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Evaluation of Urban Redevelopment Projects: A Citizen Survey in Pune

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 Evaluation Of Urban Redevelopment Projects:
A Citizen Survey In Pune
1 2
Pradeepta Kumar Samanta and Ramakrishna Nallathiga
Abstract : With rapid urbanization, there is increasing pressure on converting the rural land into
the urban land (also known as Greenfield development) giving rise to urban sprawl. As
urban sprawl is inefficient in extending the urban services and development of the land,
the redevelopment of inner city areas (also known as Brownfield development) has
been gaining importance in both developed and developing countries. Therefore, all
major development authorities have been promoting urban redevelopment projects,
particularly in the dense and already congested areas of cities. In India also, several
cities have begun undertaking urban redevelopment projects in a big way, particularly
under the National Urban Renewal Mission of the Government of India.
However, there is an academic debate about undertaking such large projects. Unlike the
new development, urban redevelopment is a reconstruction of a previously developed
area. Specifically, redevelopment changes the land use between types of urban land,
while new development is changing non-urban land into urban land. But in the process,
it is also essential to take the different views of stakeholders and subject the projects to
public scrutiny. In this context, the current paper proposes to evaluate an urban
redevelopment project proposed in Pune city. Based on the survey of the citizens living
in the proposed redevelopment project area, the paper brings out some of the important
aspects of project planning and development that are hitherto not considered in such
projects. The paper emphasizes that these aspects need to be carefully considered for
better project implementation and success.

Keywords : UrbanRenewal; Redevelopment Projects; Project Evaluation; Citizen Participation

INTRODUCTION Also, there is a greater concern about the un-regulated

Urban renewal/redevelopment has emerged, in recent and uncoordinated expansion of the cities leading to
years, as one of the major area of research as well as urban sprawl, which is known for posing the problem
professional practice in India as well as across the of providing civic services, energy consumption and
world. This reflects a concern with what happens to environmental pollution (Duany et al., 2000).
existing cities, especially when they are confronted Therefore, there is a greater emphasis laid down now
with demographic, economic, political, and social on utilizing the area of existing cities through a change
changes. One of the major reasons for the focus is due of land use and intensification of development.
to the limited role played by spatial form of cities and However, urban renewal/redevelopment is a rather
their land use, which is not responding to the changing complex process with its links to macro/structural
forces (Williams and Burton, 2001). Greenfield processes, specific urban redevelopment efforts, and
development around the cities is no longer becoming a local communities living in the city space.
viable proposition, as they lack the vital linkages with Urban renewal/redevelopment [It is also termed as
the prime city and also deficient in infrastructure. 'urban regeneration' in the United Kingdom (UK) and
1
Sr. Associate Professor, School of General Management (SoGM), National Institute of Construction Management and Research, Pune.
Email: pksamanta@nicmar.ac.in
2
Associate Professor, School of Project, Real Estate and Infrastructure Management (SoPRIM), National Institute of Construction
Management and Research, Pune.
34
'urban revitalization' in the United States of America
(USA)] is a programme of physical (property) and
socio-economic development in existing cities, which
are under urban decay due to a variety of factors.
Modern attempts of urban renewal began in the
developed nations in the late 19th century after the
World War - II (WW-II) in response to the destruction
in the WW-II under the rubric of reconstruction. Since
then urban renewal/ redevelopment has become an
essential means of development. The urban renewal
process has had a significant impact on the urban
landscapes of different nations, and it played an
important role in the history and development of cities
around the world. There are variations in urban
renewal/redevelopment (Skykes et al., 2008).
?
Urban Infill Development – wherein vacant land
parcels with no current activity, but previously
developed for a different purpose, (also known as
'Brownfield land'), are developed, e.g.,
redevelopment of an industrial site into a mixed-
use development.
?
Reconstruction – wherein existing houses are
constructed with denser land usage, such as the
redevelopment of a block of old houses into large
apartment buildings.
?
Recycling/Adaptive Reuse - wherein older
buildings/structures are refurbished/ improved to
fit for current market use, such as turning an
industrial mill into entertainment and leisure space
or even residential housing.
Urban renewal/redevelopment projects can be either
small or large scale ranging from a single
building/structure to an entire neighbourhood or even
' n ew t ow n s h i p ' p r o j e c t . U r b a n r e n ewa l /
redevelopment often involves the relocation of
business firms, the demolition of standing structures,
the relocation of residents, and also the use of 'eminent
domain power' (Eminent domain power refers to the
government's power to acquire private property for
public purposes, such as development projects
Evaluation Of Urban Redevelopment Projects: A Citizen Survey In Pune
initiated by city governments.) of the State. It is also
achieved through State and Federal governments,
which give cities and regional authorities to establish
special agencies to address the problems of urban
decay. Sometimes, it is achieved through special
programmes that are funded by donor agencies and/or
federal governments. The fundamental role of an
urban renewal/redevelopment agency includes
exercising the authority to acquire real property using
the power of eminent domain, to plan and execute the
redevelopment and to sell/allocate the developed
property without/with bidding. Further, the authority
will have the responsibility of relocating the persons
who have vanquished their interest in the real property
acquired by the renewal/ redevelopment agency. The
financing/funding of such operations might come
from various sources – donor agencies, government
grants, borrowing from federal or state governments,
floating bonds, and other extra-budgetary resources
(In the USA, for example, Tax Increment Financing
(TIF) is popularly used in urban revitalization
projects).
Urban Renewal In India
The Jawaharlal Nehru National Urban Renewal
Mission (JNNURM) is perhaps the first
comprehensive attempt to achieve urban renewal/
redevelopment on pan-India basis. It aimed to
encourage reforms and fast track planned
development of identified cities, which are also termed
as mission cities. The JNNURM focus was aimed at
improving the efficiency in urban infrastructure and
s e r v i c e d e l ive r y m e c h a n i s m s, c o m mu n i t y
participation, and accountability towards citizens
(GoI, 2005a). The major objectives of the JNNURM
include (GoI, 2005b).
?
Focussed attention to integrated development of
infrastructure services in cities covered under the
Mission.
?
Establishment of linkages between asset-creation
and asset-management through a slew of reforms
for long-term project sustainability.
NICMAR-Journal of Construction Management, Vol. XXXIV, No. 4, October-December, 2019
?
Ensuring adequate funds to meet the deficiencies in
urban infrastructural services.
?
Planned development of identified cities including
peri-urban areas, outgrowths and urban corridors
leading to dispersed urbanisation.
?
Scale-up delivery of civic amenities and provision
of utilities with emphasis on universal access to the
urban poor.
?
Special focus on urban renewal programme for the
old city areas to reduce congestion.
?
Provision of basic services to the urban poor
including security of tenure at affordable prices,
improved housing, water supply and sanitation,
and ensuring delivery of other existing universal
services of the government for education, health
and social security.
Besides JNNURM, some of the major Indian cities
have also been undertaking various initiatives of urban
renewal/ redevelopment, particularly the initiatives of
area redevelopment and slum redevelopment
schemes. However, most of them are small projects,
and the real impetus began after the JNNURM has
come into place in urban India.
REVIEW OF LITERATURE
Koebel (1996) has examined the urban redevelopment
during the period after World War – II (WW-II) and
notes that urban redevelopment happened through
different processes, such as: slum clearance, clearance
for public housing, national promotion of social
change, redevelopment of central business districts,
and the federal retreat from cities. It notes that the
redevelopment problems, which federal urban
renewal/redevelopment programme attempted to
address, are the serious failures. It concluded that the
lessons learned from post-WW-II redevelopment
provide important guidance for the future efforts
towards urban renewal/redevelopment.
Gotham (2001) reviews Urban Redevelopment - Past
and Present - with a focus for urban theory and urban
research. It highlights ambiguities, inconsistencies,
35
and contradictions in the nature, meaning, and
consequences of urban redevelopment.
Grodach and Loukaitou (2007) discuss the
development of municipal government strategies for
urban renewal/ redevelopment in the USA and
classify them into three different models. Based on the
findings from a national survey covering large and
medium-sized US cities, it was concluded that most
agencies are guided by different sets of goals and
entrepreneurial objectives which continue to guide
urban redevelopment. However, the key challenge is to
frame strategies for urban renewal that address social
goals within economic realities.
Heffron et al. (2011) discuss improving urban
regeneration in the U.K., based on the lessons from the
developing world. They assess urban regeneration
policy and legislation in the U.K. and present the
major lessons that emerged from it. The learning from
the case studies of urban renewal in the cities of
developing countries could also be applied in the
U.K.'s urban regeneration context so as to achieve
beneficial outcomes.
URA (2011) discusses the Urban Renewal Strategy
(URS) as a public strategy. Under this strategy, urban
renewal is not 'Slash and Burn' process, but it involves a
comprehensive and holistic approach to rejuvenate
older urban areas through redevelopment,
rehabilitation, revitalization, and heritage
preservation. The URS needs to be implemented by
the Urban Renewal Authority (URA) together with
major stakeholders/participants. The URS needs to be
reviewed and updated from time to time, and the
public consultation needs to be made before it is
finalized for implementation.
Oladosu (2015) writes about the issues and challenges
of urban renewal in Jos, the capital city of Nigeria.
Although urban renewal brings improvement to
physical and housing conditions and makes the city a
suitable place for living, its implementation calls for
caution and concern. He studied urban renewal
36
programme implementation through questionnaires,
interviews and field observation in three high-density
residential areas of Jos city. The results revealed that
fear of loss of property, lack of trust in government
and poor compensation are the factors of non-
acceptability of renewal programmes. The citizens are
of the opinion that poorly managed urban renewal
programmes can regenerate crisis in the metropolis.
Mustapha (2016) studied multi-dimensional
challenges to urban renewal in Kano Walled City,
Nigeria. The ancient city of Kano poses a serious
threat to urban development because it still retained
the layout structure of pre-colonial setting, wherein
buildings are built close to each other and are usually
separated by narrow winding path. The study reveals
that the walled city is experiencing myriads of
challenges that could be classified as planning
challenges, socio-cultural and economic challenges
and these challenges are the key reasons why
respondents oppose urban renewal programme within
the city. The study concludes that urban renewal in the
walled city needs to take into cognizance the socio-
cultural values and the economic conditions to have a
planned and sustainable urban environment.
Onkar et al. (2008) explore the concept of Urban
Renewal in the Indian context. Indian cities are
characterized by the transformation of space and
processes. The current urban planning system in India
focuses on the planning and development of new
urban areas by land acquisition and does not distinctly
address the problems of existing cities. Technocratic
approach to town planning is now obsolete as
planning tools have not been able to contain urban
growth. The paper highlights the need for
understanding the concept of urban renewal.
Macwan et al. (2010) discussed the revitalization of
the historic urban center in Jaipur city. Jaipur city is in
transition with the growing population, and its needs
are conflicting with the unique characteristics,
architectural values, and heritage of the old city. The
Evaluation Of Urban Redevelopment Projects: A Citizen Survey In Pune
inner city of Jaipur is strained by several issues like
inadequate/ obsolete infrastructure, inadequate use of
buildings, lack of public open spaces, traffic
congestion, and a poor mix of conflicting and non-
conforming land uses, the poor state of dwellings,
unhygienic conditions, environmental neglect, social
tension, poverty, and unemployment. Thus, inner-city
revitalization is very important and makes sense, when
viewed from multiple perspectives.
Petkar et al. (2012) studied urban renewal of the Sadar
Bazaar area in Pune Cantonment. The Cantonment
area of Pune was well planned in a grid iron pattern, in
order to suit the military requirements and Sadar
Bazaar area was set aside for the trade activities of
Indian traders. Ironically, Sadar Bazaar, which was
planned as an organized shopping area, has become
congested and disorganized. The urban renewal
programme should attempt to improve the built
environment by replacing old/ run-down or under-
utilized areas with new developments that provide
adequate infrastructure. It also needs to promote
rehabilitation and preservation of current buildings
and to improve architectural, cultural or historical
interest of local places.
Dhote (2012) presents the planning interventions for
urban renewal and redevelopment in India. The
recently launched urban renewal mission is for the
metropolitan and million-plus cities. It is necessary to
understand the complex process of urban renewal/
redevelopment that involves the degraded inner city or
blighted areas converted into newly developed areas
through suitable intervention. Logical framework can
be applied to understand the process.
Zope (2013) discussed the planning strategies for
urban areas with reference to Pune City. The spatial
growth of the cities normally takes place in the fringe
areas, where it creates an unplanned development of
cities. The physical development of cities in a
concentric pattern or radial pattern raises challenges
for town planning in the cities like Pune, which is
NICMAR-Journal of Construction Management, Vol. XXXIV, No. 4, October-December, 2019
cultural and education center of Maharashtra, with
imbalanced land use pattern. Strategies are required to
improve town planning for addressing urban
revitalization and redevelopment.
Chatterjee (2013) notes that a mission of the scale of
JNNURM, requires large tracts of land. However, as
the JNNURM sets aside the question of acquiring
sufficient land. A convenient option for city
authorities is to acquire land by clearing slums on
public land. As land is a very important resource as
well as necessity for the urban poor, the issues of
accessibility of land for the urban poor need to be
addressed; otherwise, this issue might emerge as the
fault line between different sets of stakeholders of
urban renewal/redevelopment projects.
Charumitra et al. (2014) discussed the slum
redevelopment strategy through an inclusive
approach. The prevailing approaches to tackle the
problem of slums have limited impact on the
environment and well-being of citizens. Slum
redevelopment should take an integrated, inclusive
and participatory approach with an understanding of
the capabilities, choices, and willingness of slum
dwellers. A comparative impact analysis between
physical and socio-economic environment may guide
the authorities in the prioritization of issues that could
lead to a sustainable action plan through a
participatory as well as inclusive planning.
Nallathiga (2012) states that the formation of slums is
widespread in Indian cities and the governments have
taken different approaches over time, with a shift away
from the removal to rehabilitation and to
redevelopment. However, slum redevelopment can be
difficult, if it is not accompanied by a supportive
policy and appropriate implementation
models/structures. It notes that the partnership
approach, as initiated by some states like Andhra
Pradesh, need to be taken to the next level through a
comprehensive slum redevelopment plan/
programme. The paper also lays down framework
37
with which the partnership can be mooted.
CURRENT STUDY/ RESEARCH
The Draft Development Plan for Pune City (2006)
noted that Pune city is not developed conventionally,
but it consists of multiple centers such as Pimpri-
Chinchwad, Lohegaon, Hinjewadi, and Hadapsar.
With population growth due to migration, the issues
of inadequate infrastructure and deteriorating
environment became important. Population growth
also created more demand for housing, which was not
realized; therefore informal housing in the form of
slums. This resulted in the need to revitalize the city
through urban renewal and redevelopment. Thus a
holistic approach was required in a long way in
fulfilling the objective of urban renewal/
redevelopment.
Literature review in the previous section presents a
varied approach to urban renewal/ redevelopment,
especially the critical review presented by some of
them which form the baseline for current work. The
current study concerns with urban renewal/
redevelopment in Pune city with a focus on Vadgaon
Budruk area for of transforming the present condition
and revolutionizing the condition of the people and
the lifestyle they prevail since a long time. Vadgaon
Budruk (Bk), also locally known as Vadgaon, is an
emerging suburb of Pune. It is located on Sinhgadh
Road after Anand Nagar; it is near to Katraj-Dehu
Bypass Road. Under the JNNURM plan, there are
three major projects in progress in Pimpri-Chinchwad.
These facilities are lacking in Vadgoan Bk, which need
immediate attention.
The research focuses on the factors that have direct
relevance to the approach to urban renewal/
redevelopment. These significant determinants were
developed based on the theoretical background that
established the three major determinants - physical,
social and economic factors. The data collected
through a survey done with the people of Vadgaon
(Bk) area provided necessary inputs for checking if the
38 Evaluation Of Urban Redevelopment Projects: A Citizen Survey In Pune
local people are ready for the project and also, what are
the needs and basic facilities that the area lacks and is
desired by the people. The Questionnaire for
conducting a survey on the current approach to urban
redevelopment/ renewal was drawn through a process
shown in Figure 1.
The research study is based on the data collected
through surveys carried out in Vadgaon (Bk) area,
which is undergoing a lot of renewal and
redevelopment activity. The approach to a critical
review of urban renewal/redevelopment work is based
on the assessment through household survey and its
interpretation, while focusing on the workability of
the renewal/redevelopment project, the readiness /
reluctance of local people, facilities to be provided,
financial aid from the Government, and finally
checking the viability of the project.
ANALYSIS AND RESULTS
A questionnaire was circulated with representatives,
and personal interviews were conducted individually
with the residents of the study area. The residents
were divided into people residing in the area and the
people who regulate their day to day business in the
area. The initial target sample size was about 100
Figure 1: Questionnaire Design Process
responses, but about 65 responses could be obtained
finally. The data collected is both qualitative as well as
quantitative in nature.
Figure 2 shows the age-structure of the respondents
of the survey. The occupation of respondents is
important to assess their income level, ability to
resettle the business/occupation to some other place
and ability to bear resettlement pressure. Primary
occupation and secondary occupation was taken into
consideration to know exactly how much income is
generated and the number of people generating this
total household income. Figure 3 show the primary
occupation of the respondents. Figure 4 show the
secondary occupation of the respondents. Also, an
attempt was made to understand the major issues
that are confronted by the people living in the area.
Figure 5 shows the issues/problems confronted by the
respondents.
Pe o p l e s ' Pe r c e p t i o n O f Re s e t t l e m e n t ,
Rehabilitation And Redevelopment In The Area
One of the major problems faced by urban renewal
projects is the lack of involvement of people, which
leaves many doubts in the minds of the residents and
businesses, which are needed to be addressed first
before implementing the project. The survey also
captured the feedback from residents and businesses
NICMAR-Journal of Construction Management, Vol. XXXIV, No. 4, October-December, 2019 39

Figure 2: Age Of Respondents

Figure 3: Primary Occupations Of The Respondents

Figure 4: Secondary Occupation Of The Respondents

Figure 5: Problems Faced By people In Vadgaon (Bk) Area

40 Evaluation Of Urban Redevelopment Projects: A Citizen Survey In Pune

about the renewal in Vadgaon (Bk). Figure 6 shows the
respondents' feedback on major issues. It is clear that
the people were concerned about the loss of land,
property, income, and employment due to the ongoing
renewal/ redevelopment projects.
A. Expectations for Compensation for Loss of
Land/Livelihood
The respondents were also asked what type of
compensation they would want if they were to be
rehabilitated and resettled in some other place. The
types of compensation included were:
1. Land for land
2. Cash for land
3. Employment for land
4. Housing for land
Figure 7 shows the responses. Majority of them seek
land to land compensation, but some of them are okay
with cash, housing or employment.
B. Preferences For Cash Compensation
Moreover, if the responses were in favour of “Cash for
land” type of compensation, then the individuals were
asked what will be their measure of cash
compensation to be rewarded to them against their
land. Figure 8 shows the responses. It can be seen that
many of them seek market or above the market price of
land for compensation.
C. Utilization of Cash Compensation
It was also necessary to know how the cash allotted to
the people against their land or loss of livelihood will
be utilized by them. This is important to know as most
of the people residing in the area are of medium or
low-income groups. Also, as not much of the
population in the area is highly educated, so, responses
about where the cash will be utilised were taken, and
alternative investment options were told to them,
which can, help them in successful resettlement in
some other place. Figure 9 shows the responses

Figure 6: Major Issues For The Loss After Resettlement In Vadgaon (Bk)

Figure 7: Expectations For Compensation Against Land Taken/ Loss Of Livelihood

NICMAR-Journal of Construction Management, Vol. XXXIV, No. 4, October-December, 2019 41

received. Evidently, most of them want to utilize cash
for buying another piece of land.
D. People Perception about Problems after
Resettlement
When people are resettled in another area, they need
basic infrastructure and amenities. However, very
often, they are not provided in that area, and
temporary camps are made to become permanent
settlements. Lack of basic infrastructure is a major
problem that the people have to face due to
displacement or resettlement. Also, displacement is
not a simple incident without any issues. The people
displaced have to leave the ancestral land, on which
they normally depend for their livelihood. Lack of
skills to take up another activity or to move to another
occupation is a major shortcoming. Usually, the
displaced people are offered land of poor quality, and
they tend to be unable to make their living from it.
Therefore, it became important to take a perspective
survey of the people about the problems they may face
after resettlement. The overall perception of the
people were classified as:
1. Lack of safe drinking water
2. Lack of accessible health facilities
3. Lack of education facilities
4. Lack of social infrastructure
5. Lack of electricity facilities in and around the area.
Figure 10 shows the public perception of issues after
resettlement.
Shop Owners' Perception Of Redevelopment In
The Area
After the responses from the local people were taken,
the shop owners were consulted in the area. In the first
place, it was important to know that are the shop
owners ready to resettle their businesses to a new place.
Figure 11 shows the responses on resettlement.
Does Shop Owners Prefer Resettlement
If a mall is constructed in the area, and all the shop
owners whose shops are taken for redevelopment are
given shops in the mall itself, it may increase their
earning potential and simultaneously, help in the

Figure 8: Preferences For Cash Compensation

Figure 9: Utilization Of Cash Compensation

42
Figure 10: Perception About Problems Faced By People After Resettlement
Figure 11: Responses Of Shop Owners
Regarding Resettlement
betterment of their livelihood. Therefore, the
shopkeepers were also asked if they prefer a single mall
construction in place of a number of shops spread
across the area without proper planning that will help
in redevelopment. Figure 12 shows responses.
CONCLUSIONS AND SUGGESTIONS
Redevelopment is a necessity for cities, which are
dynamic in nature. Without undertaking urban
renewal/redevelopment, the built environment may
deteriorate and become rundown. The traditional
flight to suburbs by business firms and middle-class
households has led to 'Greenfield development' of
suburban and rural areas, which can be costly in terms
of resource consumption. Therefore, redevelopment
(or, Brownfield development') of the central city and
other locations is seen as a viable alternative. However,
redevelopment is fraught with several issues, which are
not given due attention in project planning and
implementation.
From the citizen survey of urban renewal/
Evaluation Of Urban Redevelopment Projects: A Citizen Survey In Pune
Figure 12: Feedback On The Construction Of
A Mall In The Area
redevelopment project in Vadgaon (Bk), we can say
that area redevelopment is not an easy task; the
strategies involved in it are very complex and require
support from the affected population and private
businesses for achieving success. Redevelopment
strategies need to be sensitive to land and livelihood
losses of residents and displacement of local
businesses. Successful redevelopment requires forging
partnerships between local government, private
developers, local population, and local businesses. It
is important to form such partnerships needed to
rebuild Vadgaon and many more areas.
Acknowledgement
The authors would like to acknowledge the support
received from Mr. Karan Batra, Mr. Krishna Bagla and
Mr. Ayush Kumar for conducting the field survey and
obtaining the responses from the sample.
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