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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MAKING DEMOCRACY WORK

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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.

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Supported by

Narotam Sekhsaria Foundation

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F U R DIE F R E I H E I T
Fried rich Neumann
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MADHU MEHTA FOUNDATION

CONTENTS

A b o u t Praja F o u n d a t i o n 1

Praja T e a m 3

Abbreviations 4

Foreword 5

Preface 7

Facts a b o u t G r e a t e r M u m b a i 9

I. Housing Concepts 10

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

II. 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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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 a

Table 2: P a r a m e t e r s to d e f i n e 'Affordability' . 13
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Table 3: M u m b a i v s . M a n h a t t a n 31
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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
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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 CD'

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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 in

III
 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. Praja
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 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 local
government among citizens, and hence the disinterest 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
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
IE

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• Well-informed Media
I- • Well-informed Citizens

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| 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
E o r d e r to i m p r o v e g o v e r n a n c e and bring accountability through
T 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 .

> 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

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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 use
information to solve citizens' issues.
 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 (viz. Elected Representatives, Government /
Administration and Citizens) come together 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.

I
 Board of Trustees I PRAJA TEAM
Nitai Mehta
Team Members
Managing Trustee, Praja Foundation;
Entrepreneur
Milind Mhaske
Sumangali Gada
Project Director
Founder Trustee, Praja Foundation;
Priyanka Sharma
Entrepreneur
Project Manager
Jamal Mecklai
Balwant Kirar
Trustee, Praja Foundation; Foreign Exchange
Project Co-ordinator
Consultant
Dakshata Bhosale
Iris Madeira
Data Entry Operator
Trustee, Praja Foundation; Education
Devank Gurav
Consultant, Board of Advisor's Centre for Civil
Data Entry Operator
Society
Diksha Redkar
Vivek Asrani
Senior Data Entry Operator
Trustee, Praja Foundation; Entrepreneur
Diksha Singh
Anuj Bhagwati
Project Officer
Trustee, Praja Foundation; Entrepreneur Dilip Tambe
Chief Translator
Eknath Pawar
Advisors to Praja
Senior Data Collection officer
K. M. S. (Titoo) Ahluwalia
Harshada Gundaye
Former Chairman & CEO A,C. Nielsen ORG-
Data Entry Operator
MARG
Kaustubh Gharat
Dr. Suma Chitnis
Project Co-ordinator
Social Scientist & former Vice Chancellor,
Nilam Mirashi
SNDT University
Junior Data Analyst
Julio Ribeiro
Sadiqa Bagdadi
IPS (Retd.), former Commissioner of Mumbai
Administration cum Accounts
Police
Officer
D M Sukhtankar
Shraddha Parab
Former Municipal Commissioner, Mumbai and
Data Checker
former Chief Secretary, Government of
Swapneel Thakur
Maharashtra
Data Checker
Dr. C. R. Sridhar
Shweta Kesarkar
I Market Research Professional
Project Officer
Rajan Mehra
Vipul Gharat
Entrepreneur
Senior Data Entry Officer
Vinay Sanghi
Parinita Ganesh
Entrepreneur
Intern
Juju Basu
Advertising Professional
Translation: Vidya Kulkarni
Sonali Shahpurwala
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Designed by: Ashok Nirgulkar
Banker
Mustafa Doctor
Solicitor
Dhruv Mundra
Entrepreneur
7t
Shekhar Ghosh
Public Relations Advisor

3
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
s
J N N U R M - Jawaharlal Nehru National Urban Renewal Mission a
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LIG- Low-income Groups CD
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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 <

M I G - Middle-income Groups w

M M R - M u m b a i Metropolitan Region E/5

zz.
N D - Net Density a

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

4
 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
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
cz
I 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
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m a n n e r : FSI, T D R , S R A a n d s o f o r t h .
ZQ

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en 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
a 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 - but without resorting to o v e r s i m p l i f i c a t i o n and
distortion.

5
 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 provide
housing for m o r e - such as i n c r e m e n t a l housing, 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.
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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 w

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. EJ5

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6
 PREFACE

"Housing is a human right. There can be no fairness or justice in a

society in which some live in homelessness, or in the shadow of
that risk, while others cannot even imagine it." 1

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
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 .
cz
Moreover, majority of a f f o r d a b l e housing projects are being
cn
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
I
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.
33

cn 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, public transport etc.), social infrastructure (facilities
a 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 .

7
This Handbook is our endeavour to familiarize Elected
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 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
s
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 . a
a
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 CO
a
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 . <

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 . a

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

8
 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 % )
S 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 P o p u l a t i o n as of 2 0 1 1 - 1.24 c r o r e
1 P o p u l a t i o n living in s l u m s - 4 1 . 8 5 %
s
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 %
D
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
A 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

9
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
thetimes.co.uk
/n this section, we introduce you to
fundamental concepts used by
institutions such as local
governments and urban planning CL- J

!_ .
bodies to address the growing s
housing needs in urban 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
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
cz
— 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
cn
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
—
o 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
JJ

I
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 5

No. House Type Price Range I N R % of Stock Nature of Stock

1 Pavement Dwellers 3 Informal

3,00,000-23,50,000
2 Slums 45 Informal

Formal but non

3 Chawls 15 compliant with
present standard

20,00,000-40,00,000 F o r m a l , initially
4 Slum Rehabilitation 2 free to slum
dwellers

5 EWS/LIG 5 Public Housing

6 MIG/HIG 2 Public Housing

10,20,000- 85,00,000
7 1 BHK apartments Formal

8 2-3 B H K a p a r t m e n t s 28 Formal
65,00,000¬
9 3+ B H K apartments 25,00,00,000 Formal

Total 100
Source: Policy Research Working Paper 5475, November 2010, The World Bank 6

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 purchase—2.5 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 S
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 a
a
CO
e x p a n d i n g affordability. 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 w

EJ5
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
a
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
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 MIG

Size 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 exceeding 5 times

gross annual income household gross annual
income

EMI/Rent Not exceeding 30% of gross N o t e x c e e d i n g 4 0 % of g r o s s

monthly income 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
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 ,
cz
I
N
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 .
cn
I

33
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
I
housing.
N

c
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
>
ZI
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
TO
a
o
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
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 lower-
i 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

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 Affordable CD

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 ptOjeCtS M |
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 Mufflbdl tlCIVe °
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 been fflOtted |
from a completely different context, w e have L Inrls r%f lnw%M °
several successful Slum Redevelopment ***CA Vf tUfftf o
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 availability In %
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 .
t
lfflailfX
h e c i t y .
g

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 urban
development process 8
for building housing communities. Its 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
z P r o v i d e flexibility
c
I
o
Image: Incremental Housing, Savra
ZQ
Gheda colony of New Delhi
I
z

c
ZI
o
a
z:
I
I
n

>
ZI

TO
a
o
o
z^

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

15
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 -
d
typical sites-and- a
o
services co-op society
r
of 33 plots. M o s t plots
\\V\V\W\V\\\\\V\V\W\W\V e
d

NT
i

are 3 m x 8 m . Those
abutting the road are m
larger. 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 w

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 a

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 to a typical 33-family sites-and-services co-op and view of a
typical internal courtyard. Some houses have remained single-storeyed; most
have added an upper floor. Note the manholes of the drainage line running down
the centre of the courtyard.

Here is a gate into the courtyard

where the entrance passage has been
(illegally) built over to add an extra
room.

cz
cz
I
Incremental
housing, also known
z

zo
cz
as Sites-and-
W

I
Services, is a step-
by-step urban
z

ZI
o
a

development
z

I
I

> process for building

housing
ZI

TO
a
o
o

communities.
z^

17
 View into the courtyard from the
entrance passage which has been
covered over, showing the access
stair placed within the entrance
passage. This must be a co-op with
weak enforcement and a strong
individual member who can get
away with this.

The main road, with apartment buildings

on plots that abut the main road.

18
 Looking towards the entrance The 9m wide road on to which each
passage from within the courtyard. courtyard opens. Note that sites-and-
Note again that some houses are services plots abutting the road are
single storied and some have added allowed to have a shop opening on the
a floor. street, with the family living space
behind the shop. This works well and
gives the street a feeling of being busy
and active.

Salient Features of the Project

• 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
cz
I
z
p l a y g r o u n d s a n d a p u b l i c park.
I
• 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
o

zv 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.
cz
W • 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
I
z
scheme. The sites-and-services plots a l o n e , w i t h t h e i r i n t e r n a l courtyards
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
o
a 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
z:
I 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
I
n
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
ZI

TO
a
o
scheme.
o
z^ • 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
 bankbazaar.com
We should note that 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 tenure to virtually every household at some stage

in their lifetime and therefore should constitute a substantial element in the
housing stock of every society." 9

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.
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 .
S
a
a
"In many European countries, the public sector has sought increasingly to CO
a
transfer the responsibility for looking after lower income groups to the social <

sector. In the United Kingdom, much of the responsibility for accommodating w

poorer households has been passed from the local authorities to housing E/5

associations. In 2001, social housing institutions accounted for one fifth of the a

total housing stock and more than two-thirds of the rental stock. In Denmark,
social rental housing contributed to half of the new housing stock during much
of the 1990s and accounted for 43 per cent of all rental housing in 2001. In -
Ireland, the social rental sector accounts for half of the rental housing stock. In
the Netherlands, social housing institutions have become the main providers of
rental housing and in 2001 contributed three-quarters of the total rental
stock." 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 self-
c 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
^1
I Rental Housing
| refers to a property
W owned by someone
j other than the
E resident or by a
E legal entity for
Z which the resident
K pays a periodic rent
V
to the owner.
21
 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 randomly
distributed t h r o u g h o u t the settlement. Residences also similarly
cluster together. O n a busy street y o u might have shops on the
ZI 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
o
a 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
> 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
z:
a
w e n e e d p u b l i c toilets t o o .
TO
o

23
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
can handle.
• 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
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 j
next. •
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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 w
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 i
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 Planning Authority shall carry out a survey prepare an existing land-use map
and prepare a draft development plan for the area within its jurisdiction, in
accordance with the provisions of a Regional plan, where there is such a plan [publish a
notice in the Official Gazette and in such other manner as may be prescribed stating
that the draft development plan has been prepared] and submit the plan to the State
Government for sanction. The Planning Authority shall also submit a quarterly Report
to the State Government about the progress made in carrying out the survey and
prepare the 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 D e v e l o p m e n t Plan

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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
I
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 &
o
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 and sanctioned in p a r t s f r o m 1991 to 1994. As the previous
ZI 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
o
a 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
EJ3 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
. - .- „ r - - j - .- ~. . ... 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
— — , . — — j — ,

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.

A LI sustainable city.
maguspmc.fiies.wjdJ3ss.com

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 redevelopment'

'FSI of 4 for old buildings: 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: Can you give an example of what happens when we suddenly
33 * increase 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
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
ZI
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a
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
TO
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o 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 .

29
 Praja: Can FSI be varied from one plot to another or one locality to
another?

^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 people in smaller
flats, or higher on plots where richer people live in larger flats?

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 Manhattan has FSI that goes up to 15, whereas in
* Mumbai it has been limited to 1.33 till recently (or 2 with TDR in the
S
suburbs)? a
a
CD
a
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 w
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 E/5
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 a

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. 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 5 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 flat,
will increasing FSI not bring down flat prices? After all, the same land price
will then get distributed over many more floors. This should surely bring
flat prices down.

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
I 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?

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
a
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
TO
a
o 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 regarding FSI, we have started hearing of anew term

called 'Crowding'. Can you explain what this 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
S
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 C
C
cn
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 a
z:
<
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 in

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

E/5
z:
a
Praja: But why do we need this new metric, "Crowding"?

CD

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 cc

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/5

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 CD'
z:
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 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 Crowding (IC): Persons/Built-up area

Street Crowding (SC): Persons/Street Area
Plot Factor: Buildable Plot Area/Street Area

Praja: What is the mathematical relationship between FSI and various

forms of 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 Plot Area

= x x-
Street A r e a Built-up A r e a Plot 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 factors and home crowding.
I
z

cn
= 100 Persons ^ =100 Persons o o o o
I
zo H o m e Plot Street A AAA
H o m e Plot Street
cn
ZI
o
a
z: FSI=1 1ha. 1ha. FSI = 1 1ha. 1ha.
I
I H C = 2 0 0 p/ha. 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.
Z\Z
>
ZI

TO
a
o
Figure 1: Street Crowding with FSI Figure 2: Street Crowding with FSI
of one and Home Crowding 200 one and Home Crowding of 2,000
persons/Ha persons/Ha

33
 Figure 3: Street Crowding with FSI Figure 4: Street Crowding with FSI eight
one and Plot Factor two and Home Crowding 200 persons/Ha.

= 100 Persons
=100 Persons
Street
H o m e Plot 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 Crowding with FSI eight; =100 Persons

Plot Factor 2 and Home Crowding 200
persons/Ha. H o m e Plot
Street

j£p Praja: What is the meaning of the

planning term "Net Density"?
1ha. 1ha. 1ha.
Shirish Patel: Net Density is the PF=2, FSI=8
population of a locality d i v i d e d by the H C = 2 0 0 p/ha. S C = 3 , 2 0 0 p/ha.
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 Built-up Area
= x
Plot A r e a 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
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 zz.
<
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
w
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
E/5
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.
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 cc

c/5

Total A r e a Street A r e a Street A r e a CD'

c/;
Notice the division sign on the right hand side. O n c e again, the Street Area terms =j
in
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 .

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 All All Users All Users

Indoor Users Plot Street
Locality Crowding FSI Factor 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
B 692 1.79 0.88 1,086
C 1,018 2.05 2.39 4,992
D-East 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:

J
PF=1 FSL=^6 FSI 4. FSI=3 FSI Z
o ! _
\
- J CO
// 7
PF-2- 3.CM / / / FSI=1
\ i / /
/
rF-3--.
pr=4-

z z :
I

2,030 0 3 OX
1.0DO J.flGO
STREET INDOOR
CROWDING CROWDING
4.000
ZI
o TF=4-- QL lu
a
O Q •1.S00 All A x e s a r e
TF-E
Persons I Hectare
ZL.
>
ZI

TO
a
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
z^ 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: Can we see what different localities in different cities look like on
the 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

cc
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.
u5
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 CD
. '
ZD
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 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 17
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.

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: What is the advantage 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
cz
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
I 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
.-
cn in the w o r l d .
I

^ Praja: When studying a locality, would it make sense to look at not just its
cn resident population, or its job population, or its visitor population, but also
at its vehicular population, both visiting and resident overnight, either on-
a street 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
TO
a
o
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.

37
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 off-
s 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 is going to be a huge influx of population into our towns and
cities. Where is the land to accommodate this influx? Is higher FSI not an
imperative to cope with this 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
A.C. plant room S
duct/shaft/pit room a
a
CO
Stack parking (multiple Mobile transmission Dry balcony a
z:
<
level m e c h a n i z e d tower zc
parking) UJ

E/5
z:
Fire f i g h t i n g d u c t / s h a f t Flower bed/plant bed B a l c o n y up to 1 0 % of f l o o r a

area <
CD
z:
C r e c h e / B a l w a d i in S R A Entrance gateway Built in s t o r a g e b e l o w
scheme window cc

c/5
Car/vehicle parking Stilt Void/space accessed under CD'
z:
spaces plinth 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

Space under elevated

Staircase lobby Electrical t r a n s f o r m e r s p a c e overhead tank

Service floor
P a s s e n g e r e l e v a t o r lift Pump room
duct/shaft/pit
S e r v i c e e l e v a t o r lift
Underground storage Garbage collection room duct/shaft/pit
tanks (domestic/fire)
E l e v a t o r lift l a n d i n g Verandah
Fire e q u i p m e n t r o o m
Refuge area/space Built in c u p b o a r d
Lily p o n d
G y m n a s i u m (if a p p l i e d Covered car vehicle Built in s t o r a g e a b o v e
housing society) driveways window

B a s e m e n t u s e d for Fire e s c a p e s t a i r c a s e Entrance foyer

parking, storage and landings
utilities

Electric m e t e r W e l f a r e c e n t r e in S R A Telephone room

cabin/room scheme

Society office Storage room Postal box r o o m

Further, 3 5 % extra floor area is p e r m i t t e d (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 A r e a of fire e s c a p e 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 -
Fire c h e c k f l o o r / s e r v i c e l a n d i n g l e v e l , stilt
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 level, pparking level
O
CZ m e t e r r o o m , D.G. set
I
z: 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
en
Ornamental projection
I
o
basement telephone concentrators
za
o Letter box r o o m
I Covered s w i m m i n g pool
e Covered areas required
Balconies
ZI o n t o p t e r r a c e f o r utilities Part/pocket/intermediate
o A r e a of o n e p u b l i c
a in e x c e s s of 2 0 s q m covered terraces
z:
I telephone booth and
I
N i c h e s b e l o w w i n d o w sill one telephone
z\z D e c k p a r k i n g e x c l u s i v e of exchangee ( P B X ) r o o m
>
ZI
c a r lifts a n d p a s s a g e s Driver's room/sanitary
TO
a

o
z^
there to on habitable block on podium and P a r k i n g f l o o r in e x c e s s
floors parking floor of r e q u i r e d p a r k i n g

39
FSI of 4: Why it is not workable in Mumbai 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

Buildable 1 ha 14% 1 Ha 38%

• FSI 4 4

• Builtup area 4 ha 4 ha

• Sqm/capita 5 20

• Residents 8,000 2,000

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?

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

Buildable 1 ha 17% 1 ha 45%

• FSI 3 3

• Builtup area 3 ha 3 ha
s
• Sqm/capita 5 20 cn
a
z:
• Residents 6,000 1,500 <
in

LiJ
Institutional area @ 2 sqm/capita 1.2 ha 21% 0.3 ha 14%
EJ5
z:
O p e n area @ 3 sqm/capita 1.8 ha 31% 0.45 ha 20% a

Street area @ 3 sqm/capita 1.8 ha 31% 0.45 ha 20% <

CD
ZI

Total a r e a 5.8 ha 100% 2.2 ha

cc
Gross density 1,034 p/ha 6 8 2 p/ha c/5
CD'
z:
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 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 M M R D A : Mumbai Metropolitan Region

1.1131 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
• 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
Functions:
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 Schemes undertaken

for the persons affected by M M RDA
projects.
• 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
Schemes:
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)

o
cz
I
z

en
• S o c i a l D e v e l o p m e n t Cell
I
o Relevant Divisions • Rental Housing
zo
o • 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

e
Bandra-Kurla C o m p l e x , M.M.R.D.A.
ZI
o
a
Office Building, Bandra-Kurla Complex,
C - 1 4 & 15, E B l o c k B a n d r a ( E a s t ) ,
z

I
I Contact:
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41
 SRA: M H A D A : Maharashtra
Slum Rehabilitation Housing And Area
Authority Development Authority

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Constitution: Constitution:
25th December 1995 1 5th D e c e m b e r 1977

• To s u r v e y and review existing • 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 • Structural repairs and reconstruction
r e h a b i l i t a t i o n of s l u m a r e a s of d i l a p i d a t e d b u i l d i n g s
• To g e t the slum rehabilitation • Provide basic amenities such as
scheme implemented 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 33(10) • D e v e l o p m e n t of s i c k / c l o s e d mill land

a l s o c a l l e d in-situ s c h e m e allocated to MHADA under
• Provisions of s e c t i o n 3.11 also a m e n d e d D C R 5 8 f o r mill w o r k e r s
called PAP s c h e m e h o u s i n g a n d transit.
• U n d e r p r o v i s i o n s of D C R 33(14) • Undertaking composite housing
also called transit s c h e m e 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 on
housing for Economically Weaker
Sections and Low-income groups

• Mumbai Housing and Area

- Development Board S
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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

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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 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
I
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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
cn
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
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I
I 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
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43
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 Wards Population 2001 Population 2011

A 210,847 185,014

B 140,633 127,290

C 202,922 166,161

D 382,841 346,866

Island City E 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

Total 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

Eastern Suburbs 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

Total 5,132,323 5,527,025

L 778,218 902,225 C
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Source: Census 2001-2011

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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

A 63,400 34.27 185,014

B 14,400 11.31 127,290

C - - 166,161

D 33,000 9.51 346,866

E 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

Total 2,359,400 42.69 5,527,025

L 490,400 54.35 902,225

I s
M/E 245,300 30.37 807,720
b
r M/W 217,200 52.73 411,893
u
b
N 385,600 61.91 622,853
D £

I CD S 537,900 72.32 743,783

A, CD
T 111,800 32.74 341,463
o
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Total 1,988,200 51.91 3,829,937

• Mumbai 5,207,700 41.85 12,442,373

ZL.
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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)

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A
Slum Population
B
C
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F/N
F/S
G/N
G/S
H/E
H/W
K/E
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Source: Page 103,MCGM Preparatory Study Report 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 http://mcgm.gov.in/irj/po

Regulations for Greater rtalapps/com.mcgm.aabo
Mumbai utusoverview/docs/DC
%20Regulation%201991.
pdf

Rajiv A w a s Y o j a n a 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

Interest Subsidy S c h e m e M i n i s t r y of H o u s i n g & http://mhupa.gov.in/prog

f o r H o u s i n g thee U r b a n U r b a n PPoverty A l l e v i a t i o n rams/housing/index.htm
Poor ( I S H U P )

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47
Bibliography

All y o u n e e d to k n o w a b o u t affordable h o u s i n g . ( 2 0 1 2 , S e p t e m b e r 1). T h e

Economic Times .
A n n e z , P. C., B e r t a u d , A., Patel, B., & V.k., P. ( 2 0 1 0 ) . W o r k i n g w i t h t h e M a r k e t
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.
D a v i d s o n , A. ( 2 0 1 3 , July 23). T h e Perverse Effects of Rent R e g u l a t i o n . T h e N e w
York T i m e s .
G a t t o n i , G. ( 2 0 0 9 , July 7). A C a s e for t h e I n c r e m e n t a l H o u s i n g Process in Sites-
a n d - S e r v i c e s P r o g r a m s A n d C o m m e n t s o n a N e w Initiative in G u y a n a . Retrieved
March 2014, from web.mit.edu:
http://web.mit.edu/incrementalhousing/articlesPhotographs/guyanaGeorgeGatt
oni.html
G o e t h e r t , R. ( 2 0 1 0 ) . I n c r e m e n t a l H o u s i n g - A proactive urban strategy. MIT.
I D F C . ( 2 0 1 2 ) . A f f o r d a b l e Rental H o u s i n g .
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urban-poor/
C a b i n e t Decisions, G o v e r n m e n t of M a h a r a s h t r a , ( 2 0 1 3 , N o v e m b e r 3 0 ) . Retrieved
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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
2014-34 . M C G M .
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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
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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 .
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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 , ( 2 0 1 3 ) . T h e Real Estate CD
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(Regulation and D e v e l o p m e n t ) Bill, 2 0 1 3 . Retrieved f r o m a

http://mhupa.gov.in/W_new/Real%20Estate%20Bill%20as%20introduced%20in% <

20the%20Rajya%20Sabha%20on%2014.8.2013.pdf w

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 . E/5

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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 CD
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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
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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
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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 . =j
in

48
 End Notes:

1 Jordan Flaherty, Floodlines: Community and Resistance from Katrina to the Jena Six
2 Primary Census Abstract Data for Slums, 2011, Census of India
3 Preparatory Studies, Development Plan for Greater Mumbai 2014-34
4 Strategy for Housing & Slum Improvement, Mumbai City Development Plan 2005-2025
5 Annez, P. C., Bertaud, A., Patel, B., & V.k., P. (2010). Working with the Market, Approach
to Reducin
6: Annez, P. C., Bertaud, A., Patel, B., & V.k., P. (2010). Working with the Market, Approach
to Reducin
7: Report of the High Level Task Force on 'Affordable Housing for All', 2008
http://www.nhb.org.in/R&D/Committee_Report.pdf
8: Incremental Housing: A proactive Urban Strategy
http://web.mit.edu/incrementalhousing/articlesPhotographs/pdfs/PagesMondayMag.pdf
9: UN-HABITAT, 2003, Rental Housing: An essential option for the urban poor in
developing countries,
10: http://mmrda.maharashtra.gov.in/rental-housing
11: 'It's curtains on rental housing' http://archive.indianexpress.com/news/it-s-curtains-on-
rental-housing/1192590/
12: MRTP Act, 1966
13: 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.
14: Mumbai City Development Plan 2005-2025
15: 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.
16: Manhattan is one of the five boroughs (similar to a municipal corporation) of New York
City, USA.
17: 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.
18: 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
19: http://mhupa.gov.in/w_new/RAY%20Guidelines-%20English.pdf
20: Over all Progress (State-wise), Ministry of Housing and Urban Poverty Alleviation
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