Workshop Organized by CUE, CEPT University 30th June 2014

1. Centre for Urban Equity, CEPT University, Ahmedabad &
Shakti Foundation, Delhi
NATIONAL WORKSHOP ON
LOCAL ACCESSIBILITY PLANNING
IN INDIAN CITIES
Regenta Ahmedabad
15, Ashram Road, Ahmedabad-380013
30th June 2014

2.  This project advocates the use of accessibility-measures and a
participatory approach in the preparation of local area plans:
– bridging gaps between city-wide proposals in the development
plan mechanism and their implementation at the local level,
– An area level planning instrument – we need to re-visit the
planning issues time-to-time – beyond land re-adjustments (TPS).
– ensuring equity, rationality and accountability in infrastructure
provision - addressing demand-supply deficits for infrastructure;
especially for those at risk of suffering marginalization.
– helping citizens to play a more pronounced role in local area
planning, in tune with the spirit of the 74th Constitutional
Amendment Act – linking planning with ward-level budgeting.
 The project has three components:
– Developing a methodology,
– Demonstration and piloting a LAP in Rajkot, and
– Advocacy and replication in other cities of the country.
The PROJECT

3. PLANNING IN INDIA
 Planning in India is a highly centralized process .
 Economic planning: prerogative of the Planning
Commission of India chaired by the Prime Minister.
 Physical planning: Urban planning is a state subject in
India.
 Number of agencies that are connected with the
realm of urban planning in the states like:
– Department of Urban Development and Urban Housing,
Department of Roads and Buildings or Public Works
Department and others.
– MCs (esp. after 74th CAA) and UDAs (parastatals).

4. LOPMENT
LAN
PLANNING
HEME
NAL PLAN
APLAN
REGIONALPLAN
FOR GOA 2021
DEVELOPMENTPLAN
FOR AHMEDABAD 2021
TOWN PLANNING
SCHEME
IN AHMEDABAD
Figure 1: Physical planning at different scales in India
(Source: CUE-CEPT, 2013)

5.  Regional Plans deal with settlement growth, land use allocation
and provision of infrastructure for areas including a city and its
hinterland.
 Development Plans/Master Plans are statutory documents that
identify and propose direction of growth, land-use,
transportation network and several other projects for an ambit
area comprised of the core city and its periphery.
– generally do not have a financial plan linked to them
 City Development Plans are prepared in accordance with the
requirements of JnNURM, aim at attracting business
investments to the city,
– have a financial plan linked to them.
 Town Planning Schemes are prepared with a view to provide
serviced land for city's expansion in the periphery, often by
converting irregularly shaped agricultural land into serviced
plots.
PHYSICAL PLANNING IN INDIA

6.  74th Constitutional Amendment Act, 1992.
– Devolved urban planning from state government’s control to
the ULBs.
– Advocated formation of Ward Committees (WCs) with some
local planning functions(along with other functions):
o Maintenance of local infrastructure,
o Review of revenue collections, draft annual budget and approval of
capital expenditure.
 Most states have not implemented the 74th CAA in its
true spirit and continued to maintain a strong-hold on
ULBs.
 The WCs were large and didn’t reflect the aspirations
of the citizens.
DECENTRALIZATION

7.  Jawaharlal Nehru National Urban Mission (JnNURM),
2005-12 stressed upon community participation in
local governance:
– Community Participation Law enactment,
– Formation of ward committees, ward sabhas/area sabhas
made mandatory for identified cities to receive funding.
– Ward sabhas expected to perform these functions:
o Identify deficiencies in delivery of basic services,
o Generate project proposals and prioritize for inclusion in ward
development plan,
o Help in maintenance of public amenities, and
o Raise public awareness on issues of public interest.
DECENTRALIZATION
(along with other functions)

8. Source: http://bangalore.citizenmatters.in/articles/5063-ward-
committee-rules-give-more-power-to-citizens
WARD COMMITTEEs
An example of what powers could be exercised by
a ward committee in the realm of local urban
governance. Karnataka has now prepared the
Municipal Corporations (Ward Committee) Bye-
laws/Rules (draft) 2013.
Karnataka already has the Karnataka Municipal
Corporations (Wards Committee) Rules, 1997 in
effect.

9. PHYSICAL PLANNING IN INDIA
 Landowners are merely informed or consulted once - for their
objections and suggestions, that may ultimately be ignored
even- and not made participants in the process of selection of
sites for social infrastructure.
 The process of planning at the local level, therefore becomes
top-down in nature rather than participatory.
Source: http://indianexpress.com/article/cities/ahmedabad/fate-of-6-lakh-people-hangs-in-balance-as-vmc-announces-tp-scheme-at-manjalpur/

10. http://www.thepolisblog.org/2010/02/participatory-budgeting.html

11. Manipulation
Therapy
Information
Consultation
Placation
Partnership
Delegation
Citizen control
1
2
3
4
5
6
7
8
TOKENISM
TOKENISM
CITIZENNON-PART
NON-PARTICIPATION
CITIZEN CONTROL
We’re here
presently!!!
We aim to
reach here!!!
Figure 2: Sherry Arnstein's famous ladder of participation
Source: adapted from (Arnstein, 1969)

12. LACUNAE
 Planning process is generally not very consultative or
participatory in India.
– Fails in reflecting the aspirations of the community, and
– Elite capture of planning process.
 Regional plans and development plans fail to achieve their
objectives owing to lack of project-linked financial plan to
achieve them.
 The horizon period for RP/DPS is often twenty or more years
– during which period the assumptions, and
– population estimates on which the DP is based may change beyond
what the projects identified as part of the plan are designed to
handle.
 Often the infrastructure provision in one TP is done
independently of the neighbouring TP resulting in costly
repetitions or misses.

13. Funds from the Ward Corporators share
in the ULB budget and MP/MLA Local
Area Development Scheme (LADS) often
end up being used to provide outdoor
seating like the ones in the picture.
Is this local area development?
Credits: CUE-CEPT

14. WHY LOCAL AREA PLANS?
 The current DP-TPS framework plans for
infrastructure provision only at the scale of around
100-200 hectares at the lowest level.
 TP schemes stop at reservation of plots for public
purposes and for SEWS housing.
 What next is not very clear….
 Communities work along neighbourhood
(mohalla/sheri) lines.
– No working mechanism to guide development at the
neighbourhood level.
 Local area plans, of a short term, would help identify
and implement neighbourhood improvement
projects.

15. Communities like to take charge
of themselves
"Woh toh ho jaayega…main khada kar
doonga…aapne mujhe samjhaaya…main dus
logon ko samjhaaoonga…who bees aur logon ko
samjhaayega…aise ho jaayega".
-Rakeshbhai*, 36
On his neighbourhood’s resolve to take care of maintenance
work of their SEWS quarters themselves
Credits: CUE-CEPT

16. International experiences
Indian experiences
Pune Delhi
The Netherlands
United States
of America
United Kingdom
Bangalore

17.  Uses standardized indicators of accessibility.
 Focussed on bringing people from the at-risk category to the
mainstream by addressing social exclusion (SEU, 2008).
 Development of accessibility strategies and plans at the local
level by Local Transport Authorities (LTAs).
 LTAs prepared Local Transport Plans (LTPs) that identified local
priorities and set the transport policy for an area In United
Kingdom,
 Parameters of evaluation:
– Accessibility to schools, colleges, jobs, healthcare, grocer.
– Pedestrian access, mode of travel, affordability and attractiveness
of destination.
The UK EXPERIENCE

18. The UK EXPERIENCE
Figure 3: Key inputs and processes in accessibility planning
Source: (Chapman & Weir, 2008)

19.  Highly variable approach to accessibility planning across larger
metropolitan areas (Chapman & Weir, 2008).
 Transport planning agencies are encouraged to consider
accessibility planning.
 Focus has been on achieving equality of opportunity and access
to services through transportation equity.
 Responsibility of Metropolitan Planning Organizations
– Accessibility assessments and scenario building,
– measure the effects of transport investments on at-risk
communities.
 Accessibility indicators used are:
– percentage of the population able to travel between work and
home within 45 minutes during peak hours, and
– percentage of retail and service jobs accessible in 45 minutes by car
and public transport.
The USA EXPERIENCE

20.  Equal emphasis given to accessibility and mobility with focus on
reducing avoidable car mobility.
 Avoids use of accessibility measures totally.
– relies on a regulatory mechanism of allocating land use and
activities.
 A-B-C location policy- ‘the right business in the right place’
– applies across national, provincial and local levels of government.
– Shops are located ideally in areas grade ‘A’,
– offices in ‘A’ and ‘B’ areas, and
– ‘C’ areas are allocated to businesses that are extensively dependent
on transport (Table 1).
– Parking places in locations ‘A’ and ‘B’ are limited in order to enforce
the policy (Chapman & Weir, 2008)
The DUTCH EXPERIENCE

21.  Equal emphasis given to accessibility and mobility with focus on
reducing avoidable car mobility.
 Avoids use of accessibility measures totally.
– relies on a regulatory mechanism of allocating land use and
activities.
 A-B-C location policy- ‘the right business in the right place’
– applies across national, provincial and local levels of government.
– Shops are located ideally in areas grade ‘A’,
– offices in ‘A’ and ‘B’ areas, and
– ‘C’ areas are allocated to businesses that are extensively dependent
on transport (Table 1).
– Parking places in locations ‘A’ and ‘B’ are limited in order to enforce
the policy (Chapman & Weir, 2008)
Mobility characteristics A-location B-location C-location
Work intensity Intensive Average Extensive
Car dependency for business trips Low Average High
Visitor’s intensity Intensive Average Incidental
Dependence on freight transport Low Average High
The DUTCH EXPERIENCE
Table 1 : Matching accessibility and mobility profiles
Source: (Chapman & Weir, 2008)

22. Ward Works Campaign (2001)
 City-wide campaign , aimed at giving citizens a voice in deciding
how the municipal budget should be spent.
Public Record of Operation and Finance (PROOF, 2002)
 City-wide campaign, aimed at improving financial transparency
with citizen participation and enhance government
accountability .
Ward Vision Campaign (2003)
 aimed at creating a three-year vision for the ward, identifying
problems and solutions, estimating costs and potential revenues
etc. to be given to the ULB.
Ward Infrastructure Index (2010, 2013)
 City-wide exercise, creation of a citizen centric quality of life
index that measures outcomes of public infrastructure and
services at a household level.
BANGALORE: JANAAGRAHA

23. “Change your ward to change the world”
• Citizens participation enlisted in 10
wards,
• Led by the community themselves,
• Neighbourhood based approach.
• The Porto Allegre inspiration,
• Four months – 100 wards of the BMP,
• Active participation in 32 wards,
• 22 wards saw inclusion of citizen’s
priorities in ward plan,
• Mobilization > Training > Surveying >
Prioritization > Monitoring (ward sabhas)
Ward Vision Campaign
(2003)
Ward Works Campaign
(2001)
Source: Clay (2007), Raman (2006)

24. • Good communication strategies,
• Posters and invites in Urdu, Tamil apart
from Kannada,
• GDs held where well-informed
participants took part,
• Series of five workshops to identify,
prioritize and budget for projects.
Ward Vision Campaign
(2003) (contd)
• 198 wards of BBMP covered,
• Evaluation on basis of parameters
concerning water supply, environment,
sanitation, mobility, etc. (see table)
• Indicators weighted on basis of their
importance to Quality of Life (QOL).
Ward Infrastructure
Index
(2010,2013)
Source: Clay (2007), Raman (2006)

25. Table 2 : Categories and indicators for the Ward Infrastructure Index
Source: Clay (2007)

26. Figure 4: A snapshot of maps generated as output from Ward Infrastructure Index
Source: Janaagraha website

27.  Participatory budgeting
– Initiated in 2006-07 by National
Society of Clean
Cities+CEE+Janwani.
 CEE prepared toolkit and helped
build capacity,
 Janwani helped in management
and organization of meetings,
 In meetings, people were asked
to choose from a list of projects
supplied in a booklet with costing,
 Separate preference forms for
slum and non-slum areas,
 Volunteers as facilitators of
meetings.
PUNE: PARTICIPATORY BUDGETING
Picture 1: A Janwani invite for people to
partake in the PB process – 2013
Source: http://janwani.org/site/projects/participatory-
budgeting-2014-2015/
Source: (Janwani, 2011)

28.  Participatory budgeting (contd):
– Initially INR 20 lakhs with INR 5
lakhs for slum areas was fixed as
outlay.
– No single project could exceed
INR 5 lakhs.
– Projects included streetlights,
pavements, bus stops, parks etc.
– Subsequent years have seen an
increase in the outlay.
– Open discussion on budgets
made public aware.
– The number of participants
declined to 600 in 2013.
o Mistrust and fatigue major
reasons.
PUNE: PARTICIPATORY BUDGETING
18 Cr.
39.6 Cr.
2007-08 2013-14
Figure 5: PMC budgetary allocation
through PB Source: (Janwani, 2011)

29.  Initiated in 2012 by Janwani + Parisar + College of Engineering,
Pune.
 Project planned for three months - quality of life determined
through surveys in neighbourhoods.
 The team consisted of volunteers and researchers who wnet
about mapping the available facilities.
 Discussions were organized with participants to gauge their
perception of QoL in their neighbourhood.
 In these discussions, SWOT analysis were performed.
 Each issue that came up was converted into micro-projects.
 At the end of each stage, documentation of issues, processes,
outcomes and proposals was carried out.
 PMC refused to take ownership of the process.
PUNE: LOCAL AREA PLANNING
Source: (Janwani, 2011)

30. Source: http://janwani.org/site/projects/lapp-project/
JANGLI MAHARAJ ROADSHANIWAR-NARAYAN PETH

31. SHANIWAR-NARAYAN PETH JANGLI MAHARAJ ROAD
Source: http://janwani.org/site/projects/lapp-project/

32. ALONG METRO CORRIDOR AT
KARVE ROAD
Source: http://janwani.org/site/projects/lapp-project/

33. Figure 6: Methodology followed as part of the Delhi
LAP effort
(Source: (EPC and SVC, 2008), (EPC and TRF, 2007),
 Delhi Local Area Plan an interface
between macro-level plans (master
plan, zonal plan) and micro-level
plans.
 Agenda:
– Preparation and implementation of
area specific building bye-laws,
– Allotment of plots for public
purposes,
– Reservation of land for sale by ULB,
– Laying and relaying of roads, and
– Extension, alteration and proposing
new roads.
THE DELHI EXPERIENCE
Delineation
Declaration of intent
Preparation of base map
Study and analysis
Identification of problems
Urban design proposals
Formulating DCRs
Implementation

34. The Delhi LAP initiative suffered
from:
1. Mistrust of MCD among
citizens,
2. Lack of institutional capacity
in MCD,
3. Delineation issues,
4. Data gaps during cadastral
map preparation, and
5. Consensus building among
stakeholders difficult.
THE DELHI EXPERIENCE
Map 1: Location of local area plans attempted in Delhi
Source: (EPC and SVC, 2008), (EPC and TRF, 2007),
Ballimaran LAP
(Heritage)
Sangam Vihar LAP
(Old dilapidated)
Vasant Vihar LAP
(Already developed)
Yusuf Sarai
(City periphery)
Not to scale
http://goo.gl/vwUfZQ

35. LOCAL AREA PLANNING ALONG TOZ CORRIDOR
( S U B J E C T O F A S E PA R AT E S E S S I O N L AT E R I N T H E DAY )
AHMEDABAD

36. A COMPARISON
Indicators UK USA
The
Netherlands
Pune Bangalore Delhi
Spatial focus
Urban &
Rural
Urban &
Rural
Urban Urban Urban Urban
Used for development
planning
   X X Partially
Accessibility focus    X X 
Land use-transport
integration
   X X X
Type of modes
Walk,
Bicycle, PT
Car, PT Car, PT X X X
Used for transport
planning
  
X
X X
Clarity of stakeholders
Local
implementa
tion,
national
monitoring
Local
implementa
tion,
national
monitoring
Local
implementa
tion,
national
monitoring
Local
Implementa
tion,
No
monitoring
No
ownership,
No
Implementa
tion
Confusion
in roles
Capacity Building     X X
Participatory budgeting     Attempted X
Project identification  X X   
Social impacts assessed   X X X X
Evaluation & monitoring     X X
Source: (CUE-CEPT, 2013)

37. LEARNING
 The UK and USA (along with New Zealand) have used
accessibility parameters to prepare local area plans.
 This approach is data-intensive and is based on
annual updating of travel-behaviour data collected as
part of surveys.
 The Bangalore and Pune examples of local area
planning and participatory budgeting depended
largely on people's participation.
 Delhi made use of Resident Welfare Associations
(RWAs) to help identify and implement urban design
programs.
 The Indian experiences suffered from the lack of up-
to-date information in the form of maps and revenue
records.

38. International experiences
BUZZWORDS
Indian experiences
Bengaluru
Pune
DelhiParticipation
USA
UnitedKingdom
Accessibility
TheNetherlands

39. Accessibility
may be defined as
“the extent to which the land use transport system
enables groups of individuals or goods to reach
activities or destinations by means of a
combination of transport modes.”
Geurs and van Eck, (2001, p.35)

40. WHY ACCESSIBILITY?
 Accessibility helps focus the planning process on the
requirement and context of travel by considering the
location, design and delivery of services,
 It provides a method for assessing access equity as it
considers the needs of all groups, including those
considered vulnerable to exclusion,
 It encourages coordination between transport and
other public policy objectives like health & education,
 It helps in evaluating the impacts of land-use projects
or transport service changes, enabling the social
implications of these to be fully assessed, and
 It has the ability to deliver positive economic and
social (and environmental) community outcomes.

41. Participation
may be defined as
“the process through which people with an
interest (stakeholders) influence, share or control
over development initiatives and the decisions and
resources that affect them.”
AfDB, (2001, p.2)

42.  Use of participatory techniques of planning can have cross-
cutting benefits through the addressing of issues such as
– sustainable poverty reduction,
– gender equity,
– capacity building of community based organizations (CBOs) and
– better governance.
 Improvements in project design as a result of participation:
– stakeholder priorities, and
– ground realities by drawing on local knowledge. AfDB (2001)
 Additionally, participatory planning helps verify the
appropriateness of the proposed interventions besides
strengthening stakeholder commitment and ownership.
 Greater interface between the government and the governed.
WHY PARTICIPATION?

43. * Not used in Rajkot LAP
Tools for
ParticipatoryLAP
Participatory
Research
Transectwalk
Participatory
interviews
Mapping
Ranking
Time and trend
analysis
Participatory
Meetings
Focus group
discussions
Brainstorming/
workshop
Participatory
Planning
SWOT
Objective Oriented
Project Planning*
Participatoryactivity
planning
Targetgroup
exchangevisits*
Figure 10: Overview of participatory tools used in proposed LAP methodology
Source: adapted from (AfDB, 2001)

44. LOCAL ACCESSIBILITY PLANS
are
LOCAL AREA PLANS
prepared with emphasis on
people's accessibility to activities
they would like to partake in, transcending barriers
that may be physical, temporal, social or economic in
nature.

45. Land use
(Compatibility etc)
• Clinics
• Intermediate hospitals
• General (civil) hospitals
3rd Quartile
Walk trips
Mean
Walk trips
1st Quartile
Walk trips
3rd Quartile
Cycling trips
Mean
Cycling trips
1st Quartile
Cycling trips
• Pre-primary schools
• Primary schools
• Secondary schools
• Degree colleges
• Engineering/Medical
colleges
• Community centres
(halls)
• Libraries and reading
rooms
• Parks, maidans and
playgrounds
Healthcare
facilities
Educational
facilities
Socio-cultural
facilities
500 metres 1300 metres 2000 metres 1000 metres 2700 metres 3700 metres
Transport
(PT, IPT, NMT)
Basic services
Source: (CUE-CEPT, 2014)

46. PROPOSED APPROACH
 The proposed approach combines accessibility analysis
(technical) with participatory analysis (primary interface).
 Accessibility analysis:
– Helps identify supply-side deficits in availability of services on basis
of travel behaviour and standards (UDPFI, etc).
– Landuse, transport, social amenities such as schools, hospitals,
parks are evaluated on basis of accessibility,
– Spatial analysis components of ArcGIS and FlowMAP software used.
 Participatory planning:
– Helps identify demand-side deficits from the users' perspective.
– Participatory techniques such as transect walks, participatory
mapping and Focus Group Discussions (FGDs) used.

47. 1 F I E L D W O R K 2
PROPOSED METHODOLOGY
Source: (CUE-CEPT, 2014)
Using technical and
participatory methods, identify
ISSUES AND POTENTIALS.
Break down OBJECTIVES
into sub objectives.
Device strategies to achieve
SUB-OBJECTIVES.
Using participatory techniques, help
the community evolve a VISION.
Also set OBJECTIVES to help
evaluate the progress of the plan.
Engage
consultants/contractors to
IMPLEMENT projects
monitored by ward sabha.
Use planning consultants to devise
PROJECTS in order to achieve sub-
objectives.
Allow community to PRIORITIZE.
Understand Envision Strategize Plan Deliver

48. The proposed LAP would be in the following stages:
 STAGE 1: Understanding the context
– Data collected on:
o Landuse: Compatibility of neighbouring landuse,
o Transport: Roads, footpaths, street lighting and other enabling means.
o Basic services: Water supply, sewerage, solid waste management, and
storm water drainage.
o Social infrastructure:
˃ Education- Pre-primary, primary, secondary, degree colleges,
˃ Healthcare-Clinics, Intermediate and General hospitals,
˃ Community facilities like halls, parks and library/reading rooms,
˃ Other amenities like Police chowky, police stations and fire stations.
– Sources of data include the local government, residents of the ward
etc.
PROPOSED METHODOLOGY

49.  STAGE 2: Visioning Process in consultation with stakeholders:
– must engage with representatives from government and
community side to encourage ownership, and
– vision must be shared and agreed upon by all the stakeholders in
the consultation.
 STAGE 3: Strategizing in consultation with stakeholders:
– Strategies must:
o stay true to the underlying philosophy of LAP,
o are clear, precise and easily understandable, and
o Be effectively implementable.
– Participatory approach would breed ownership which would help
in the long-term success and continuity of LAP.
 STAGE 4 & 5: These need to be followed up with preparation of
plans and delivery (consultants can be engaged).
PROPOSED METHODOLOGY

50.  It is proposed to bring LAPs at the level of the ward, taking off
from where the TPS ends.
 DP would produce the macro-level skeletal structure for the
city, identifying the direction for future growth and tackling the
land-use-transportation issues.
 TPS could continue to help integrate new areas into the
developing city.
 The LAP would, in TPS areas, help in rational and scientific
identification of plots for social infrastructure and
– integrate them in the new urban fabric during the preparation of
TPS itself.
 It is proposed to make the DP-TPS/LAP framework a cyclic,
mutually responsive and well-linked mechanism that would
feed off each other for critical inputs during the preparation of
the city’s DP.
LAP IN RELATION TO DP

51. THANKS