NEW FORMS OF CONTESTATION AND COOPERATION IN INDIAN URBAN
GOVERNANCE
Prof. Dr. N. Sridharan
4/13/2015
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Scheme of Presentation
•
New Forms of Governance – Why & at what level?
•
Types of Contestation
•
Agents in Contestation
•
Forms of Contestations & Urban Governance
•
Case Studies
•
Lessons learnt from Case Studies
•
New Areas for Research
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New Forms of Urban Governance
 Why and Who pushes these forms?
 What are the various forms of Urban Governance that
have emerged?
 Why these forms – Political Economy?
 What level the urban governance system Occur?
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Regulatory & Rent-seeking
Competitive Global forces
Political
&
Bureaucratic
Economic
URBAN SPACE
Society
Equality,QOL
( Poor – Unorganised )
------------------------
Efficiency
(Rights & Civil Society)
Environment
Sri©2009
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How this
Urban Space is
growing in
terms of
population &
Spatial
Spread?
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India : Urbanization and Economic growth
Source:
http://www.indicus.net/Reports/Geography
Sri©200-8
Economy/Geography_Indianeconomy.pdf
Accessed on 02/03/06.
Cities of the west: powering India, but for how long?
A heady combination of location, history, circumstances, and perhaps the
most important—initiative is what makes western India fare better
Suburbs have come to be independent economic entities
These sibling locations
include communities that
may be large such as Navi
Mumbai or small such as Salt
Lake or spontaneously arisen
such as large tracts of
Ghaziabad, with good urban
planning such as Noida or
without quality
infrastructure such as
Gurgaon
Source: Market Skyline of India
Middle class accounts for bulk of urban spending
What we find is that
it is the middle bulge
of expenditure by the
middle class that
accounts for the bulk
of India’s urban
consumer expenditure
Source: Market Skyline of India
What we find is that it is the middle bulge of expenditure by the middle class that accounts for the bulk of India’s
urban consumer expenditure. About 61% of total urban income comes from households
that can be classified as middle class—earning between Rs75,000 and
Rs 500,000 a year.
This segment comprises the lower middle-class earning between Rs75,000 and Rs1.5 lakh a year (10% of total urban
income is from this category), the middle-class earning between Rs1.5 lakh and Rs2 lakh a year (29% of income
share) and the upper middle-class earning between Rs3 lakh and Rs5 lakh a year (22 % of urban income).
By market size, the largest urban middle-class markets are in the main cities, with Delhi in first place,
followed by Mumbai, Ahmedabad, Bangalore, Chennai, Kolkata and Pune.
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This group of urban areas includes those that benefit from proximity to the metros—
Rangareddy to Hyderabad and Tiruvallur to Chennai. West Bengal has three districts in
this list, Burdwan, Howrah and Hoogly, whose large population is a significant factor in
expenditures by the middle class.
There are other cities as well that are more than just suburbs of larger cities. Jaipur is not
only the capital of Rajasthan, it is also the gateway to a large but thinly spread market in
the interiors of the desert state. Nagpur is among India’s most cosmopolitan cities with
people from Gujarat, Andhra Pradesh, Madhya Pradesh and also the east, found in large
numbers. The fact that it is the closest to being at the geographic centre of the country
helps a bit.
Source: Market Skyline of India
The size and expanse of the great Indian middle class does not
follow any standard patterns and theories. It is created via a
combination of agriculture, industry, human capital, good
infrastructure or trade.
The story of every so-called tier-2 town is different, but there is
one thing they have in common with each other—large middleclass expenditure.
Source: Market Skyline of India
Youth Steering
The Governance
Game
How multiple-income family types differ across cities
As India and Indian consumers
change rapidly, there is one churn
that has already played out in
urban India. The joint family is
dead and the extended family is
dying. It is now the era of nuclear
families
Source: Housing Skyline of India
People in large cities earn more but save much less
India’s top 112 cities
are
classified
into
metros, state capitals
and other cities, we see
that metros on an
average have the lowest
savings rate and highest
per capita income
If
Source: City Skyline of India
The Indian rich- who are they and where do they live?
Mumbai and Delhi are
homes to very
affluent
neighbourhoods, in
terms of the number
of affluent
households
Source: City Skyline of India – Neighborhood Series
Mumbai and Delhi are homes to very affluent neighbourhoods, in terms
of the number of affluent households. In fact, of the top 20
neighbourhoods in India, in terms of number of millionaire families, as
many as 18 are in Mumbai.
There are 166 neighbourhoods in the country’s five major cities
that have at least 1,000 households having annual incomes of at
least Rs10 lakh (out of a total of 626 neighbourhoods which
together make up these five cities). Of these, 37 are from
Bangalore, 11 from Chennai, 47 from New Delhi, nine from
Kolkata and 62 from Mumbai.
There are 181 neighbourhoods in the five major cities with aggregate
incomes of Rs600 crore or more. Of these, 21 are from Bangalore, 10
are from Chennai, 79 are from New Delhi, two are from Kolkata and
69 are from Mumbai.
As is evident, the bulk of the
affluent in India reside in
urban areas; it is also likely
that
they
are
most
concentrated in the larger
metros.
Types of Contestations
(Rent-Seeking)
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Six FORMS OF CONTESTATIONS
(Based on Bounded Rationality New Institutional Economics)
 Political
 Spatial
 Administrative/Departmental,PPP-Govt.
 Environmental
 Private Interest Groups (including NGOs/CBOs)
 Individuals & Class/Caste Based Interest Groups
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Agents in Contestations
 Government and its Departments
 Autonomous Boards/Corporations
 Politicians
 Bureaucrats & Technocrats
 Private Corporate – especially TNCs, Donor
Agencies
 Civil Society (including RWAs,NGOs,CBOs, SHGs
& other informal societies)
 Individual & other Self-Interested Groups
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Forms of Contestations - I
 Government Centered: Kolkatta
Kolkatta Metropolitan Committee
133-P
3-MC
38-M
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 All Government programmed
No scope for Civil Society
No scope for Private Groups directly
No effective participation
Spatial Contestations with
strong emphasis on macro
issues and planning
Administrative Contestations
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KOLKATTA METROPOLITAN COMMITTEE
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KOLATA METROPOLITAN PLANNING COMMITTEE
NOMINATED MEMBERS = 20 (BY GOVERNOR)
1.CHIEF MINISTER OF W.B. (CHAIRMAN)
2.MINISTER-IN-CHARGE,MUNICIPAL
AFFAIRS AND URBAN DEV.DEPTTS,
GOWB (VICE-CHAIRMAN)
3.MAYOR, KMC
4.CHAIRMAN , N.24 PARGANAS
5.CHAIRMAN, HOOGHLY
6. M.P.
7. M.P.
8. M.LA.
9. M.L.A
10.CHAIRMAN ,W.B.STATE HERITAGE COMMISSION
11.PRINCIPAL SEC., UR.DEV.DEPTT., GOWB
12.PRINCIPAL SEC.,TRANSPORT DEPTT.,GOWB
13.PRINCIPAL SEC., DEV. & PLG.DEPTT.GOWB
14.SECRETARY, MUNI.AFFAIRS DEPTT., GOWB
15.SECRETARY, FINANCE DEPTT., GOWB
16.CHAIRMAN, KOLKATA PORT TRUST
17. INDEPENDENT MEMBER
18. GENERAL MANAGER, EASTERN RAILWAYS
19. C.E.O., KMDA
20. INDEPENDENT MEMBER
ELECTED MEMBERS = 40
ELECTED BY , AND FROM AMONGST ,THE
ELECTED MEMBERS OF THE MUNICIPALITIES
AND CHAIRPERSONS OF THE PANCHAYATS
IN THE METROPOLITAN AREA IN
PROPORTION TO THE RATIO BETWEEN THE
POPULATION OF THE MUNICIPALITIES AND
PANCHAYATS IN THAT AREA
EXECUTIVE
COMMITTEE
MUNICIPALITIES
SUBCOMMITTEES
WATER SUPPLY
CHIEF ENGINEER,WATER
SUPPLY SECTOR,KMDA
DRAINAGE &
SANITATION
TRAFFIC &
TRANSPORTATION
EDUCATION,HEALTH
& EMPLOYMENT
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MAYOR / CHAIRMAN-IN-COUNCIL
CHIEF ENGINEER, SEWERAGE
& DRAINAGE SECTOR,KMDA
DR. OF PLG., PROJECT
PLG.UNIT, KMDA
DR. SOC-ECO. PLG, KMDA
& RETIRED ECONOMIST
ENVT. ,WETLANDS ,UR. AMENITIES ,HERITAGE
MUNICIPAL PLANNING
SECTION
(TOWN
PLANNERS,OVERSEERS,PLANNINF
ASSISTANTS,DRAUGHTSMEN)
WARD
COMMITTEES
GEOPHYSICIST, KMDA
INCLUDING REP. FROM :
NGO's,CBO's,
CHAIRMAN OF PLG. & DEV. ORG's,
CONCERNED DEPTT's OF
GOVT.=DECIDE URGENCY OF
VARIOUS ISSUES
INVOLVE COMMUNITIES
IN PLG. EXERCISE
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MPC & DPC have overlapping jurisdictions –
area & function wise (Administrative
Contestations)
Absence of a monitoring mechanism in KMPC
(Accountability)
Larger municipalities dominate in KMPC
(Spatial Contestations)
State government still has enormous control
over ULB’s (Bureaucratic & Administrative)
Private sector enterprise still not meaningfully
acknowledged
Ruling party’s priority areas get attention
(Political Contestations)
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Forms of Contestations - II
Government Induced (1): Delhi
Government
RWAs/Traders
Associations
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•Civil Society created by the Government
•All programmes/activities tailored to the Govt.
•No physical planning or land use planning
•More emphasis on micro-issues
•No devolution of funding
•Rent-Seekers dominate the scene
•No representation for the marginalised
(especially the poor living in slums &
unauthorised areas)
• Not all the government departments
represented.
• Shifting the cost burden on civil society
•Limited spatial and population covered
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ACTORS IN GOVERNANCE
PAST – Pre 1996
CENTRAL/DDA
LAND
FINANCES
GENERAL
POPULATION
RWA
ELECTRICITY
MCD
GNCTD
DELHI
JALBOARD
ACTORS IN GOVERNANCE
POST – 1996
GENERAL
POPULATION
CENTRAL/DDA
RWA
THE
COURTS
GNCTD
ELECTRICITY
DELHI
JALBOARD
MCD
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Forms of Contestations
Government Induced (2): KERALA
Government
WARD
COMMITTEES
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Kollam : Peoples’ Campaign Programme – Technocrats Vs. People
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KOLLAM: POLITICAL CONTESTATIONS
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Forms of Contestations - III
 Multi-Stake Agency/Stakeholders : Ahmedabad,Mumbai &
Hyderabad, etc
Beneficiaries (usually slum dwellers)
Government
Private/Civil Society
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 Multi-Stake Agency/Stakeholders : Ahmedabad,Mumbai ,
Hyderabad,etc.
Each Agency/agent feels the other is eroding their
space.
 Especially where NGOs/CBOs are involved, the
government departments either neglect those or pass
on the complete responsibility without funds &
human resources.
 Limited to specific area/funds – spatial contestations
 Accountability not clear
 Transparency in fund devolution & powers not clear
 Rent-Seekers within the group & political rent4/13/2015
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seekers dominate.

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SMALL AND MEDIUM TOWNS:
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NGOs Intervention
SIDHAULI IN U.P.
•POPULATION =19536
HAMIRPUR IN
H.P.
•POPULATION
=17219
•AREA= 12 SQ KM
•OCCUPATIONS LIKE UTILITY SHOP
OWNERS, LABOURERS, SMALL LOCAL
BUSINESS
•HILLY TOWN
•OCCUPATIONS OF
PEOPLE LIKE
FARMERS, UTILITY
SHOP OWNERS
MADHUBANI IN BIHAR
•POPULATION =66,000
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Interventions by NGOs and their
impact: 8 Towns
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 Limited interface between government and NGO sector
in these towns except in MP.
 NGOs are considered as competitor and are avoided by
elected representatives, especially where PEVAC studies
are done by NGOs.
 Exit by NGOs are so sudden that the citizens feel
disillusioned and shocked.
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Forms of Contestations - IV
 Private Forced/Induced: Chennai, Bangalore,etc.
Autonomous
Government
Private/
Autonomous
Govt. organisations
CS
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RWAs
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IV a - PPP –Govt Sector
 PPP models – Private pushed governance
 No retreat of the State even in those areas where PPP
operate –both in terms of expenditure or personnel.
 Increased cost of operation and maintenance
 Poor excluded – market exclusion
 Efficiency in service
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
Private Forced/Induced: Chennai, Hyderabad,
Bangalore,etc.
HYDERABAD
. Private Sector
pushing the City
growth forcing the
public sector to
provide infrastructure
(off site).
. Most of the SEZ in
various cities are
examples for this.
. Specialised cities
and specialised
infrastructure.
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 ENVIRONMENTAL CONTESTATION
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© Sri & Sush 2007
POSSIBLE
OUT COMES
• Prisoner’s
Dilemma
• Economic
Trade off
• Environmental
Trade off
• Institutional
Trade off
(Retreat)
© Sri & Sush 2007
 Private Forced/Induced: Chennai, Hyderabad, Bangalore,etc.
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• Nothing wrong in this model as market forces drives
the governance system, except that government abdicates
its social responsibility, especially in environment sustainability, etc.
•Facilitates/Enables the government to reduce/shift public cost
to Civil Society & individuals.
•No fund shortage as autonomous government agencies
and Corporations takes control as most of the economic activities
outside the city limits.
•Both spatial as well as political contestations occur in these
towns as seen in the examples.
•Variegated Self-Interest Conflicts.
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TECHNICALLY-SOCIALLY
ACCEPTED SPACE OF THE POOR
POLITICALLY/TECHNICALLY
SOCIALLY ACCEPTABLE
SPACE
Poor &
the Interest Groups
Space for all
POLITICAL VOTE BANK
SPACE
POLITICAL SPACE
PLANNING SPACE
CONFLICT AREAS/EVICTION AREAS
GOVERNANCE BY EXCLUSION / INCLUSION
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LESSONS LEARNT FROM ALL THE
MODELS
 Minimizing the contestation among variegated interest important in effective
and efficient urban governance.
 Most of the agents/actors are not recognized by the Government as
stakeholders in the development process.
 Even where government gives away the responsibility to other stakeholders,
it is the duty of the government to ensure sustainability of the
programme/project. This is to ensure government’s social responsibility.
 Accountability and Transparency are very important in ensuring minimization
of contestations. Need to legislate and practice these two issues.
 Lane level and neighbourhood level governance interventions can minimise
the contestations among various stakeholders as it ensures transparency.
 At the same time, it is essential to disseminate the Town Level Goals and
Strategies to individual households so that inclusive development can be
achieved.
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Further areas of Research in Urban
Governance
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 Urban Governance and Citizenship – Issue of Exclusion
and Inclusion
 Size and level of action in urban governance – does size
matter in governance – Over loaded State Vs. Over
loaded and interest seeking groups.
 How to co-ordinate and collaborate with private sector
especially ensuring inclusive development?
 Do we need a regulator as in the case of telecom,
insurance, etc. so as to achieve efficient governance at
various levels? – Is citizen Committee an alternative?
 Social embeddedness and seamless governance.
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ThAnKs
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