Formulation of Urban Strategy in West Bengal

8/12/2019 Formulation of Urban Strategy in West Bengal

1/15

URBAN STRATEGY

IN WEST BENGAL

Current situation analysis and Gap

findingNov 2010


2/15

Table of Contents1. 1

1.1 Introduction 2

1.2 Other urban strategy documents in India and West Bengal 3

1.2.1 Previous Urban Strategy/policy studies in India 3

1.3 Methodology 6

1.3.1 Meeting of the Steering Committee and Stakeholders Workshops 6

1.4 Chapterisation 8

. 11

2.1 A Brief Overview 12

2.1.1 Relevance of the Analysis 12

2.1.2 Comparison with other states 14

2.1.3 Projected Population India, other states and West Bengal. 14

2.1.4 Net Migration rates: West Bengal and other states 16

2.2 Share of Urban Population by City size-classes 17

2.2.1 KMA, KUA and KMC vis a vis West Bengal as a whole 18

2.2.2 Urban Population Growth is slowing down 19

2.3 What is Urban Area? 20

2.3.1 Review of national norms and comparison with other states 20

2.4 District-wise Urban Growth 24

2.5 Sex Ratio 31

2.6 Occupation Structure: Workers data by districts 32

2.7 Migration 33


3/15

2.7.1 Migration Pattern in West Bengal (2001 Census) 33

2.7.2 Other features of migration in West Bengal 34

. ,

3.1 Institutional framework at the state and city level 37

3.1.1 Structure and functions of Urban Development Department (UDD) and Municipal Affairs

Department State level 37

3.1.2 Various players in Urban Development - roles and responsibilities 41

3.1.3 Urban Local Bodies and Governance 43

3.1.4 Ward Committees, Community Development Societies: Role of civil society and its

participation 44

3.2 Urban Planning and DPC and MPC related issues 46

3.3 Organisational Development and Administrative Reforms 50

Pujali: A self-driven Municipality 51

3.4 JnNURM Reform Implementation Status 52

3.5 Capacity Building and Institutional Strengthening 59

3.6 Issues and Recommendations 60

.

4.1 Introduction 64

4.2 Economic Growth in West Bengal 64

4.3 Economic Performance of State 65

4.4 Review of Economic Policies, Initiatives and Institutions 68

4.4.1 Policy Initiatives 68

4.4.2 PPP initiatives in West Bengal 73

4.4.3 Institutions 75

4.5 Mapping and Analysis of Urban Economic Growth by State and Districts 79

4.5.1 Work Force Participation 79


4/15

4.5.2 Distribution of Work Force by Sectors 83

4.5.3 District Wise Net District Domestic Product 90

4.5.4 Levels of Urbanization, Industrialization and Human Development Index 91

4.5.5 Competitiveness of West Bengal and Kolkata 91

4.6 Regional Linkages and Clusters and Growth Strategy 95

4.6.1 Identifying Large Urban Centres as Growth Drivers and Corridors 96

4.7 Identification of Constraints and Potentials 101

Vision 101

4.8 References 106

. & 10

5.0 Urban Land Use Planning in India 109

5.1 Urban History of West Bengal 109

5.1.1 The Basic Development Plan (BDP) by CMPO 109

5.1.2 The Report of the National Commission on Urbanization 1988 110

5.1.3 The Kolkata Metropolitan Development Authority (KMDA) and its plans. 111

5.1.4 K.M.P.C. Perspective Vision Plan 2025 112

5.2 Land Use Planning and Policies 116

5.3 Urban Planning in West Bengal 117

5.4 Major Functions of the Authorities 118

5.5 Merits of the West Bengal System and possible improvements 120

5.5.1 Need for amending the Municipal Act to include Proposed Land Use Plans and powers of

development control to Urban Local Bodies 120

5.5.2 Extending Building byelaws to Gram Panchayat areas which control 252 census towns in

the state far outnumbering the 127 ULB towns. 120

5.6 Urban Heritage Conservation 121

5.7 Emerging ideas and alternative models of urban planning and development. 122


5/15

Urban Agriculture: A new era for self-sufficiency 123

5.8 Debates over Urban Form, Densities, and Concentration without Congestion 124

5.8.1 Cities and Population Densities 125

5.8.2 Densities prescribed and densities on ground 126

5.8.3 Floor Area Ratio 126

5.9 Public policy for urban form in the context of housing for the urban poor 128

5.10 New Towns versus expansion of existing towns 129

5.11 Key issues in urban planning and development: 130

. 11

6.1 Review of Environment Planning and Legislations 132

6.1.1 Introduction 132

6.1.2 Certain Provisions in the Constitution of India 132

6.1.3 Legal Instruments for Conservation of Environment 133

6.2 State Environmental Policy Statement - 1995 137

6.3 National Environment Policy 2006 139

6.3.1 Key Reforms 139

6.4 Bio-Diversity 141

6.4.1 Key functions of the Board 141

6.4.2 Key Activities 141

6.5 Assessment of Urban Environment Status 142

6.5.1 Health Risks 142

6.5.2 Status of Surface Water Quality 144

6.5.3 Status of Ground Water Quality 145

6.5.4 Bio-monitoring of River Hoogly 149

6.5.5 Status of Air Quality 150

6.5.6 Automobile Pollution 154


6/15

6.5.7 Health Impact of Air Pollution on Kolkata Population 154

6.5.8 Municipal Solid Waste Management 155

6.5.9 E- Waste - An Emerging Environmental Concern 155

6.5.10 Hazardous Waste Management 156

6.5.11 Critically Polluted Areas Identified by CPCB in West Bengal 157

6.6 Energy Conservation Voluntary Compliance Mechanism 158

6.6.1 Energy Conservation Building Code ECBC 158

6.6.2 ECBC User Guide 2009 158

6.6.3 BEE Star Rating for Office Buildings 159

6.6.4 Energy Labelling Programme 160

6.6.5 Solar Building Programmes by MNRE, GoI 161

6.6.6 Solar Water Heating System 162

6.7 West Bengal Disaster Management Policy and Framework 164

6.7.1 Conclusion 166

. 1

7.1 Review of urban services delivery framework on various services 168

7.2 Water Supply 170

7.2.1 Water Quality ` 178

7.2.2 Urban Water Supply Policy framework 179

7.3 Urban Sewerage and Sanitation 179

7.3.1 National Sanitation Rankings 184

7.4 Solid Waste Management 185

7.4.1 Present status 186

7.4.2 Current programmes and Projects 188

7.5 Funding Municipal Services 190

7.5.1 Current Projects and Funding Infrastructure 191


7/15

7.6 Public Private Partnership 191

7.7 Issues and Challenges 192

. 1

8.0 National Urban Transport Policy of India 195

8.1 Regional and City Planning 196

8.2 Trends in traffic and transportation growth 196

8.2.1 Roads 197

8.2.2 Railways 200

8.2.3 Seaports 202

8.2.4 Airports 202

8.3 Study of transportation plans and proposals 203

8.3.1 Transport System Choice 203

8.3.3 Intercity Transport Models 205

8.3.4 Intra-City Transportation Planning 206

8.4 Linkages between transport, economy and environment 207

8.4.1 BIMSTEC and the Kunming Initiative 208

A logistic and transport hub: Dalkhola Municipality 209

. 11

9.1 Introduction 212

9.1.1 Overview of the state of social development in West Bengal 213

9.2 Review of Social Sector Status 215

9.2.1 Education 216

9.2.2 Health 226

9.3 Social unrest and law and order conditions 239

9.4 Review of displacement and rehabilitation policy related to urban projects 239


8/15

9.4.1 Resettlement and Rehabilitation Policy 240

9.5 Identification of key issues and concerns 244

9.5.1 Issues to be addressed in the urban strategy would be 244

9.6 List of gap areas 245

9.6.1 Education 245

9.6.2 Gender 245

9.6.3 Health 245

10.

10.1 Analysis of ULB finances in West Bengal 248

10.1.1 The Urban Fiscal Problem 248

10.1.2 State of Municipal Finances: West Bengal 250

10.2 Accounting, Budgeting and Audit Practices 269

10.2.1 Double Entry Accrual Based System 269

10.2.3 New Accounting System 270

10.3 District/ULB wise analysis of finances 271

10.4 Gaps identified 283


9/15


10/15

Urban Strategy in West Bengal CURRENT SITUATION ANALYSIS AND GAP FINDING

2

1.1 Introduction

The increasing realisation of the importance of urban development for the overall economic

development of the region necessitates attention to the facets of urbanisation at all levels of

policy making. This case receives more attention in a state like West Bengal with high

percentage of urban population (28.3%). The percentage of urban population in the State has

always been higher than the national average, calling for a greater need to tap the benefits of

urbanisation.

The urban characteristics of West Bengal are marked with several unique features. High

population density patterns, rich environmental endowments, strong people centric governance,

long urban history, importance laid on rural areas traditionally; all these factors and many more

contribute to a vivid yet challenging picture of urbanisation in West Bengal.

While tapping the full potential of urbanisation is a challenge in itself, the entailing problems of

urbanisation are major stumbling blocks to development. To be in a position to analyse and

understand the system, its pros and cons, there is a need for a holistic approach which gathers

a wholesome understanding of the current scenario, the factors which instrumentalised such a

setting, their long term intentions and their de facto outcomes. This then paves way for

strategically positioning the situation and analysing the way forward for addressing the

unwanted by-products of urbanisation.

The total urban population in the state is distributed across 127 statutory towns and 249 census

towns covering only 3% of the total land area1

Across the districts, the level of urbanisation is also very uneven. Apart from North 24 Parganas

(54.36%), Howrah (50.39%), Burdwan (37.18%), Hooghly (33.48%) and Darjeeling (32.44%), all

the other 13 districts have urbanisation levels of less than 25%. Districts like Koch-bihar, Malda,

Birbhum, Bankura and Purulia have the urbanisation levels of less than 10%.

1KUSP,RfP, Urban Strategy for West Bengal, 2010

Note: The RfP mentions the numbers, 126 ULBs and 252 Census Towns. Upon further analysis by the consultants, it was

found that of the 4 ULBs created after 2001 census, 3 were already listed in the Census Town directory as Census towns

viz. Dalkhola, Dhupguri, Dankhuni previously listed as Raghunathpur (PS- Dankhuni). This results in the decrease of the

total number of Census Towns from 252 to 249. To the 126 ULBs mentioned in RfP, Dankhuni was added recently,

increasing the total number of ULBs to 127.


11/15


8

The study therefore used a triangulation approach by synthesising data gathered from detailed

secondary data analysis and that from the primary discussions and focus group with the ULBs

and other government departments and para statal bodies.

1.4 Chapterisation

The analysis has been performed keeping in mind the policy directives applicable to each

sector, their regional implications and performances of local authorities. This analysis has again

been performed at sub-regional/district level to arrive at a pattern, which would help look at the

characteristic profiles, growth areas, potentials and deficiencies of different regions within the

state. Such a situation analysis would help effectively achieve the strategy goal of balanced

urban development within the state of West Bengal.

The current report starts with a Trend Analysis of Urbanisation and Demography in the state

during different years. This is mapped out within the context of urbanisation trends witnessed inthe country as a whole. This section then tries to forecast trends within the state across districts,

different classes of urban centres and within ULBs2. Migration trends from and to different

districts and that of other states and countries are also analysed.

2Where ever analysis for ULBs has been carried out under different sectors, the number of ULBs varies

from that of the actual 127 number. This is due to the reason that data gathered for different sectors isfrom different years yielding varied totals for the ULBs during that point in time.


12/15


9

Next chapter on Urban policy, Legislative and Institutional growthdescribes the existing set up

in the state within which this strategy would be implemented. The chapter describes the existing

urban administrative set up in the state and proceeds to discuss the provisions made in this for

improved representation in urban elected bodies and strategic planning. It also describes the

organisation structure and hierarchy of different institutions within the urban set-up.

Third chapter on Regional and Urban Economic Growthoffers insights into the major revenue

generating activities of different sub-regions and towns within the state. General performance

and the economic growth trends of the state are compared to that of the other states and the

country as a whole. Production of different sectors like primary, secondary and tertiary over the

years is also analysed to see the growth trend witnessed in specific sectors to understand the

potential sectors and areas. The chapter also identifies a set of regions, urban areas with

growth potential and with the ability to act as growth drivers.

Urban Landuse and Planning chapter mainly discusses the physical planning framework in

practice in the state. This includes different master plans, draft development plans and other

land use & development control maps being prepared by the towns and cities within the state for

town planning. This is done in the context of plans keeping up with the rapid urbanisation and

being able to accommodate the growing needs of urban land and infrastructure.

The next chapter Urban Environment reviews various environment related legislations already in

force. It then illustrates the environment scene in different urban areas of the state. A strategic

assessment of how urban development is affecting the environment in the state is undertaken to

bring into light various ecological imbalances and hazards and the efficiency of available

frameworks in tackling them.

The following chapter on urban infrastructure and serviceslooks into the level of service delivery

being provided in different urban areas. Effective utilisation of various state and central levelfunds/schemes in the up-gradation and development of infrastructure services in urban areas is

then reviewed. The status itself is assessed based on country level benchmarks and good

practices in respective services.

The subsequent chapter on urban transportinitially tries to fit in the transportation sector in the

existing framework and regional and metropolitan planning. A general trend is drawn on the trip

generation behaviour in the state. Major transportation corridors, national highways, railway


13/15


10

routes and important transport nodes are then plotted on the state map to assess the urban

growth pattern as influenced by the transportation networking.

The ninth chapter of this report on social development looks at aspects like education, health,

gender, resettlement and rehabilitation issues and vulnerable section population including

slums. These are described in general for the state as a whole and are treated for evolving

district wise trends. Areas for improvement in the policy as well as the institutional framework in

addressing various social issues are then addressed.

The final chapter of the report is on the municipal and urban finance managementin the state.

Data on ULB finances over the years have been analysed based on their sources andexpenditure. This analysis is again classified according to different districts and classes of ULBs

to find specific problem areas and practices in the Financing model adopted by the ULBs in

West Bengal state.


14/15

88|A n n e x u r e

ULBs Combined to form Clusters


15/15

94|A n n e x u r e

District Clusters & ULB with highest population amongst the cluster

Formulation of Urban Strategy in West Bengal

Documents

Transcript of Formulation of Urban Strategy in West Bengal