International Journal of Architecture, Engineering and ConstructionVol 7, No 4, December 2018, 46-53

Challenges of Urban Slum: A Case of Faridabad City

Satpal Singh∗

Department of Architecture, Deenbandhu Chhotu Ram University of Science & Technology, Murthal, Haryana, India

Abstract: This article analyses the efforts of state agencies in improving the conditions of slum areas of Faridabad, Haryanawith focus on schemes and policy of state and central government of India. Slum population in Faridabad has the highestdensity. The physical conditions and environment of these shelters are not healthy. Despite all efforts of the state government,why this industrial town is not able to tackle the menace of slum? The city faces many challenges from relocation of refugeeduring partition in 1947 to industrialisation in 1970 to 1980. In year 2001, the city crosses the benchmark of 1-Millionpopulation. The phenomenon of the informal sector has generally confined to the poor working people involved in productionof goods and services. The city is planning for Transit-oriented development along the mass rapid transit to promote affordablehousing and other facilities around transit stations areas. To understand the vision of “slum free city” we first need to addressthe reality ground of slum. This paper would discuss different urban development schemes and initiatives by the central andstate government to make Faridabad as slum free city. The study is an assessment of the past urban planning policies &programmes which has led to slum growth in Faridabad city.

Keywords: Resettlement, displaced, slum area, housing, rehabilitation, urban poor

DOI: http://dx.doi.org/10.7492/IJAEC.2018.023

1 INTRODUCTION

The urban population in India is increasing over the pastdecade and this phenomenal growth trend will continue in theyear to come. The urban population of the city increased todouble from year 1901 to 1947 and it increased again six timesfrom 1947 to 2001 (Venkatachalam 2015). The Census of In-dia 2001 indicates that slum populations are about 22.58% ofthe total urban populations. The population of urban poor in2001 has been estimated as 82 million (MoUDPA 2001). Thisslum population increased to 31% as per census 2011. It isnoticed in many cities that urban sprawl expand on their pe-riphery. Slums are not always located on the periphery areabut the core area of the city (Moriconi-Ebrard and Marius-Gnanou 2007). According to UN report title “The Challengeof Slums” defines a slum as a condition of household thatlacks durable housing, access to safe water, sanitation ser-vices, secured tenure and proper living space. However, slumsdo not provide accommodations to urban poor, nor are allslum dwellers always poor (Joshua and Glanda 2016).

As per report on Slums in India -A Statistical Compendium2015, about 380 million slum populations live in urban areasand it is estimated that by the year 2030 this population willincrease to about 600 million. One of the major challengesof the slum population is affordable housing, sanitation andpollution free environment. According to the Slum Census2011, 66% of statutory towns in India have “slums”. The mainproblems of the city are the shortage of housing. In most cas-

es the slums are developed near the work place. Faridabadcity development plan prepared by CRISIL argues that “theproliferation of slums is due to the high cost of housing asalso proximity to the place of work. The number of slums hasbeen continuously increasing; the slum dwellers do not haveaccess to basic services” (CRISIL 2006). UN-Habitat reportmentioned that “These slums population do not have accessto adequate housing, and lack access to safe water and sanita-tion. These people live in overcrowded and un-serviced slums,often situated on marginal and dangerous land” (UN-Habitat2003). There is a positive side of the slums that they provideaccommodation at low cost and affordable housing to poorpeople who come to city first time. Slum people earn theirliving from the activity in the informal sector. The inade-quate affordable housing supply forced poor people to live inslums, Jhuggis or “illegal” squatter settlements (HSMI 2016).

2 DEVELOPMENT SCENARIO OFFARIDABAD CITY

Faridabad city is known as the industrial town of Haryanaand part of National Capital Region (NCR) of Delhi. Thecity was created in 1707 AD by the Shaikh Farid, treasurer ofJahangir (Directorate of Census Operations Haryana 2011). Itis the major city in Haryana state and its economy is mainlybased on industrial activities. The city was selected by Gov-ernment of India for rehabilitating the displaced populationswho migrated during the partition of India in 1947. Farid-

*Email: Satpal2025@gmail.com

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abad New Industrial Town was established covering an areaof about 18.1 square kilometers on the western side of theNational Highway along Indian railway line.During the 1970s and the 1980s the development of indus-

tries were booming in Faridabad city and this has led growthin economy and subsequent growth of slums. Labour fromnearby states migrated in this city in search of employmentand settled on vacant lands. This land belongs to the Cen-tral Government, Haryana Government Rehabilitation De-partment, Haryana Urban Development Authority, MunicipalCorporation Faridabad, Wakf Board, and even private landsat the peripheral areas of the city. According to MCF, thereare 67 identified slums in the city. Industrial development isthe main factor for growth of slums in Faridabad.The Report of the Committee on Slum Statistics & Pro-

gramme Implementation, 2010, conducted by the RegistrarGeneral of India in 2001 publicized that the slum populationin the Faridabad city was growing very fast (Table 1). Thisreport stated that the 46.5% of its population, i.e. 4,90,981persons were living in slums or unauthorised areas as per cen-sus 2001 (MoHUPA 2011). Mumbai is the first city, which has54% people residing in slums. Faridabad city covered an areaof 204 square kilometers with household of 290,675 and popu-lation of 1,414,050. The industrial worker population of Farid-abad urban area is 465,259 and 23,736 as household industryworkers (Directorate of Census Operations Haryana 2011) anda sizeable amount of people are residing in slums and unau-thorised colonies. A large chunk of slum inhabitants are alsoidentified in the city. Encroachments and informal settlementsalong the railway line and vacant areas near industrial areaswere also growing menaces. The analysis of the slum areaas indicated in the map of Faridabad indicates that the slumpopulation along the Mass Rapid Transit area is about 63,270(Figure 1 and Table 2). Incidences of forced eviction was no-ticed in June 2013 in Gayakwad Nagar near Bata Chowk areafor reclaiming of land by the Indian railways, about 1,000 fam-ilies were forced to vacate their shelters (Housing and LandRights Network 2014).In Faridabad over 500 acres of land has been encroached

upon by slum-dwellers (Figure 2). In that over 200 acres ofHUDA’s land and around 300 acres of MCF land have been en-croached upon over the last several years (The Tribune 2014).As per the survey 2001, the slum families of about 27,021 num-bers have been identified located on the land of Municipal Cor-poration, Faridabad (MCF) and about 21,868 numbers slumfamilies located on the land belongs to central/state govern-ment, and other departments of state government MCF haveplanned to rehabilitate about 21,868 families in Faridabad, ifthe concerned departments on which these slums are located,will provide the suitable land for rehabilitation. The cost ofRs. 2,477.58 crore is estimated in the action plan of the cityfor making Slum Free City (NCRPB 2005).

3 POLICIES AND PROGRAMMES OFURBAN DEVELOPMENT

3.1 Resettlement of the Displaced Persons(Land Acquisition) Ordinance, 1948

Following the Partition of India in 1947, the first housing ini-tiative was proposed for the resettlement of millions of home-less refugees (CPPR 2016). The “Resettlement of the Dis-placed Persons (Land Acquisition) Ordinance, 1948” empow-ered the government to acquire any land for the purpose ofhousing the displaced persons (Chakravarty 2014). It was adifficult task to implement the rehabilitation programmes inurban areas. Central government issued certain directives toall state governments regarding housing. It helps in identi-fying suitable sites and construction of houses therein. Theabandoned homes left by the Muslims migrated to Pakistanwere the first option to allocate the incoming migrants (Plan-ning Commission 1951).It was decided by the Indian Government that the initial-

ly property of the evacuees has to be kept in the trust of thegovernment which would act as custodians of all such “evacueeproperty”; and the full ownership of their properties would begiven to them when the migrants would return. The very tar-get of the state in establishing property as “evacuee property”,of letting the migrants to actively contribute in the process ofcategorizing such property, and finally, of transfer the posses-sion of such property to incoming refugees fromWest Pakistan,are all important markers of how rehabilitation in the Westfrom the very beginning was visualised as dependent upon thedisplacement of the Muslims.As far as rehabilitation of refugee from West Pakistan are

concerns, the two main groups have been left out in the reha-bilitation process i.e. Schedule Caste and women. To accom-modate the Schedule Caste populations in urban areas was abigger task as they were not allotted to any evacuee propertyor home. They were forced to live in the slums. The age-olddiscrimination of caste and class have not spared these peopleeven in abnormal times. Therefore single-roomed tenementsor mud houses were constructed to homeless Schedule Castein Delhi (Chapter II 2006).

3.2 Planning Commission-Five Year Plan

The First Five Year Plan focuses on housing programmes af-ter partition of India for rehabilitation of refugees. Duringthe first plan about 742,000 houses or tenements were con-structed by state governments, central ministries and publicauthorities. The Ministry of Rehabilitation made provision of322,000 houses or tenements in urban areas in Second FiveYear Plan (Commission 1957). The Second Five Year Planfocuses on “Slum Clearance and Sweepers’ Housing and other

Table 1. Faridabad city population and slum population percentage

No. Year City population Slum population Slum population %1 1981 330,864 92,641 28.02 1991 617,717 148,252 24.03 2001 1,055,938 490,981 46.5 (as per MoHUPA)4 2011 1,438,855 215,053 14.94 (as per Census 2011)

Source: Narayan (2013), Ministry of Housing and Urban Poverty Alleviation (2015)

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Figure 1. Slum locations in Faridabad (Narayan 2013)

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Table 2. Haryana state projected slum population from 2011 to 2017

Year 2011 2012 2013 2014 2015 2016 2017Population (in Millions) 3.288 3.391 3.495 3.600 3.707 3.815 3.924Source: Steering Committee on Urbanization Planning Commission (2011)

housing”. The Second Five Year Plan (1955–1956 to 1960–1961) initiated the housing programmes under Subsidized In-dustrial Housing Scheme (SIHS) for 128,000 tenements, and110,000 tenements for re-housing.The Third Five Year Plan targets to provide 100,000 hous-

es/tenements under slum clearance, 73,000 for SIHS and75,000 for Low Income Group (LIG) and workers of coal andmica industries. It provides for a programme of about Rs.29 crore for slum clearance and improvement (Planning Com-mission 1961). The Fourth five Year Plan period 1963–1969,estimated 69,556 numbers of tenements under slum clearance& improvement and 165,623 numbers of tenements for subsi-dized housing schemes for industrial workers and economicallyweaker sections to be built by 1968–1969.The Sixth Five Year Plan (1980–1985) proposed a strate-

gy for relocating the slum populations of urban areas in thefuture. The total outlay for the Environmental Improvementof Slums (EIS) programme was Rs. 151.45 crores. HUDCOincreased their equity to Rs. 75 crores from Rs. 25 crores.In the Seventh Plan 1985–1990 emphasis total outlay in StatePlans for the Environmental Improvement of Slums (EIS) pro-gramme of Rs. 269.55 crores (Planning Commission 1980).In the Eighth Five Year Plan, a pilot project was initi-

ated in 1986 in the name of Urban Basic Services Scheme(UBSS), with the involvement of state governments andUNICEF (Planning Commission 1992). In the Ninth FiveYear Plan was given to in situ slum up-gradation and renewalof old & dilapidated housing stock. In the Tenth Five YearPlan (2002–2007) under Valmiki Ambedkar Awas Yojana, thefinance of community toilet complex were undertaken, accessto potable drinking water improvement, particularly in urbanslums and remote areas (Planning Commission 2002). In the11th Five Year Plan 2007–2012, for the first time in India, 2001

Census slum data were collected by the Registrar General ofIndia for cities having urban population of 50,000 and more.Slums and slum rehabilitation and housing for slum dwellerswere initiated as per the 2001 Census and the availability ofhousing and other basic amenities to them (Planning Com-mission 2007). In the 12th Five Year Plan Rajiv Awas Yojanawas initiated in 2011 for urban poor. It also focuses on pro-moting economic opportunities for women in urban slum areasand creation of work sheds for women (Planning Commission2012).

3.3 Punjab Slum Area Act-1961

The combined Punjab State in 1961 formulated “The Pun-jab Slum Areas (Improvement Clearance) Act-1961”. Themain objective of this act was “to provide for the improve-ment and clearance of slum areas, for the establishment of theSlum Clearance Board-for undertaking the development or re-development of slum areas, rehabilitation of slum dwellers inthe State of Haryana and for the protection of tenants in sucharm, from eviction” (Punjab 1961). Through this act the stategovernment establishes Slum Improvement Board.

3.4 National Slum Development Program-1966

“The National Slum Development Program (NSDP) waslaunched in 1996” with objective of the scheme up-gradationand improvement of urban slum through development of in-frastructure and housing activities like development or roads,drains, street light, drinking water community latrine andbath etc. (Buckley et al. 2005).

Figure 2. Slum clusters located in Sector 20 of Faridabad (The Tribune 2014)

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3.5 The Constitution 74th Amendment Act1992

“The Constitution Seventy Fourth Amendment Act 1992” aimsat revitalizing and strengthening the urban governments sothat they function effectively as units of local government.The Twelfth Schedule (Article 243-W) focuses on urban areaand includes slum improvement and up gradation. This actprovides greater constitutional status to the local bodies inurban areas.

3.6 Valmiki Ambedkar Awas Yojana-2001

Government of India in December 2001 launched the ValmikiAmbedkar Awas Yojana (VAMBAY). The main objective ofthis scheme was to provide shelter or upgrade the existing shel-ter in Urban Slums for people living Below Poverty Line, witha view to achieve the goal of “Shelter for All” under BharatNirman Scheme.

3.7 Jawaharlal Nehru National Urban Re-newal Mission-2005

Another Government of India scheme was initiated in thename of Jawaharlal Nehru National Urban Renewal Mission(JNNURM) in 2005. The main aim of this scheme was toencourage reforms and fast track planned development ofidentified cities. The mission objective is to make provision ofbasic services to the urban poor including security of tenureat affordable prices, improved housing, and water supply andsanitation. Faridabad City Development Plan (CDP) 2006–2010, was prepared for the municipal corporation’s corporatestrategy that presents both a vision of a desired future forthe city and the corporation’s organization, as well as mis-sion statements on how the corporation, together with otherstakeholders, intends to work towards achieving this long-termvision in the next five years (CRISIL 2006).State of slums in India – a statistical compendium 2011 by

Ministry of Urban Development and Poverty Alleviation stat-ed that “the major programmes started by the Government ofIndia towards inclusive city development with focus on slums,including the provision of basic services and affordable hous-ing to the urban poor, are the Jawaharlal Nehru National Ur-ban Renewal Mission (JNNURM)-Basic Services to the UrbanPoor (BSUP) and Integrated Housing & Slum DevelopmentProgramme (IHSDP) components – launched in 2005, and thetwo schemes entitled Interest Subsidy Scheme for Housing theUrban Poor (ISHUP) and Affordable Housing in Partnership,launched in 2009” (MoHUPA 2011).

3.8 Integrated Housing & Slum DevelopmentProgramme-2005

Another scheme, “the Integrated Housing & Slum Develop-ment Programme (IHSDP) was launched by Government ofIndia (GOI) in December, 2005 by replacing the schemesnamely, National Slum Development Programme (NSDP) andValmiki Ambedkar Awas Yojana (VAMBAY). In Haryana un-der IHSDP, 18 projects for 15 towns estimate Rs. 262.13 crorewere approved by GOI, out of which GOI share is Rs. 209.71

crore. An amount of Rs.104.85 crore was released by GOI ascentral share and Rs. 26.22 crore was released by state gov-ernment of state share. The GOI had earmarked an amountof Rs. 133.05 crore for IHSDP for Mission period 2005–2012against which DPRs (Detail Project Report) having CentralShare of Rs. 209.71 crore has already been approved. Un-der this program 7,537 housing units has been constructedand work of 2,165 units is in progress”. For this program Rs.179.76 crore has been distributed to council in budget year2012–2013 (Singh 2012).

3.9 Rajiv Awas Yojana-2011

Rajiv Awas Yojana (RAY) was initiated in 2011 with imple-mentation phase from 2013–2022. “The vision of RAY is tomake “Slum Free India” with inclusive and equitable city (Min-istry of Housing & Urban Alleviation 2013). The objectiveof the RAY is improving and provisioning of housing, basiccivic infrastructure and social amenities in intervened slums,enabling reforms to address some of the causes leading to cre-ation of slums. The Government of India has sanctioned Rs.168.636 crore for the state for Slum Free City Planning un-der RAY. During fiscal year 2011–2012 Rs. 65.35 crore wereprovided which also included Rs 10 crore by state governmentand for the current fiscal year 2012-2013 there is a proposal forRs. 19.00 crore” (Singh 2012). The GOI has released Rs. 109crore to the state. Accordingly, the state government has alsosanctioned/released Rs. 127 crore after adding its proportion-ate state share to the concerned implementing agencies.

3.10 “Housing for All by 2022”

Prime Minister Awas Yojana (PMAY) is a social welfarescheme. Housing for All by 2022 scheme was initiated in 2015for making housing affordable for people from every section ofsociety. This scheme focuses on providing affordable housingto economically weaker sections (EWS) and low-income group(LIG) to help in slums eradication. Under this scheme, hous-ing loan of up to Rs 6 lakh will be available at a rate of 6.5%under “credit linked subsidy” for 15 years for addressing thehousing needs of the EWS/LIG segments in urban areas.Government of Haryana has different department dealing

with the urban development, i.e. Department of Town andCountry Planning and Urban Estates, Department of UrbanLocal Bodies and Department of Housing. Government ofHaryana target-2019 aim to construct 40,000 BPL houses pro-vided with modern facilities under affordable housing schemeswith focus on tomorrow to modernization for housing facilitiesto urban-poor families (Analysis 2018).

3.11 Slum-in-Situ Rehabilitation Policy un-der Housing for All-2018

The Government of Haryana, Urban Local Bodies Departmentnotifies a comprehensive “Slum–in-Situ Rehabilitation Policyunder Housing for All-2018” under the Section 345 & 398 (2)(a) of the Haryana Municipal Corporation Act 1994 and Sec-tion 250 (a) of the Haryana Municipal Act 1973 on 17 May,2018. This act states that central government land/state gov-ernment land/ULB land, private land should be taken for in

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Figure 3. Methodology for preparation of slum free city plan

situ redevelopment for providing housing for slum. The landunder slum areas will be a resource for slum improvementprojects. The decision of ownership rights, renewable, mort-gage and inheritable leasehold rights shall be decided by thestate government.Affordability of house in the core urban area and transporta-

tion cost to the periphery areas are the main issues faced bythe poor people. If the cost of transportation is high, thereare chances of more slums in the core city areas. If redevelop-ment of existing slums is part of urban development project,the resettlement should account for both the cost of housingand transportation from the new housing to the existing jobcenters of the displaced residents. If the cost rises beyond anestablished benchmark, alternatives should be considered (Si-ngh 2013).

3.12 Scheme for Development of SC Basties

“The objective of this scheme is to provide benefits to SCbasties other than those covered under the scheme of Devel-opment of Municipal Wards with more than 50% SC popu-lation. During the financial year 2013–2014, Rs. 38.50 crorewas released to the municipalities. During the current finan-cial year 2014 – 2015, a budget provision of Rs. 50.00 crorehas been made; the same was released to the municipalitiesup to 23.02.2015”.

3.13 Slum Strategies Adopted in the City

Faridabad undertook variety of slum related programmes andschemes over a period of time. The Slum Clearance and Re-location of 1970’s was adopted in which most of the slum

clusters were relocated on the periphery of the city. Envi-ronmental Improvement (1981–1985) scheme covered 18,849household for making provision of water supply, paved streetsand community latrines baths. In the Slum Upgradation &Resettlement (1986) scheme, the resettlement of 8,455 fam-ilies was done and 11 slums were regularized. Urban BasicServices Programme initiated in 1986 and also in 2005 cov-ered the household of 25,807 for providing basic amenities,upliftment of women and children source: M.C.F. Records andReports (Published & Unpublished). From the IHSDP fund2,072 dwelling units were constructed against DU’s of 7,294 inrelocation of projects and for in situ development projects ofslums 7,639 DU’s were constructed against proposal of 8,381DU’s in Haryana (Narayan 2013).The JNNURM has a sub mission named as Basic Services

to the Urban Poor (BSUP) which focuses on the integrat-ed development of slums. With the fund from JNNURM,1968 dwelling units at Dabua Colony at the cost of Rs. 39.83crore and 1280 dwelling units were constructed at the costof Rs. 19.71 crore in Bapu Nagar, Faridabad (Ministry ofUrban Development 2013). The slum dwellers haven’t takenpossession of these houses as the flats size are small, inade-quate common areas like corridors, absence of interaction s-paces (Nirmala 2017). The MCF plan, to rehabilitate 21,868slum families, as and when suitable land is provided by theconcerned departments. The cost of this Slum Free City Planof Action is estimated to the tune of Rs. 2,477.58 crore. Asper 2001 census survey, about 27,021 slum families have beenidentified squatting on the land of MC, Faridabad. Further,the MCF has also identified 21,868 slum families squatting onland belonging to HUDA or central/state government depart-ment/boards/corporations.

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3.14 Role of Slum Dwellers, Voluntary Orga-nizations and Local Politicians

Many slums dwellers have prepared a semi-structured drainagebut they have not been involved in government sponsoredschemes and programmes. N.G.O.’s role in up-gradation ofslum dwellers is very limited; they help in organising a fewhealth camps, and play a role in providing a few vocationalcentres for females and anganwadi’s for children. The politi-cians in India largely treat slums dwellers as their vote banksand mostly slum’s name are after their name. These slumdwellers vote more often than citizens in affluent areas. Theyare “useful”, often necessary, to the working of the city and thenational economy (Saglio-Yatzimirsky 2013).

3.15 Reasons of Gaps in the Slum Area De-velopment

The main issue of land in relation to rehabilitation of Farid-abad’s slum dwellers remains unaddressed as most of the landunder slum different agencies, i.e. Indian Railway, HUDA,HSIIDC or individual plot owner. Slums are located mainlyalong railway track, mainly, national highway and near indus-trial areas. Faridabad is selected to be a smart city as perthe flagship mission of Ministry of Urban Development, Gov-ernment of India that particularly aims at creating 100 smartcities in their 5 years tenure, Faridabad also becomes one ofthe selected smart cities yet it has to tackle the issue of slums.The policy further specifies that “For ‘Redevelopment’

projects within the Intense or Standard TOD Influence zones,FAR-Density bonuses permitted only if: a. Existing densityis ≤250 du/ha; b. If existing gross density is greater than250 du/ha, FAR-density bonus may be availed only if thearea is notified for redevelopment (e.g. slums, unauthorizedcolonies, special areas, etc.). Retrofitting for better accessand physical infrastructure provision in these areas may alsobe required.”

4 CONCLUSIONS

From the settlement of refugee schemes in 1948 to Slum–in-Situ Rehabilitation Policy under Housing for All- 2018, theGovernment departments fails to minimize the problems ofslums. To solve the problems of urban slums, India adopteddifferent strategies over period of time. Slum clearance was onfocus till the Fourth Five Year Plan. Policies and programmesframed and implemented at the national level were adoptedhere too. It cannot be denied that JNNURM has been instru-mental in slum area development in Faridabad. Interestingly,the BSUP slum housing projects started in Faridabad with thefunding of JNNURM-2005 and the slum population decline af-ter the implementation of these housing projects in Faridabad.The in-situ slum development is more effective than relocationof slum dwellers on outer periphery as slums are located nearthe work place.Despite all efforts by the central and state government, the

slum populations are increasing and although their living con-dition and physical infrastructure are improving. The inten-sion and process of the implementing agencies lack the spiritto eradicate the problems and improve the conditions of ur-

ban slums. Implementation of RAY in India is successful atsome places and at some other places the action plan failedbecause people took the benefits of the scheme but are notready to move and have took the scheme as an opportunityto earn and don’t want to embrace the conclusive approach ofagenda. Housing for all policy could present more advantagein development of in-situ slums.

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