STUDY OF BAPUNAGAR SLUM IN

SURAT

Shashikant Kumar and Pinakin Khatri

Green Eminent, Vadodara
Preface
The report is outcome of the request made by representatives of NGOs and
concerned citizens from Bapunagar, Subashnagar, Nehrunagar and
Iqbalnagar. We were invited to undertake the quick assessment of the
situation and suggest suitable measures as solution. After visiting the study
area we came to know the manner in which the SMC has approached in
addressing the housing issue, on pretext disaster mitigation. Community has
hardly consulted through participation and representatives often
misunderstood the situation. Still there is lack of information regarding the
Why embankment was constructed at present place on the west bank near
Nehru Bridge by Irrigation Department? Why people are being forced to
move out of the areas? Whether in-situ development in present context was
not suitable for SMC? What they have not proposed housing in the present
site? More information on some of these questions is being asked from SMC
under the RTI Act.

The report presents a brief account of the study area and initial observation
of the urban planners, who are technically qualified to understand the
situation. Our recommendation is based on our findings however, a detailed
analysis is possible only after cooperation from the Surat Municipal
Corporation.

We thank people of these areas in helping us in quick assessment and

sharing their ideas of redevelopment. We expect all those stakeholders in
the study area to help authorities and decision makers to take right decision.

Thank You

Shashikant Kumar, Principal Consultant

Pinakin Khatri, Associate Consultant
Green Eminent,
304, Time Square,
Fatehgunj
Vadodara, 390002
Tel: 91-265-3015418
 STUDY OF BAPUNAGAR SLUM IN SURAT
Introduction

Surat, has 400 slum pocket spread over various parts of the city, mostly
situated along the water bodies, industrial areas and some public lands. The
slums are populated by people belonging to Economically Weaker Section
(EWS) and Low Income Groups (LIG). The Surat Municipal Corporation under
its IHSDP scheme (2008-09) has been targeting these slums.

The Problem

(A) The slums on West bank of river Tapi, along Nehru Bridge and Makkai
Bridge has been targeted for the relocation to new sites location on the
outskirts of the city. The slum dwellers of Bapunagar (5000 Houses),
Nehru Nagar, Subhash Nagar and Iqbal Nagar have being told to be
prepared to be moved from the present sites. As per the people’s
perception they have been proposed to be allocated alternate site at
Kosad, 10 kms away from the present site, and recently incorporated
in the municipal corporation limits. People at these slums are divided
on moving to newer site. Till now, 9,688 houses for urban poor have
been completed at Kosad and Bhestan. Another 9,320 and 9,500
houses will be ready for possession by the end of 2009 and May 2010.
SMC is planning to complete the project for constructing 42,175 houses
by the end of 2010. Plots kept reserved for EWS/SEWS housing purpose
and land purchased at Bhestan and Kosad are being utilized for this
purpose (Source: ToI:9 Dec 2009).

Corporation conducted survey, allotted numbers to houses, taken

finger prints and photographs of individual property residents. Now
they are asking for proof of residence to list them as beneficiaries of
the project. Some people have already filled the forms for the
allotment of property, but community leaders and NGO representative
feel few are ready to shift to new site. To find out whether there can be
alternate strategy for the in-situ development of Slums, the opinion of
experts was sought by the community leaders.

(B) The Irrigation Department in association with SMC has constructed a

linear embankment recently which has segregated the slums with
developed society. People do not know why they have considered
embankment at present location. They want an expert opinion on its
correctness.
Our Approach

Since the scope of our analysis is limited given information, we decided to

conduct a quick (a) Field Assessment of Slums and Physical observation of
Features (b) Make observation report based on the discussion with
community, available data, maps and information from the secondary report
(c) Suggest conceptual alternative measures for solving the issues/problems,
to support the community action in studied slums.

Figure 1 Surat Flood Aftermath -

Iqbalnagar (Source: AIDM, Ahmadabad
Report)

Surat Flood

The genesis of the present activities

associated with the relocation of the
slums from the present sites lies in
the Surat flood in year 2006. The
Slums along the west bank of river Tapi was devastated mostly north of
Nehru Bridge, including Iqbalnagar (located between embankment and river)
and Subhash Nagar. As per the land record in SMC (as in website) they are
sited on the river bed. Surat 2006 floods was water management crisis at the
Ukai reservoir located in North of city. It is claimed by many experts that it
was human error on mismanagement of water which caused water to swell
up to 20 feet in many parts of city
during 4-9th August 2006. It was never
in history of city, river Tapi has flood
city to this extent, the danger was
enormous and life in slums was
severely affected for next few months.

According to one of the technical

report, ‘the level of water started rising
in the river Tapi from 1st August 2006
and started spreading in the nearby
area of city. By 5th to 9th August 2006,
almost 90% area of the city was
Figure 2 : Submergence during Flood,
flooded and the depth of flood water 2006
observed in the different areas was
varying according to the topography of the City’. Given these exceptional
circumstances, the life of people along the Tapi bank was safe otherwise,
and people expect it to continue without much change.
 Table: Flood History at Surat Flood Control:
Flood Discharge Water Period
Event (Lac- Level at With minimum available
Cusec) Hope information we can have quick
Bridge judgement of the flood control
(Meters) measures taken in the study
1 1883 10.05 11.05 July areas. The Tapi River had
2 1884 8.46 10.05 September segregated channel from present
3 1894 8.01 10.33 July Iqbal Nagar to present Nehru
4 1942 8.60 10.56 August Bridge where now present
5 1944 11.84 11.32 August embankment is constructed. In
6 1945 10.24 11.09 August fact the construction of
7 1949 8.42 10.49 September embankment and blocking of
8 1959 12.94 11.55 September channel further south of Nehru
9 1968 15.5 12.08 August Bridge by housing societies have
10 1994 5.25 10.10 Aug.-Sep. blocked the earlier flow (since
11 1998 7.0 11.40 September 1970s). However, the study area
12 2006 9.09 12.40 August was flooded in prior years in
Source: Agihotri Prasit and J.N. Patel, Construction of Digital Elevation
Model and Contour Map for 2006 Flood at Surat (India), World Applied
1968, 1994 and 1998 flood with
Sciences Journal 5 (3): 318-323, 2008, IDOSI Publications, 2008 little damage. Since the earlier
embankment on Tapi river was never strengthened leading to loss of connecting
road and erosion of edges on the western bank. Heavy siltation during earlier floods
might have also reduced the carrying capacity of river resulting overflow at the
study area (between Iqbal Nagar to Bapu Nagar). Since the river is likely to further
erode the landmasses it’s urgent for the authorities to start strengthening the banks
of river.

Figure 3: Old Embankment Remnants

Figure 4 : Missing Embankment (Nehru Bridge)
There was old embankment further on the river bed which used to protect
these settlements from the flood. These embankments were washed away
and no corrective measure or rebuilding of the embankments was done on
the bank of river near Bapunagar and south of Makkai Bridge.
 Section – I: Field Observation

The field visit to the study areas i.e

Bapunagar Slum was conducted along
with the community leaders to initiate a
first hand account of the concerns
raised for the study. The community
majority of them Muslims and Vanzaras
(About 60 families) and vagaries (A
scheduled caste) and Khandesi’s were
residing in the areas extending from
Iqbal Nagar (Near Causway) to Subhash
Nagar, and Nehru Nagar north of Nehru
Bridge. Bapunagar is located between
Nehru Bridge and Makkai Bridge.

Housing: The structures in the slums

were pucca, semi pucca and thatched
housing units. Floors were made from
mud, kota stones, tiles in majority of
housing units. The housing units were
closely defined with little open space surrounding the units, the community
open spaces, available in Subashnagar and Bapunagar. Roads width in these
areas varies from 1meter to 6 meter width in colonies.

Community:

Bapunagar, has majority Muslim population

with Vanzara families has been living since
last 40 years and incremental housing units
are added to the vacant space by the new
dwellers mainly on the periphery. The internal
roads in the colony have been improved
during the various slum improvement
schemes in 1984-85 and 1994-95. The housing
unit here has been provided in electricity, Figure 5: Streets in Bapunagar
water connection, underground/open drains, paved Kota stone streets, street
lights, community toilets, public distribution shops, health clinic, Balwadi etc.
The community has also constructed five Masjids, of which four are pretty
big and one school at the location was obtained after much effort going right
up to Delhi for obtaining sanction. Most of the households in the Bapunagar
are engaged in businesses related to household’s article, auto rickshaw
driving, grocery, and small merchants.

Nehru Nagar, has Muslims, Khandesi and Vagri community (a scheduled

caste), all in equal proportion, residing along
the bank and above the old
embankment. The community majority of
them engaged in daily vending services in the
city are also residing since late 1960s. The
community has managed to attract slum
improvement with access to good roads,
Balwadi, community toilets and street lights
under various projects of Surat
Municipal Corporation. There are some private
revenue plots between embankment and
river.
Figure 6: Active Street Use in Nehru Nagar

Nehru
Nagar also has a functional cinema hall on
the major axis, along the Bapunagar-
Subhash Nagar road market, two floor
structures, and community spaces.

Subash Nagar, has mix population

residing on the erstwhile Hope Bridge to
Rander road (which now abandoned). The
Figure 7: Shital Cinema in Nehru
Nagar community earlier used to have fishermen
and sand loaders who used to make living out of fishing and sand mining
from the Tapi river bed. The site earlier
used to have functional boat club,
(today abandoned) by some private
party, fully functional Sand mining
business (now not functional after Ukai
dam construction). The people in these
areas are now working in the old city
and west zone as daily wagers, house
maid, vendors and small business. Most

Figure 8: Idle Road in Subhash Nagar

Table: Estimated Units and Households in of them appeared to
Study Area be from economically
Locality Units Estimated Population
weaker and Lower
(as per Household (HH *5.6)
income group with
SMC s (Unit
record *1.5) semi pucca and pucca
2007) housing structure.
Bapunagar 2332 3498 19589 Most of the area north
Nehru Nagar 1295 1943 10878 of Subhash Nagar is
Subhash 1152 1728 9677 shown as river bed in
Nagar the municipal records.
Iqbal Nagar 263 395 2209 However, many
JP Nagar 419 629 3520 housing units were
Total 5461 8192 45872 relocated by the SMC
in these areas.

Dwelling Units

As per the records available from the SMC website, following status is
generated;

The estimated population in the study area is about 45872 persons which
constitutes approximately 9 percent
of the Surat slum population of 5.8
Lakhs (2009). This is considerable
given the official records. However,
as per the estimate more than 10-12
thousand families might be residing
in study area. About 20-30% of
these settlements are on the edge of
the river Tapi who might have
suffered damage during the floods.

Location of housing units:

The location of the Bapunagar,

Subhash Nagar, Nehru Nagar and
Iqbal Nagar closer to the city centre
and new developed areas of West
and Central zone allows them to
work and earn livelihood in the area
with access to market, bus station
and railway station. The
 interweaving of the social groups in the locality is strong and activities in the
space are quite changing during the various hours of day.

As an important landmark the locality developed before west zone could

Figure 9: Existing Layout of Study Area possibly attract the housing societies and
apartments. People residing in the colonies under
the study are from economically weaker section of society with strong
bonding with the Surat’s socio-cultural life.
Life on the banks of River
Construction of Embankments

The Irrigation department has recently raised the height and dimension of
embankment from 2-3 meters
to 12 meters along the
erstwhile water channel. The
construction of embankments
has cut off access of the Iqbal
Nagar, J.P Nagar, Subhash
Nagar and Nehru Nagar with
rest of areas in west zone. This
may also put the life of people
living between embankment
and river in grave danger.

The important issue in the

earmarking of the land which
was earlier classified as
agricultural land in Town
Planning Scheme Map (TP 11)
Figure 10 : Embankment: SMC could not observe - has now being classified as
Land use river bed in SMC records (refer
website). This might be the case where the newly constructed embankment
lies 100 meters inside the main Tapi river bank. The height of embankment
is above 12 meters segregating the housing societies and other LIG/EWS
settlements.

Life on the Edge of Embankment:

The removes access of the study area

to west zone has resulted in acute
access issue to the female members
of community who are working as
daily wage earners as well as house
maid in the nearby housing societies
and apartments. The embankment
has also reduced access to the

Figure 11: A Mammoth Structure: Saving

what??
private plot owners on the river side their right to access and may pose
serious disaster during future floods.

What is embankment going to achieve? This is the question posed to us by

the people residing in the river side along with the expenditure involved in
constructing half baked solution to saving the affluent society on city side.
We were surprised to see the quality of construction and likely reasoning
that might have taken place we have following points of assumption;

(a) People in the city side of embankment suffered severe loss of

property during 2006
floods.

(b) Demand by the powerful

and affluent to save them
from eminent disaster in
future and quick reaction by
the Irrigation Department
and Surat Municipal
Corporation in constructing
20 feet high (5-10 feet
above Nehru Bridge) wall.
Even this action may not Figure 12: Divided Society - Rich V/s Poor
stop water to enter in the
areas from the opening from and northern and southern part of
embankment.

(c) To facilitate removal of so called slum (LIG/EWS housing) from the

river bank, to accommodate ambitious river front project on the
west bank of Tapi.

(d)To give opportunity to contractors in earning some extra money in

name of flood protection and management.

(e) Lack of knowledge regarding Tapi bank topography, land use

information and analysis of flood mitigation measures and plan.

(f) Poses serious soil erosion towards city side affecting apartments on
the edge of embankment.

(g)Poorly constructed and unmindful of rights of people living in the

locality.
Photo: Divided Lives and
Activities along embankment
in Surat

Our recommendations

(A) Embankment on the River:

The existing embankment
constructed (50 x 25 feet approx
dimension) recently disregards
the general topography and land
use features along the river Tapi.
We propose for a project to
realign embankment along
the main Tapi River course.
This would save enormous
land from getting eroded from
subsequent floods. A technical
feasibility for such exercise
can be initiated by Irrigation
Department and Municipal
Corporation.

(B) Road: construct road on the

present embankment
alignments after reduction in
height from 20 feet to 10 feet.
 Strengthened edges of embankment and protect citizen from either side
from structural failures.

(C) River Front Project: As it has done in Ahmadabad’s Sabarmati River Front
project, the slum redevelopment project has been initiated on the banks of river.
Similarly SMC can initiate project to safeguard river against possible erosion due
to future floods and reinstate the housing/residential areas.

(D)Environmental Impact Assessment: We would like to recommend for

authorities to undertake Environmental Impact Assessment (EIA) along with
Social Impact Assessment (SIA) of existing embankment, which is not in
accordance with physiographic nature of terrain and river behavior.
 Section - III
Recommendation

Housing Strategy for the Study Area

Following are the major points to be observed by SMC and Community:

(A)Stop outright clearance of present site by the municipal body without

alternative rehabilitation plan.

(B)Community willingness and decision to shift or remain at present is

primarily important for the relocation plan.

(C)Safeguard the interest of the people and residents of Bapunagar,

Subhash Nagar, Nehru Nagar and Iqbal Nagar by constructing
protective structures preventing further erosion of soil on the western
river bank.

(D) Plan in-situ redevelopment of existing sites and take community

participation in design, process and implementation of such plans.

(E)Assign proper amenities and infrastructure to the urban poor as per

the guidelines laid down under the National Slum Policy.

(F) Community willingness to participate in the improvement of existing

residential areas has been proved during the earlier schemes
implemented in 1980s and 1990s.

(G) Identify and acquire nearby vacant lands (public) for the
relocation for certain properties if required under the redevelopment
plan (to be prepared in participation with community).

(H) If there is danger to life and property of residents than this

should be clearly informed to the residents through community
meetings and scientific evidences.

(I) The present flood management activities is not convincing to prove

that this would safe guard the western bank of Tapi against the soil
erosion, mud slide or water intrusion into the low lying areas.
 (J) Instead of constructing structures along the rivers the SMC should
make public evaluation report of flood management structure along
river Tapi for its safety.

After careful study of the issues concerning people it is not advisable for
the SMC to relocate the residents from present site (unless there is grave
danger to their life and property) given the socio-economic linkages of the
residents of Bapunagar, Nehru Nagar and Subhash Nagar. The close knit
community structure and residential calls for the community participation in
the decision for their shifting from the present site. If the consent for
relocation to new site is not given to SMC then there is scope for looking at
the alternative including redevelopment of existing residential areas of low
income groups and economically weaker section of people.

CONCEPTUAL REDEVELOPMENT PLAN

The study area can be proposed to have redevelopment plan which is

explained as under

A redevelopment plan describes the purposes, goals, and objectives aimed

at eliminating existing physical, social, and economic blight. The
redevelopment plan must be in harmony with the existing Surat City
Development Plan. A redevelopment plan generally contains the following
components:
• A legal description of the project area in written and graphic
form and a description of land uses;

• A description of the proposed actions to be taken to carry out

redevelopment, covering the duties, powers, and authorities of
the Redevelopment Agency as well as describing the rights of
owners and tenants;

• A description of the authority and limitations for financing the

activities necessary to implement the plan.

Recommendation

(A) Community Participation:

A continuing dialogue with the public is crucial to a successful redevelopment

program. Without citizen input, ideas, and support, any redevelopment plan will
falter. Citizens have a role to play in creating revitalized areas.
(B) Planning Agency (Community Based):

A community based planning agency which involves community leaders who

actively involves in the process of communities requirements and facilities to
corporation or other local bodies. Regular participation of community meetings
in which they collect the information’s and know how from the residents of their
particular area.

(C) Census/Assessment

Regular assessment of census information regarding population, migration and

other socio-economic data for the redevelopment project. Collecting information
about their ownership, employment ratio, their working locations and other
physical features for preparing redevelopment strategy. Collection of
documentary address and identity proofs from community.

(D)Plan Preparation

The redevelopment plan for project area is presented at a public hearing and
citizens are given an opportunity to
review and comment on the plan.
Meetings of the agency are open to
the public. Public attendance and
active participation by residents of
the community are welcome. All
decisions are made by elected
representatives in full public view.

(E) Implementation

Identifications of existing
infrastructure facilities and what
should be done for the future
generation of additional facilities that
can be determined. Solid waste
management plan for the entire
community area and proper disposal
system with engaging local bodies or
community planning agency. Repair,
restoration and reconstruction
around existing facilities with proper
management. Regular meetings
have to be conducting with

Figure 13 : Conceptual
Redevelopment Proposal
corporatores and community leaders.propper provisions of facilities to slum
dwellers for loans and grants for redevelopment. Providing coordination system
for residents and owners of the particular land that can be utilized for
redevelopment purpose.
ANNEXURES