w h i c h
d e t e r m i n e s h o w m u c h f l o o r s p a c e e a c h f a m i l y will w a n t ) . T h e rule m a k e r s f i n d it
s i m p l e r j u s t t o s p e c i f y a u n i f o r m FSI.
H Praja: Should FSI be higher on plots that house poorer
flats, or higher on plots where richer people live in larger

people
flats?

in

smaller

S h i r i s h P a t e l : Plot a r e a m u l t i p l i e d by FSI is t h e total b u i l t - u p f l o o r s p a c e . P o o r e r

p e o p l e o c c u p y less s p a c e p e r family, s o t h e r e w i l l be m o r e p o o r f a m i l i e s , a n d less rich
f a m i l i e s in t h e s a m e a m o u n t of f l o o r s p a c e . W e w a n t t o limit t h e total p o p u l a t i o n in a
locality, b e c a u s e t h e p h y s i c a l a n d social i n f r a s t r u c t u r e c a n s u p p o r t o n l y a l i m i t e d
n u m b e r of p e o p l e . T h i s m e a n s w e s h o u l d a l l o w m o r e FSI in rich a r e a s , a n d less FSI in
poor areas.

Praja: How is it that

Mumbai
it has been
suburbs)?

Manhattan
has FSI that goes up to 15, whereas
limited to 1.33 till recently
(or 2 with TDR in

in
the

S
a
a

CD

S h i r i s h P a t e l : In M u m b a i a f a m i l y a v e r a g e s a b o u t 5 p e o p l e , living t y p i c a l l y in an
a p a r t m e n t of 2 5 sq m. T h a t is 5 sq m p e r p e r s o n . In M a n h a t t a n t h e a p a r t m e n t size is
t y p i c a l l y 1,000 sq ft ( a b o u t 9 0 sq m ) a n d o c c u p a n c y a v e r a g e s 1.7 p e r s o n s . T h e
a v e r a g e f l o o r s p a c e t h e r e w o r k s o u t to 55 sq m p e r p e r s o n . E a c h M a n h a t t a n r e s i d e n t
o c c u p i e s 11 t i m e s as m u c h f l o o r s p a c e a s a M u m b a i r e s i d e n t . So f o r t h e s a m e plot
a r e a , FSI 11 will h a v e 11 t i m e s t h e b u i l t - u p f l o o r a r e a as FSI 1. B u t b e c a u s e of t h e
s p a c e e a c h f a m i l y t a k e s u p , FSI 11 in M a n h a t t a n will h a v e t h e s a m e n u m b e r of
p e o p l e a t FSI 1 in M u m b a i . Similarly, in t e r m s of h e a d c o u n t , FSI 15 in M a n h a t t a n
c o r r e s p o n d s to FSI 1.33 in M u m b a i . T h e s e a p p a r e n t l y v e r y d i f f e r e n t FSI v a l u e s of 15
in o n e p l a c e a n d 1.33 in a n o t h e r will g i v e us i d e n t i c a l levels of s t r e e t c r o w d i n g in
b o t h cities. S o w h e n y o u c o m p a r e FSI in d i f f e r e n t cities y o u n e e d to a l s o r e m e m b e r
h o w m u c h f l o o r s p a c e e a c h r e s i d e n t o c c u p i e s in e a c h of t h o s e cities.

a
<
w

E/5
a

in

30

H e r e is a t a b l e c o m p a r i n g M u m b a i ' s I s l a n d C i t y a n d c e n t r a l M a n h a t t a n

2 6

T a b l e 3: M u m b a i v s . M a n h a t t a n
FSI

F l o o r A r e a (typical)

P e r s o n s / h e c t a r e of

sq m / c a p i t a

b u i l d a b l e plot a r e a

Mumbai

1.33

2,667

Manhattan

15

55

2,727

It c a n be s e e n t h a t b o t h cities, w i t h v e r y d i f f e r e n t v a l u e s of F S I , a r e a l m o s t t h e s a m e in
r e g a r d to t h e d e n s i t y of p e o p l e p e r u n i t of b u i l d a b l e p l o t a r e a . D o u b l i n g o r t r e b l i n g
M u m b a i ' s FSI will o n l y m a k e it t w o o r t h r e e t i m e s d e n s e r t h a n M a n h a t t a n in r e g a r d
t o t h e n u m b e r of p e o p l e o n t h e g r o u n d .
It is t r u e t h a t p r o s p e r i t y b r i n g s a b o u t c h a n g e s . A s o u r e c o n o m y i m p r o v e s a n d
a f f o r d a b i l i t y c h a n g e s , f a m i l i e s m a y b e g i n t o o c c u p y l a r g e r flats. T h a t is t h e t i m e
w h e n y o u c a n h a v e larger flats. T h e n f o r t h e s a m e n u m b e r of p e o p l e y o u w i l l n e e d
h i g h e r FSI. If w e h u r r y it u p , a n d p r o v i d e h i g h e r FSI n o w , a h e a d of a n y s i g n i f i c a n t
c h a n g e in p r o s p e r i t y , all t h a t will h a p p e n is t h a t m o r e f a m i l i e s will m o v e into t h e
locality, in t h e s a m e s m a l l a c c o m m o d a t i o n . T h e r e will be i n c r e a s i n g i m p o v e r i s h m e n t
f o r all t h e o l d e r r e s i d e n t s in r e s p e c t of w h a t e a c h f a m i l y e n j o y s by w a y of t h e
i n f r a s t r u c t u r e of s c h o o l s , m e d i c a l facilities, p a r k s a n d p l a y g r o u n d s , as w e l l as r o a d s ,
water supply and sanitation.
Praja: Since land is one of the major components
of cost in an urban
will increasing
FSI not bring down flat prices? After all, the same land
will then get distributed
over many more floors. This should surely
flat prices
down.

flat,
price
bring

S h i r i s h P a t e l : T h i s is t h e b i g g e s t m y t h of all. It is f o o l i s h to i m a g i n e t h a t a
b u i l d e r w i l l sell at his c o s t plus a d e c e n t profit m a r g i n . O n t h e c o n t r a r y , h e will sell at
t h e h i g h e s t p r i c e t h e m a r k e t will t o l e r a t e . W i t h a h i g h e r FSI he w i l l h a v e m o r e flats to
sell. H e will sell at t h e s a m e h i g h p r i c e . W h y s h o u l d h e sell at less? H e will m a k e still
m o r e m o n e y . Flat p r i c e s will n o t c o m e d o w n . It is n e i g h b o u r i n g land p r i c e s t h a t will
g o u p . T h e r e is n o e x a m p l e , in M u m b a i at least, of i n c r e a s e d FSI h a v i n g r e s u l t e d in
l o w e r e d flat p r i c e s . FSI has b e e n g o i n g up s t e a d i l y o v e r t h e past s e v e r a l y e a r s . S o
h a v e flat p r i c e s .
Praja: Should built-up areas for parking be allowed free of FSI?

>

TO
a

S h i r i s h P a t e l : N o ! W e m u s t r e m e m b e r t h a t e a c h car p a r k i n g s p a c e r e p r e s e n t s
t w o m o t o r c a r t r i p s : o n e for c o m i n g into t h e s p a c e , t h e o t h e r f o r m o v i n g o u t . S o e a c h
p a r k i n g s p a c e is a trip g e n e r a t o r , a n d t h o s e trips f i n a l l y c o m e o n t h e r o a d s . T h i s w i l l
u s u a l l y h a p p e n at least o n c e a day, s o m e t i m e s m o r e o f t e n t h a n t h a t . In India p e o p l e
d o n ' t b u y c a r s t o k e e p t h e m in t h e g a r a g e all t h e t i m e . S o w h e n a l l o w i n g p a r k i n g
s p a c e s w e h a v e to v e r y i m p o r t a n t l y c o n s i d e r t h e s t r e e t s o n t o w h i c h t h e traffic f r o m
t h e s e s p a c e s will flow. If t h o s e s t r e e t c a p a c i t i e s are i n s u f f i c i e n t , p a r k i n g o n a b u t t i n g
plots s h o u l d n o t be a l l o w e d . It s h o u l d c e r t a i n l y n o t be e n c o u r a g e d by a l l o w i n g free
FSI.

31

In m o s t c o u n t r i e s a b r o a d t h e r e is a n u p p e r limit o n h o w m a n y p a r k i n g s p a c e s c a n be
a l l o w e d in a b u i l d i n g . T h e r e c a n n o t be m o r e t h a n a s p e c i f i e d n u m b e r . W e s e e m to
h a v e i n v e r t e d t h e l o g i c . In M u m b a i w e m a n d a t e a m i n i m u m n u m b e r of p a r k i n g
s p a c e s , i n s t e a d of s e t t i n g a m a x i m u m . S o w e a r e e n s u r i n g t h a t e a c h b u i l d i n g will a d d
at least a c e r t a i n d e f i n i t e a m o u n t of traffic to t h e city's r o a d n e t w o r k . I n s t e a d of
l i m i t i n g traffic d e m a n d , w e a r e e n c o u r a g i n g it.
P a r k i n g s p a c e s h o u l d be c o u n t e d in FSI. T h e b u i l d e r m a y c h o o s e to p r o v i d e it, o r not.
J u s t a s f l o o r s p a c e a d d s p e o p l e t o a locality, p a r k i n g s p a c e a d d s c a r s . J u s t as w e w a n t
t o limit t h e n u m b e r of p e o p l e in a locality, s o a l s o w e s h o u l d limit t h e n u m b e r of c a r s .
In M a n h a t t a n it is n o t u n c o m m o n f o r f a m i l i e s t o o w n a c a r w h i c h is p a r k e d in a m u l t i s t o r e y e d g a r a g e , o f t e n a c o n s i d e r a b l e d i s t a n c e a w a y f r o m w h e r e t h e f a m i l y lives. It is
rarely t a k e n o u t o n a r o u t i n e basis for regular, d a i l y c o m m u t i n g t r i p s . I n s t e a d , t h e s e
a r e by p u b l i c t r a n s p o r t . But t h e c a r is a v a i l a b l e if n e e d e d , f o r f a m i l y o u t i n g s , a n d
emergencies.
W e w o u l d d o w e l l to learn f r o m e x p e r i e n c e w i t h c a r s , a n d p a r k i n g , f r o m t h e rest of
t h e w o r l d . W e s h o u l d h e e d t h e a d v i c e of H e r m a n n K n o f l a c h e r , a t r a n s p o r t a t i o n
p l a n n e r , t h a t in a city y o u r c a r s h o u l d n e v e r be p a r k e d o u t s i d e y o u r d o o r s t e p .
I n s t e a d , it s h o u l d be at least as f a r a w a y f r o m y o u as t h e n e a r e s t b u s s t o p .
Praja:

In discussions

called

'Crowding'.

regarding

FSI, we have started

Can you explain

what this

hearing

of anew

term

means?

S h i r i s h P a t e l : S o c i e t i e s at d i f f e r e n t levels of p r o s p e r i t y h a v e d i f f e r e n t s t a n d a r d s
of c o n s u m p t i o n . T h i s a p p l i e s n o t o n l y to c o m m o d i t i e s b u t a l s o to s o m e t h i n g like
f l o o r s p a c e . P o o r e r s o c i e t i e s m a n a g e w i t h f l o o r a r e a s per p e r s o n t h a t w o u l d n o t be
t o l e r a t e d in a w e a l t h i e r society. In M u m b a i y o u will f i n d f a m i l i e s of 5 o r e v e n 10
s h a r i n g a 2 5 s q m a p a r t m e n t . T h i s w o u l d be u n h e a r d of in M a n h a t t a n . T h e r e e v e r y
c h i l d e x p e c t s to h a v e his o w n r o o m . H o w d o w e m e a s u r e a n d c o m p a r e this v a r i a t i o n
in f l o o r s p a c e c o n s u m p t i o n f r o m o n e city t o a n o t h e r ?
O n e s u g g e s t i o n is t h a t w e a d o p t a n e w m e t r i c c a l l e d " C r o w d i n g " . I n s t e a d of s a y i n g
t h a t in M u m b a i p e o p l e live in 5 sq m p e r c a p i t a , a n d in M a n h a t t a n o c c u p y 55 sq m
p e r c a p i t a , w e c a n s a y t h a t in M u m b a i R e s i d e n t i a l C r o w d i n g is 2 , 0 0 0 p e r s o n s per

p e r s o n s p e r h e c t a r e of b u i l t - u p r e s i d e n t i a l a r e a . It is a n i n v e r s i o n of t h e r e s i d e n t i a l

C
C
cn
a
z:
<
in

s p a c e t a k e n u p per c a p i t a .

h e c t a r e (a h e c t a r e is 1 0 , 0 0 0 sq m ) , a n d in M a n h a t t a n R e s i d e n t i a l C r o w d i n g is 182

E/5
z:

Praja:

But why do we need this new metric,

"Crowding"?

S h i r i s h P a t e l : T h e a d v a n t a g e of " C r o w d i n g " as a m e t r i c is t h a t it c a n be a p p l i e d
to a r a n g e of o t h e r n e e d s in a n u r b a n a r e a , a p a r t f r o m r e s i d e n t i a l f l o o r s p a c e . T h u s
w e c a n h a v e "Job C r o w d i n g " , w h i c h m e a n s t h e n u m b e r of j o b s p e r h e c t a r e of
c o m m e r c i a l a r e a ; " P a r k C r o w d i n g " , w h i c h m e a n s t h e n u m b e r of p e o p l e per h e c t a r e
of p u b l i c p a r k a r e a ; a n d " A m e n i t y C r o w d i n g " , w h i c h is t h e n u m b e r of p e o p l e per

CD

cc

c/5
CD'

z:
c/;
=J

h e c t a r e of a m e n i t y a r e a ( s c h o o l s , m e d i c a l facilities a n d s o o n ) . In particular, w e c a n
32

m e a s u r e " S t r e e t C r o w d i n g " , w h i c h is t h e n u m b e r of p e o p l e in t h e locality p e r h e c t a r e

of s t r e e t a r e a . T h i s w o u l d be a n i m p o r t a n t m e a s u r e in i n d i c a t i n g h o w c r o w d e d y o u r
s t r e e t life is likely t o be.
Indoor
Street

Crowding

(IC): Persons/Built-up

Crowding

Plot Factor:

Buildable

Praja:
forms

(SC): Persons/Street

What
of

Plot Area/Street

is the mathematical

area
Area
Area
relationship

between

FSI and

various

Crowding?

S h i r i s h P a t e l : A s it t u r n s o u t , t h e r e is a v e r y i n t e r e s t i n g r e l a t i o n s h i p b e t w e e n
S t r e e t C r o w d i n g ( S C ) , I n d o o r C r o w d i n g (IC) a n d FSI. B u t this l i n k a g e r e q u i r e s us to
i n t r o d u c e a f o u r t h p a r a m e t e r , w h i c h w e call Plot Factor ( P F ) . P F is t h e ratio of
b u i l d a b l e plot a r e a in a locality t o t h e total s t r e e t a r e a in t h a t locality. By s t r e e t area
w e m e a n t h e p u b l i c , s h a r e d s p a c e , u s e d for c i r c u l a t i o n of p e d e s t r i a n s a n d v e h i c l e s . In
a r r i v i n g at s t r e e t a r e a , w e n e e d to e x c l u d e t h e a r e a t a k e n up by a r t e r i a l t h r o u g h
traffic, a n d t h e a r e a t a k e n u p by o n - s t r e e t p a r k i n g . N e i t h e r of t h e s e is a v a i l a b l e for
local c i r c u l a t i o n .
T h e f o r m u l a t h a t c o n n e c t s t h e s e f o u r p a r a m e t e r s is:
S C = IC x FSI x P F
If w e e x p a n d e a c h t e r m in t h e f o r m u l a into its b a s i c m e a n i n g w e s e e t h a t t h e f o r m u l a
Population

Population

Built-up Area

=
Street A r e a

Plot Area

x
Built-up A r e a

xPlot Area

Street Area

O n t h e right h a n d s i d e t h e " B u i l t - u p A r e a " a n d " P l o t A r e a " t e r m s c a n c e l o u t , a n d w e

a r e left w i t h P o p u l a t i o n / S t r e e t A r e a , w h i c h is t h e d e f i n i t i o n of S t r e e t C r o w d i n g .
In t h e f i g u r e s b e l o w , w e illustrate s t r e e t c r o w d i n g w i t h d i f f e r e n t v a l u e s of F S I , plot
cz
I

factors and home crowding.

cn

= 100 Persons

zo

H o m e Plot

Street

FSI=1

1ha.

=100 Persons

o o o o

H o m e Plot

Street A

FSI = 1

1ha.

AAA

cn
ZI

a
z:
I
I
Z\Z

>
ZI
a

TO
o

1ha.

H C = 2 , 0 0 0 p/ha. S C = 2 , 0 0 0 p/ha.

S C = 2 0 0 p/ha.

Mumbai's G-N has HC=2,181 p/ha.

Figure

1: Street

of one and Home

persons/Ha

33

1ha.

H C = 2 0 0 p/ha.

Crowding
Crowding

with
200

FSI

Figure

2: Street

one and Home

persons/Ha

Crowding
Crowding

with
of

FSI

2,000

Figure

3: Street

Crowding

one and Plot Factor

with

FSI

Figure

two

4: Street

and Home

Crowding

Crowding

with FSI

200

eight

persons/Ha.

= 100 Persons

=100 Persons
H o m e Plot

Street

Street
H o m e Plot

1ha.

1ha.

1ha.

1ha.

1ha.

P F = 2 , FSI = 1

FSI = 8

H C = 2 0 0 p/ha. S C = 4 0 0 p/ha.

H C = 2 0 0 p/ha. S C = 1 , 6 0 0 p/ha.

Figure

5: Street

Plot Factor

Crowding

2 and Home

with FSI

eight;

Crowding

200

=100 Persons
H o m e Plot

persons/Ha.

Street
jp Praja:

What

planning
Shirish
population

is the meaning

term "Net
Patel:

Net

of

the

is

the

PF=2, FSI=8

by

the

H C = 2 0 0 p/ha. S C = 3 , 2 0 0 p/ha.

Density"?
Density

of a locality d i v i d e d

1ha.

1ha.

1ha.

b u i l d a b l e p l o t a r e a . W e c o u l d a l s o call it
Plot D e n s i t y . W e c a n e x p r e s s this in t e r m s of I n d o o r C r o w d i n g a n d FSI as f o l l o w s :
N D (or P D ) = IC x FSI
Expanded, these terms mean:
Population

Population
=

Plot A r e a

Built-up Area
x

Built-up A r e a

Plot A r e a

O n t h e right h a n d s i d e t h e " B u i l t - u p A r e a " t e r m s c a n c e l o u t a n d w e are left w i t h

P o p u l a t i o n / P l o t A r e a , w h i c h is N e t D e n s i t y (also c a l l e d P l o t D e n s i t y ) .
Praja: And what is "Gross

Density"?

s
a
a

S h i r i s h P a t e l : G r o s s D e n s i t y is, v e r y s i m p l y , t h e total p o p u l a t i o n of t h e area

d i v i d e d by t h e total a r e a of t h e locality. S i n c e w e h a v e c h o s e n S t r e e t C r o w d i n g as a n
i m p o r t a n t basic p a r a m e t e r f o r d e s i g n i n g a locality, w e c a n e x p r e s s G r o s s D e n s i t y in
t e r m s of S t r e e t C r o w d i n g as f o l l o w s :

zz.
<

E/5
zz.
a

G D = SC / TF
W h e r e T F m e a n s "Total Factor", t h e ratio of total locality a r e a to its s t r e e t a r e a .

CD

Expanding the formula w e have:

Population

Population

Total A r e a

Total A r e a

Street A r e a

Street A r e a

cc

c/5

Notice the division sign on the right hand side. O n c e again, the Street Area terms
c a n c e l o u t a n d w e a r e left w i t h P o p u l a t i o n / Total A r e a , w h i c h is G r o s s D e n s i t y .

CD'

c/;
=j
in

34

T a b l e 4: S t r e e t C r o w d i n g i n M a n h a t t a n a n d s e l e c t e d W a r d s o f G r e a t e r M u m b a i
All Users
Indoor
Crowding

All
Users
FSI

All Users
Plot
Factor

All Users
Street
Crowding

Manhattan CD-5 (Midtown)

296

16.04

1.26

5,986*

Manhattan CD-8 (Upper East Side)

180

7.29

1.67

2,190

A-mid

638

3.66

0.73

1,695

692

1.79

0.88

1,086

1,018

2.05

2.39

4,992

D-East

Locality

1,201

1.75

2.46

5,182

D-West

366

1.34

4.71

2,317

G-N/S-E

3,116

1.13

2.84

3,682

Island City

1,042

1.12

2.2

2,570

*Note: Manhattan

has an underground

railway.

W h i l e t h e q u a l i t y of i n f r a s t r u c t u r e a n d s t a n d a r d o f living in M u m b a i

is o f t e n

c o m p a r e d t o t h e o t h e r a l p h a cities of t h e w o r l d , t h e s e c o m p a r i s o n s o v e r l o o k t h e
s h e e r d e n s i t y of p e o p l e p a c k e d in t o this b u s t l i n g city. H e n c e , M u m b a i n e e d s its o w n
h o m e - g r o w n s o l u t i o n s t o a d d r e s s t h e s h o r t a g e of l a n d a n d h o u s i n g in r e l a t i o n t o
t h e city's p o p u l a t i o n .
Praja:

Can the Street

Crowding

formula

be expressed

graphically?

S h i r i s h P a t e l : Y e s . T h e g r a p h i c a l r e p r e s e n t a t i o n l e a d s us t o s o m e i m p o r t a n t
i n f e r e n c e s . T h i s is w h a t t h e g r a p h l o o k s like:
PF=1

\
PF-2-

FSI

FSL=^6

o ! _
- J CO

4.

//

3.CM
/ /
i
/

FSI=3

FSI Z

FSI=1

rF-3--.
pr=4-

z z :

STREET
CROWDING

2,030

1.0DO

J.flGO

3 OX

INDOOR
CROWDING
4.000

ZI

o
a

QL lu

TF=4--

O
TF-E

1.S00

All A x e s a r e
Persons I Hectare

ZL.

>

ZI

TO
a

z^

L e t us u n d e r s t a n d this g r a p h . W e b e g i n w i t h t h e p o s i t i v e X - a x i s o n w h i c h w e m a r k
I n d o o r C r o w d i n g in p e r s o n s / h e c t a r e . S t r e e t C r o w d i n g is o n t h e n e g a t i v e X - a x i s . T h e
d i a g o n a l r a d i a l lines in t h e first q u a d r a n t a r e t h e m u l t i p l i e r lines f o r F S I . If w e s t a r t

35

w i t h a n y g i v e n level of I n d o o r C r o w d i n g ( I C ) , a n d m o v e up to t h e r e l e v a n t F S I , t h e n
t u r n i n g left at t h a t p o i n t a n d e x t e n d i n g t h e h o r i z o n t a l line l e f t w a r d s b r i n g s us t o t h e
p r o d u c t of IC a n d FSI o n t h e p o s i t i v e Y - a x i s . T h i s is Plot D e n s i t y ( n u m b e r of p e r s o n s
p e r h e c t a r e of plot a r e a ) , a l s o c a l l e d N e t Density.
T h e s e c o n d q u a d r a n t c o n t a i n s t h e d i a g o n a l radial lines f o r Plot F a c t o r ( P F ) . T h e s e are
a g a i n m u l t i p l i e r lines. O n c e o u r h o r i z o n t a l line r e a c h e s o u r locality's P F v a l u e , w e
t u r n left a g a i n a n d m o v e d o w n w a r d s , w h e r e o n t h e n e g a t i v e X - a x i s w e r e a d off Street
C r o w d i n g , t h e p r o d u c t of I C , FSI a n d PF.
In t h e t h i r d q u a d r a n t w e i n t r o d u c e d i a g o n a l lines r e p r e s e n t i n g v a r i o u s v a l u e s of t h e
Total Factor. Total F a c t o r is t h e ratio of t h e e n t i r e a r e a of t h e locality to t h e S t r e e t a r e a .
C o n t i n u i n g o u r v e r t i c a l line d o w n w a r d s f r o m t h e S t r e e t C r o w d i n g v a l u e , until it
r e a c h e s o u r locality's v a l u e of Total Factor, a n d t u r n i n g a g a i n w e m o v e h o r i z o n t a l l y
r i g h t w a r d s t o r e a d off t h e v a l u e of G r o s s D e n s i t y o n t h e n e g a t i v e Y - a x i s .
Praja:
the

Can we see what

different

localities

in different

cities

look

like

on

graph?

S h i r i s h P a t e l : O n t h e g r a p h b e l o w a r e p l o t t e d d i a g r a m s f o r a f e w localities in
Mumbai, and two from Manhattan.

s
cn
a

E/5
a

CD

CZ

M u m b a i ' s D - E a s t is a m i x e d r e s i d e n t i a l a n d c o m m e r c i a l district. It is p r o p e r l y laid out.

It w a s earlier o c c u p i e d by a m i x t u r e of British a n d native i n h a b i t a n t s . D - W e s t is t h e
m o s t p r i c e y a n d u p m a r k e t r e s i d e n t i a l district in all of M u m b a i . It has large v a c a n t

cc

u5
CD
. '
ZD
cz
zc

36

tracts o c c u p i e d by t h e G o v e r n o r ' s e s t a b l i s h m e n t a n d a w o o d e d a r e a t h a t h o l d s t h e
Parsi T o w e r s of S i l e n c e (the a r e a f o r d i s p o s a l of t h e i r d e a d ) . G - N o r t h ( S o u t h - E a s t ) is
p a r t l y p r o p e r l y laid o u t , a n d p a r t l y D h a r a v i . All t h e s e localities, a n d M a n h a t t a n ' s C D S
a n d C D - 8 , a r e o v e r 2 0 0 h e c t a r e s in a r e a . W e h a v e c h o s e n this size s o t h a t e a c h
s u c h locality c a n be e x p e c t e d t o h a v e w i t h i n it a m e n i t i e s a n d o p e n s p a c e s s u f f i c i e n t
at t h e v e r y least f o r its o w n n e e d s . S o m e of t h e s e facilities m a y a l s o be large e n o u g h
t o s e r v e r e s i d e n t s f r o m o t h e r p a r t s of t h e city.
17

Notice the following:

V a l u e s u s e d are f o r t h e s u m total of r e s i d e n t s a n d j o b s in a locality. T h i s is not

q u i t e c o r r e c t a n d n e e d s to be r e f i n e d .

V a l u e s f o r I n d o o r C r o w d i n g in M a n h a t t a n a r e r e m a r k a b l y low, b o t h for C D - 5
a n d C D - 8 ; a n d a r e g e n e r a l l y m u c h l o w e r t h a n f o r localities in M u m b a i ;

S t r e e t c r o w d i n g in C D - 8 is a l s o l o w e r t h a n f o r a n y locality in M u m b a i ; C D - 5
v a l u e s a r e h i g h b e c a u s e of v e r y h i g h d a y t i m e s t r e e t c r o w d i n g . B u t w e m u s t
r e m e m b e r t h a t M a n h a t t a n h a s a n u n d e r g r o u n d railway, w h i c h t a k e s m u c h of
t h e l o a d off its s t r e e t s ;

In M u m b a i , t h e h o r i z o n t a l u p p e r line s e e m s to rise w i t h d i m i n i s h i n g p r o s p e r i t y t h e p o o r e r t h e locality t h e l a r g e r is its Plot D e n s i t y .

T h e G r o s s D e n s i t y f o r r e s i d e n t s is n o w h e r e h i g h e r t h a n 1,700 p e r s o n s / h e c t a r e
in M u m b a i . T h i s is d e s p i t e n o t h a v i n g e n o u g h land s e t a s i d e for a m e n i t i e s a n d
o p e n s p a c e s . A f i g u r e of 7 5 0 a p p e a r s m o r e realistic as a n a b s o l u t e u p p e r limit
f o r g l o b a l p l a n n i n g . A n d t h e f i g u r e of G r o s s D e n s i t y s h o u l d b e c a l c u l a t e d o n t h e
r e s i d u a l a r e a a f t e r d e d u c t i n g w h a t is n e e d e d for arterial t r a n s p o r t a n d o n - s t r e e t
parking.
Praja:

cz

I
.cn

>

TO
o
a

37

of this graphical

representation?

Shirish Patel: Besides other advantages, w e can immediately understand the

i m p a c t of c h a n g e s in FSI. For e x a m p l e , let us s e e w h a t t h e g r a p h reveals if t h e FSI in
G - N o r t h is s u d d e n l y i n c r e a s e d t o 4 . T h i s is e x a c t l y w h a t has b e e n s a n c t i o n e d for
D h a r a v i . W i t h no c h a n g e in I n d o o r C r o w d i n g , t h e v e r t i c a l line g o e s off t h e c h a r t , to a
Plot D e n s i t y of a b o u t 1 2 , 5 0 0 p e r s o n s / h e c t a r e . W i t h n o c h a n g e f o r e s e e n in t h e
l a y o u t of s t r e e t s , a n d t h e r e f o r e no c h a n g e in Plot Factor, w e e n d up w i t h S t r e e t
C r o w d i n g of a b o u t 1 3 , 0 0 0 p e r s o n s / h e c t a r e . T h i s is t w o a n d a half t i m e s w o r s e t h a n
a n y t h i n g s e e n o n o u r d i a g r a m s o far. It is f a r b e y o n d a n y t h i n g s e e n s o f a r a n y w h e r e
in the w o r l d .
^

cn

What is the advantage

Praja: When studying

a locality, would it make sense to look at not just its
resident population,
or its job population,
or its visitor population,
but also
at its vehicular population,
both visiting and resident overnight,
either onstreet or off-street?
Could these be turned into a parameter
measuring
vehicular crowding,
as distinct from people
crowding?

^0 S h i r i s h P a t e l : Y e s , this w o u l d be w e l l w o r t h d o i n g . It w o u l d be a n e x t e n s i o n of
t h e n o t i o n of S t r e e t C r o w d i n g by p e o p l e t o S t r e e t C r o w d i n g by v e h i c l e s . S i n c e streets
a r e o c c u p i e d b o t h by p e o p l e a n d by v e h i c l e s , t h e c r o w d i n g o n a c c o u n t of o n e is as
i m p o r t a n t as t h e c r o w d i n g o n a c c o u n t of t h e other.

In p a r t i c u l a r w e s h o u l d n o t e t h a t e n c o u r a g i n g p a r k i n g , w h e t h e r o n - s t r e e t o r offs t r e e t (that is, o n a b u t t i n g plots by a l l o w i n g f r e e FSI f o r p a r k i n g ) w o u l d d e f i n i t e l y

i n c r e a s e v e h i c u l a r c r o w d i n g in t h e locality, s o m e t h i n g t h a t is b o u n d t o a d d t o t h e
overall congestion.
^

Praja:

There

cities.

Where

imperative

is going

influx

of population

is the land to accommodate

to be a huge

this influx?

to cope with this

into our towns

Is higher

and

FSI not

an

influx?

S h i r i s h P a t e l : T h i s is a v e r y c o m m o n m i s u n d e r s t a n d i n g . A c c o m m o d a t i n g m o r e
p e o p l e o n a plot (by raising its FSI) m e a n s t h a t y o u m u s t a l s o p r o v i d e m o r e road
s p a c e f o r t h e s e p e o p l e , m o r e a r e a for p a r k s , a n d m o r e a r e a f o r s c h o o l s a n d h o s p i t a l s .
T h e h i g h e r t h e FSI t h e h i g h e r t h e p r o p o r t i o n of land y o u n e e d for p u b l i c use. S o
o v e r a l l , t h e p r o p o r t i o n of land a r e a o c c u p i e d by b u i l d a b l e plots d i m i n i s h e s . T h i s
c o u n t e r s t h e e f f e c t of h i g h e r FSI, s o finally t h e r e is n o t t o o m u c h c h a n g e in t h e
o v e r a l l d e n s i t y , m e a s u r e d in n u m b e r s of p e o p l e per s q u a r e k i l o m e t r e of city a r e a .
If y o u w a n t to a c c o m m o d a t e m o r e p e o p l e , t h e r e is n o e s c a p e : y o u h a v e t o p r o v i d e
m o r e l a n d . A n d m o s t i m p o r t a n t l y , y o u h a v e to e x t e n d y o u r t r a n s p o r t s y s t e m s s o t h a t
t h e y b r i n g this l a n d w i t h i n e a s y r e a c h of t h e rest of t h e city. W e s h o u l d c h o o s e an
o p t i m u m d e n s i t y f o r t h e city, n o t t o o c r o w d e d a n d c o m f o r t a b l e to live in. O u r f o c u s
t h e r e a f t e r s h o u l d n o t be o n i n c r e a s i n g FSI t o m a k e t h e city less livable, b u t o n
e x t e n d i n g t r a n s p o r t n e t w o r k s . I n c r e a s i n g FSI a l o n e , w i t h o u t e n l a r g i n g r o a d s y s t e m s
a n d p u b l i c facilities, will o n l y d i m i n i s h facilities f o r e v e r y o n e . It w o r s e n s

living

c o n d i t i o n s , w i t h no l o n g - t e r m g a i n . O p e n i n g up n e w l a n d s is a far s u p e r i o r s t r a t e g y if
y o u w a n t to c o p e w i t h a g r o w i n g city p o p u l a t i o n .
T a b l e 5: List o f F e a t u r e s / A r e a s e x c l u d e d f r o m FSI C o m p u t a t i o n
Staircases

Electrical s u b - s t a t i o n

M a m t i ( s t r u c t u r e o n t h e roof
a t t h e h e a d of t h e s t a i r c a s e )

Staircase landings

Electrical g e n e r a t o r

S p a c e u n d e r lift m a c h i n e

room

room

C a r e l e v a t o r lift

E l e v a t o r lift m a c h i n e

duct/shaft/pit

room

Stack parking (multiple

Mobile transmission

level m e c h a n i z e d

tower

A.C. plant room

a
a

Dry balcony

CO
a
z:
<

zc

parking)
Fire f i g h t i n g d u c t / s h a f t

UJ

E/5

Flower bed/plant bed

B a l c o n y up to 1 0 % of f l o o r
area

z:

<
CD

C r e c h e / B a l w a d i in S R A

Entrance gateway

scheme
Car/vehicle parking
spaces

Built in s t o r a g e b e l o w
window

Stilt

Void/space accessed under

plinth

z:

cc

c/5
CD'

z:
c/;
=j

DZ

38

T a b l e 5 . . . C o n t d . : List o f F e a t u r e s / A r e a s e x c l u d e d f r o m FSI C o m p u t a t i o n
Watchman cabin/room

Driver's room

Servant toilet/room

D r i v e r ' s toilet

Fire e s c a p e s t a i r c a s e

Generator room/store

Staircase lobby

Electrical t r a n s f o r m e r s p a c e

P a s s e n g e r e l e v a t o r lift

Pump room

duct/shaft/pit
Underground storage

Garbage collection room

tanks (domestic/fire)
E l e v a t o r lift l a n d i n g
Refuge area/space
G y m n a s i u m (if a p p l i e d
housing society)
B a s e m e n t u s e d for
parking, storage and
utilities

overhead tank
Service floor

Fire e q u i p m e n t r o o m
Lily p o n d
Covered car vehicle

S e r v i c e e l e v a t o r lift
duct/shaft/pit
Verandah
Built in c u p b o a r d
Built in s t o r a g e a b o v e

driveways

window

Fire e s c a p e s t a i r c a s e

Entrance foyer

landings

Electric m e t e r

W e l f a r e c e n t r e in S R A

cabin/room

scheme

Society office

Storage room

Further,

Space under elevated

3 5 % extra floor area

is p e r m i t t e d

Telephone room
Postal box r o o m

(as f u n g i b l e

FSI) for

residential

development and 2 0 % for Industrial/Commercial Development for the following

areas w h i c h w e r e earlier e x e m p t e d .
T a b l e 6: List o f F e a t u r e s / A r e a s i n c l u d e d in FSI c o m p u t a t i o n
Covered parking spaces

O
CZ

z:
en
I
o

za
o

A r e a of fire e s c a p e

Fire c h e c k f l o o r / s e r v i c e
A i r c o n d i t i o n p l a n t r o o m / f l o o r of h e i g h t e x c e e d i n g
air h a n d l i n g u n i t r o o m ,
1.8 m
m e t e r r o o m , D.G. set

r o o m e x c e p t p r o v i d e d in

R o o m f o r i n s t a l l a t i o n of

basement

telephone concentrators
Covered s w i m m i n g pool

Covered areas required

ZI

o n t o p t e r r a c e f o r utilities

Part/pocket/intermediate

in e x c e s s of 2 0 s q m

covered terraces

o
a
z:
I
I
z\z

D e c k p a r k i n g e x c l u s i v e of

N i c h e s b e l o w w i n d o w sill

>
ZI
a

c a r lifts a n d p a s s a g e s

Driver's room/sanitary

o
z^

there to on habitable

block on podium and

parking floor

TO

39

floors

S e r v a n t s toilet, o t h e r
t h a n at s t a i r c a s e m i d l a n d i n g l e v e l , stilt
level, pparking level
Ornamental projection
Letter box r o o m
Balconies
A r e a of o n e p u b l i c
telephone booth and
one telephone
exchangee ( P B X ) r o o m
P a r k i n g f l o o r in e x c e s s
of r e q u i r e d p a r k i n g

FSI of 4: Why it is not workable in Mumbai

Buildable

18

C a s e 1: FSI 4 a n d 2 5

C a s e 2: FSI 4 a n d 1 0 0

sq m a p a r t m e n t s

sq m a p a r t m e n t s

1 ha

14%

1 Ha

FSI

Builtup area

4 ha

4 ha

Sqm/capita

20

Residents

8,000

2,000

38%

Institutional area @ 2 sqm/capita

1.6 ha

22%

0.4 ha

15%

O p e n area @ 3 sqm/capita

2.4 ha

32%

0.6 ha

23%

Street area @ 3 sqm/capita

2.4 ha

32%

0.6 ha

23%

Total a r e a

7.4 ha

100%

2.6 ha

100%

Gross density

1,081 p/ha

7 6 9 p/ha

It will be s e e n f r o m C a s e 1 t h a t if w e g_ i v e a b u i l d e r FSI 4 o n his 1 h e c t a r e plot, w e will

n e e d a f u r t h e r 6.4 h a . of a r e a f o r i n s t i t u t i o n s , o p e n s p a c e s a n d s t r e e t s t o s e r v i c e t h e
jjupumiiui i ii w u j c u

ui i i iij i i

a r e a of t h e d e v e l o p e r ' s plot?

Buildable

C a s e 3: FSI 3 a n d 2 5

C a s e 4 : FSI 3 a n d 1 0 0

sq m a p a r t m e n t s

sq m a p a r t m e n t s

1 ha

17%

1 ha

FSI

Builtup area

3 ha

3 ha

Sqm/capita

20

Residents

6,000

1,500

45%

s
cn
a
z:
<
in

Institutional area @ 2 sqm/capita

1.2 ha

21%

0.3 ha

14%

O p e n area @ 3 sqm/capita

1.8 ha

31%

0.45 ha

20%

Street area @ 3 sqm/capita

1.8 ha

31%

0.45 ha

20%

Total a r e a

5.8 ha

100%

Gross density

1,034 p/ha

LiJ
EJ5
z:
a

<
CD
ZI

2.2 ha
6 8 2 p/ha

cc

c/5
CD'

E v e n w i t h FSI 3, w e f i n d t h a t w i t h 2 5 sq m a p a r t m e n t s w e will n e e d s o m e o n e else t o

z:
c/;
=j

p r o v i d e 4 . 8 h a . of l a n d a r e a f o r e a c h h e c t a r e of t h e d e v e l o p e r ' s plot.

in

40

Annexure I: Agencies and Schemes

1.

Agencies

T h r e e m a i n p a r a s t a t a l a g e n c i e s p l a y a k e y role in t h e p r o m o t i o n a n d d e v e l o p m e n t of
Mumbai's Housing sector:
^jiggty

1.1131

M M R D A : Mumbai Metropolitan Region

f

Development Authority
Constitution: 26th January 1975

P r e p a r a t i o n of R e g i o n a l D e v e l o p m e n t P l a n s
Providing financial assistance for significant
r e g i o n a l projects

Functions:

P r o v i d i n g h e l p to local a u t h o r i t i e s a n d t h e i r
i n f r a s t r u c t u r e projects
C o o r d i n a t i n g e x e c u t i o n of projects a n d / o r
s c h e m e s in M M R
Restricting any activity that could adversely
a f f e c t a p p r o p r i a t e d e v e l o p m e n t of

MMR,

etc.

Slum

Rehabilitation

for

persons

the

Schemes

affected

undertaken
by

M M RDA

projects.
Schemes:

I m p l e m e n t a t i o n of R e n t a l H o u s i n g S c h e m e
in M M R r e g i o n
R e h a b i l i t a t i o n a n d R e s e t t l e m e n t ( R & R ) of
residential

and

non-residential

Project

Affected Persons (PAPs)

cz
I
z

en

I
o

zo
o

S o c i a l D e v e l o p m e n t Cell
Relevant Divisions

Rental Housing
L a n d s - S l u m R e h a b i l i t a t i o n A u t h o r i t y Cell

I
z

Bandra-Kurla C o m p l e x , M.M.R.D.A.

ZI

Office Building, Bandra-Kurla Complex,

o
a

I
I

Contact:

>
z:
a

Fax N o . : + 9 1 - 2 2 - 2 6 5 9 1 2 6 4

TO

41

M u m b a i - 4 0 0 051
P h o n e : + 9 1 - 2 2 - 2 6 5 9 0001 / 4 0 0 0 ,

zn

C - 1 4 & 15, E B l o c k B a n d r a ( E a s t ) ,

To k n o w m o r e :

http://mmrda.maharashtra.gov.in/home

SRA:

M H A D A : Maharashtra

Slum Rehabilitation

Housing And Area

Authority

Development Authority

Constitution:
25th December 1995

To s u r v e y

and

review

existing

T^^^

Constitution:
5th D e c e m b e r 1977

C o n s t r u c t i o n of r e s i d e n t i a l b u i l d i n g s

p o s i t i o n r e g a r d i n g S l u m a r e a s in

u n d e r v a r i o u s h o u s i n g s c h e m e s for

greater M u m b a i .

d i f f e r e n t s e c t i o n s of s o c i e t y

To

fo rm u l ate

sche mes

for

r e h a b i l i t a t i o n of s l u m a r e a s
To g e t

the

slum

of d i l a p i d a t e d b u i l d i n g s

rehabilitation

scheme implemented

33(10)

basic

amenities

such

as

3.11

also

to

MHADA

under

a m e n d e d D C R 5 8 f o r mill w o r k e r s
h o u s i n g a n d transit.

called PAP s c h e m e
U n d e r p r o v i s i o n s of D C R

D e v e l o p m e n t of s i c k / c l o s e d mill land
allocated

a l s o c a l l e d in-situ s c h e m e
of s e c t i o n

Provide

w a t e r t a p s , d r a i n a g e etc. in s l u m s

U n d e r p r o v i s i o n s of D C R
Provisions

Structural repairs and reconstruction

33(14)

also called transit s c h e m e

Undertaking

composite

housing

s c h e m e s o n t h e c l e a r plots h a n d e d
o v e r by M B R R B w i t h e m p h a s i s
housing

for Economically

on

Weaker

Sections and Low-income groups

Mumbai Housing and Area

Development Board
M u m b a i B u i l d in g

R e p a i rs

a nd

Reconstruction Board,
Mumbai Slum Improvement Board

CD
CD
CO
a
z:
<

UJ

E/5
z:

Administrative Building,

A n a n t K a n e k a r M a r g , B a n d r a (E),

<

Mumbai 400051.

Grihanirman Bhavan Kalanagar, Bandra

Tel.: 2 6 5 9 0 5 1 9 / 2 6 5 9 0 4 0 5 / 2 6 5 9 1 8 7 9

(East), M u m b a i 4 0 0 0 5 1 .

26590993,Fax: 26590457

S T D C o d e N o . 0 2 2 , Fax N o . 2 6 5 9 2 0 5 8 ,

cc

Email: info@sra.gov.in

Telephone No. 26592877 / 2622.

c/5

CD
IZ

CD

www.sra.gov.in

www.mhada.maharashtra.gov.in

c/3

ZD
CD

zc

42

2.

Central Government Schemes

i.

Rajiv A w a s Yojana (RAY)

Rajiv A w a s Y o j a n a ( 2 0 1 3 - 2 0 2 2 ) is a c e n t r a l l y s p o n s o r e d s c h e m e l a u n c h e d by
M i n i s t r y of H o u s i n g & U r b a n P o v e r t y A l l e v i a t i o n , f o r t h e b e n e f i t of u r b a n poor.
T h r o u g h t h e s c h e m e , t h e M i n i s t r y p l a n s to c o v e r all t o w n s , cities a n d u r b a n
a g g l o m e r a t i o n s in I n d i a . It e n v i s a g e s a s l u m - f r e e India a n d calls f o r a m u l t i pronged approach focusing o n " :

B r i n g i n g e x i s t i n g s l u m s w i t h i n t h e f o r m a l s y s t e m a n d e n a b l i n g t h e m to avail of
t h e s a m e level of basic a m e n i t i e s as t h e rest of t h e t o w n ;

R e d r e s s i n g t h e f a i l u r e s of t h e f o r m a l s y s t e m t h a t lie b e h i n d t h e c r e a t i o n of
slums;

T a c k l i n g t h e s h o r t a g e s of u r b a n land a n d h o u s i n g t h a t k e e p s h e l t e r o u t of r e a c h
of t h e u r b a n p o o r a n d f o r c e t h e m t o r e s o r t to e x t r a - l e g a l s o l u t i o n s in a bid to
retain t h e i r s o u r c e s of l i v e l i h o o d a n d e m p l o y m e n t .

Strategy
P r o v i d e s u p p o r t to S t a t e s / U n i o n T e r r i t o r i e s / U r b a n L o c a l B o d i e s for

H o u s i n g a n d i m p r o v e m e n t of b a s i c civic i n f r a s t r u c t u r e a n d s o c i a l a m e n i t i e s in
each selected slum

Rental and transit housing

C r e a t i o n of a f f o r d a b l e h o u s i n g s t o c k t h r o u g h p u b l i c - p r i v a t e p a r t n e r s h i p

T h e I m p l e m e n t a t i o n P h a s e of t h e S c h e m e is b e i n g r u n o n a m i s s i o n m o d e d u r i n g
2 0 1 3 - 2 2 , f o r w h i c h Rs. 3 2 , 2 3 0 c r o r e has b e e n a l l o c a t e d by t h e P l a n n i n g C o m m i s s i o n
of India 1 2 t h Five Y e a r P l a n . H o w e v e r , as of F e b r u a r y 2 0 1 4 , no p r o j e c t s h a v e b e e n
a p p r o v e d f o r M a h a r a s h t r a u n d e r t h e P r e p a r a t o r y a n d I m p l e m e n t a t i o n p h a s e s of t h e
scheme .
2 0

ii.

Interest Subsidy S c h e m e for Housing the Urban Poor ( I S H U P )

T h e G o v e r n m e n t of India has d e s i g n e d a n I n t e r e s t S u b s i d y S c h e m e as a n a d d i t i o n a l
cz
cz

I
z

cn

zv

i n s t r u m e n t for a d d r e s s i n g t h e h o u s i n g n e e d s of t h e E W S / L I G s e g m e n t s in u r b a n
a r e a s . T h e S c h e m e e n v i s a g e s t h e p r o v i s i o n of interest s u b s i d y to E W S a n d L I G
s e g m e n t s to e n a b l e t h e m to b u y o r c o n s t r u c t h o u s e s t h r o u g h t h e J a w a h a r l a l N e h r u
National Urban Renewal Mission ( J N N U R M ) .

cz
W

I
."
ZI
cn
o
a
z:
I
I

Main Provisions
S u b s i d i z e d l o a n f o r 1 5 - 2 0 y e a r s f o r a m a x i m u m a m o u n t of Rs. 1 0 0 , 0 0 0 f o r a E W S
i n d i v i d u a l f o r a h o u s e at least of 2 5 sq m t s .
M a x i m u m loan a m o u n t of R s . 1 6 0 , 0 0 0 for a n L I G i n d i v i d u a l for a h o u s e of at least

>
ZI
a

TO
o
z^

43

4 0 sq. mts.
N o d a l agencies for the s c h e m e are the National Housing B a n k ( N H B ) and the
H o u s i n g & U r b a n D e v e l o p m e n t C o r p o r a t i o n Ltd. ( H U D C O )

A n n e x u r e II: C e n s u s 2 0 1 1 d a t a o f M u m b a i
1.

W a r d - w i s e P o p u l a t i o n o f G r e a t e r M u m b a i a s o f 2 0 0 1 a n d 2011
Zones

Island City

Wards

Population 2001

Population 2011

210,847

185,014

140,633

127,290

202,922

166,161

382,841

346,866

440,335

393,286

F/N

524,393

529,034

F/S

396,122

360,972

G/N

582,007

599,039

G/S

457,931

377,749

3,338,031

3,085,411

H/E

580,835

557,239

H/W

337,391

307,581

K/E

810,002

823,885

K/W

700,680

748,688

P/N

798,775

941,366

P/S

437,849

463,507

R/C

513,077

562,162

R/N

363,827

431,368

R/S

589,887

691,229

5,132,323

5,527,025

778,218

902,225

M/E

674,850

807,720

M/W

414,050

411,893

619,556

622,853

691,227

743,783

330,195

341,463

3,508,096

3,829,937

11,978,450

12,442,373

Total

Eastern Suburbs

Total

Western Suburbs

Total
Mumbai

Source: Census

2001-2011

C
C
m
a
z:
<
in
UJ

E/5
z:

<
CD
IZ

cc

c/5
CD'
=J

in

44

2.

Ward-wise Slum and Non-slum population of Greater Mumbai

Wards

Slum Population

S l u m P o p u l a t i o n (%)

Total P o p u l a t i o n

63,400

34.27

185,014

14,400

11.31

127,290

166,161

33,000

CD

A,

CD

ZL.

>

ZI

TO

o
o
g
z^

45

346,866

77,800

19.78

393,286

F/N

308,400

58.29

529,034

F/S

95,200

26.37

360,972

G/N

189,600

31.65

599,039

G/S

78,300

20.73

377,749

Total

860,100

27.88

3,085,411

H/E

234,800

42.14

557,239

H/W

118,500

38.53

307,581

K/E

403,800

49.01

823,885

K/W

108,800

14.53

748,688

P/N

504,500

53.59

941,366

P/S

264,000

56.96

463,507

R/C

104,300

18.55

562,162

R/N

221,500

51.35

431,368

R/S

399,200

57.75

691,229

2,359,400

42.69

5,527,025

490,400

54.35

902,225

M/E

245,300

30.37

807,720

M/W

217,200

52.73

411,893

Total

s
b
r
u
b

9.51

385,600

61.91

622,853

537,900

72.32

743,783

111,800

32.74

341,463

1,988,200

51.91

3,829,937

5,207,700

41.85

12,442,373

Total
Mumbai

Source: Census

2001-2011

A
B

CO

Lakh

LA

Lakh

1
no

Lakh

1
CN

Lakh

Lakh

Lakh

3. W a r d w i s e t o t a l p o p u l a t i o n a n d s l u m p o p u l a t i o n ( 2 0 1 1 )
(excluding
areas under Special Planning Authority
-SPA)

CO

cn

Slum Population

C
D
E
F/N
F/S
G/N
G/S
H/E
H/W
K/E
K/W
P/N
P/S
R/C
R/N

C
C
m
a

R/S
L

E/5
zz.

M/E

M/W

CD

CD

cc

c/5

CD'

Source: Page 103,MCGM Preparatory Study Report

ZD
in

46

A n n e x u r e III: R e s o u r c e s f o r F u r t h e r Reading
Subject

Source

Current Link

Preparatory Studies -

MCGM

http://mcgm.gov.in/irj/po

Development P l a n 2014

rtal/anonymous/qlPrepar

34 Mumbai

atoryStudiesReport

Development Control

MCGM

Regulations for Greater

http://mcgm.gov.in/irj/po
rtalapps/com.mcgm.aabo

Mumbai

utusoverview/docs/DC
%20Regulation%201991.
pdf

Rajiv A w a s Y o j a n a

Interest Subsidy S c h e m e
f o r H o u s i n g thee U r b a n
Poor ( I S H U P )

o
d

I
z

cn

I
o

o
I
z

c
z:
o
a
z

I
I
n

>
z:
a

TO
o
o
z^

47

M i n i s t r y of H o u s i n g &

http://mhupa.gov.in/ray/

U r b a n PPoverty A l l e v i a t i o n

Ray_index.htm

M i n i s t r y of H o u s i n g &
U r b a n PPoverty A l l e v i a t i o n

http://mhupa.gov.in/prog
rams/housing/index.htm

Bibliography
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Economic Times .
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A p p r o a c h to R e d u c i n g Urban S l u m s in India. T h e W o r l d Bank.
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York T i m e s .
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http://incrementalcity.wordpress.com/2012/09/18/unthinking-housing-for-theurban-poor/
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M a r c h 2 0 1 4 , f r o m maharashtra.gov.in
M C G M . ( 2 0 0 5 ) . M u m b a i City D e v e l o p m e n t Plan 2 0 0 5 - 2 0 2 5 .
M C G M . ( 2 0 1 2 ) . P r e p a r a t o r y Studies, D e v e l o p m e n t Plan for Greater M u m b a i
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M i n i s t r y of H o u s i n g and Urban Poverty A l l e v i a t i o n , G u i d e l i n e s for Interest
S u b s i d y S c h e m e for H o u s i n g t h e U r b a n Poor ( I S H U P ) . Retrieved M a r c h 2 0 1 4 ,
from mhupa.gov.in: http://mhupa.gov.in/programs/housing/index.htm
M i n i s t r y of H o u s i n g and Urban Poverty Alleviation , Rajiv A w a s Yojana (2013
2 0 2 2 ) . Retrieved M a r c h 2 0 1 4 , f r o m m h u p a . g o v . i n :
http://mhupa.gov.in/ray/Ray_index.htm
M i n i s t r y of H o u s i n g and Urban Poverty Alleviation , R e p o r t of the High Level
Task Force on A f f o r d a b l e H o u s i n g For A l l .
M i n i s t r y of H o u s i n g and Urban Poverty A l l e v i a t i o n , ( 2 0 1 3 ) . T h e Real Estate
(Regulation and D e v e l o p m e n t ) Bill, 2 0 1 3 . Retrieved f r o m
http://mhupa.gov.in/W_new/Real%20Estate%20Bill%20as%20introduced%20in%
20the%20Rajya%20Sabha%20on%2014.8.2013.pdf
Nair, S. ( 2 0 1 4 , M a r c h 5). N o t h i n g m u c h to write h o m e a b o u t . Indian Express .
Patel, S., Tandel, V., & G a n d h i , S. ( 2 0 1 3 , N o v e m b e r 30). Revisiting t h e Real Estate
Bill, 2 0 1 3 . E c o n o m i c & Political W e e k l y .
P r o g r a m m e , U. N. ( 2 0 0 3 ) . Rental H o u s i n g : A n essential o p t i o n for the u r b a n poor
in d e v e l o p i n g countries . Nairobi.
R a o , S., & Contractor, S. ( 2 0 1 4 ) . R E A L T Y C H E C K - S L U M R E H A B I L I T A T I O N IN
M U M B A I : W h y it has failed? H o w it can s u c c e e d ? O b s e r v e r R e s e a r c h F o u n d a t i o n .
Patel, S., G a n d h i S., Tandel V., Pethe A., Libeiro S.J., A g g a r w a l K., ( 2 0 1 4 ) . Reforming
Rent Control in M u m b a i : M o v i n g T o w a r d s S e c o n d G e n e r a t i o n C o n t r o l s .

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49

Jordan Flaherty, Floodlines: Community and Resistance from Katrina to the Jena Six
Primary Census Abstract Data for Slums, 2011, Census of India
Preparatory Studies, Development Plan for Greater Mumbai 2014-34
Strategy for Housing & Slum Improvement, Mumbai City Development Plan 2005-2025
Annez, P. C., Bertaud, A., Patel, B., & V.k., P. (2010). Working with the Market, Approach
to Reducin
Annez, P. C., Bertaud, A., Patel, B., & V.k., P. (2010). Working with the Market, Approach
to Reducin
Report of the High Level Task Force on 'Affordable Housing for All', 2008
http://www.nhb.org.in/R&D/Committee_Report.pdf
Incremental Housing: A proactive Urban Strategy
http://web.mit.edu/incrementalhousing/articlesPhotographs/pdfs/PagesMondayMag.pdf
UN-HABITAT, 2003, Rental Housing: An essential option for the urban poor in
developing countries,
http://mmrda.maharashtra.gov.in/rental-housing
'It's curtains on rental housing'
http://archive.indianexpress.com/news/it-s-curtains-onrental-housing/1192590/
MRTP Act, 1966
A building that pays cess --a tax commonly referred to as the "repair fund"- is termed
as a cessed building. Such buildings are typically old constructions.
Mumbai City Development Plan 2005-2025
TDR- In certain cases, the development potential of a plot of land may be separated
from the land itself and may be made available to the owner of the land in the form of
Transferable Development Rights.
Manhattan is one of the five boroughs (similar to a municipal corporation) of New York
City, USA.
New York City is organized into 59 community districts. Manhattan has 12, each about
400-500 hectares in area. Each CD is represented by a Community Board, composed of
volunteer community members that assist neighbourhood residents and advise on
neighbourhood and citywide planning and service issues.
The values assumed for Institutional and Open areas per capita are below the norms
given in the National Building Code (2005). The value for Street space per capita is
below the worst case among Mumbai's existing Wards
http://mhupa.gov.in/w_new/RAY%20Guidelines-%20English.pdf
Over all Progress (State-wise), Ministry of Housing and Urban Poverty Alleviation