* DOCUMENT : 10

Philippines to Mumbai

I. Background:

Horizontal learning through community visits and exchanges has become  potent tool and locus for advancing  the common cause and forging solidarity among slum communities forming the Slum Dwellers’ International (SDI). This burgeoning international network of grassroots practitioners and promoters of community-driven housing and urban development has long been contending for and investing on  grassroots learning processes to break the hegemony of formalized trainings.   The Indian Alliance, strongly built on the tripartite partnership of the National Slum Dwellers Federation (NSDFI), Mahila Milan (MM), and the Society for the Promotion of Area Resource Centers (SPARC),  has been the forerunner and staunchest advocate  of  horizontal exchanges since the early 90s.   Perennially marked by public events  to enhance the visibility and capacity of  slum dwellers as active citizens of their respective cities, horizontal learning processes have continued to develop and evolve through the years by addressing emerging needs and potentials such as the current interest to further deepen learning  beyond celebrated events.   This report attempts to share some highlights and learning points from a more recent SDI exchange hosted by the Indian Alliance and organized around the 5^th National Convention of the NSDF and MM.

II. Participants:

The directory of foreign participants would readily show a marked  heterogeneity in terms of geographical origins (from 2 major continents), ethnic and cultural diversities, sectoral and institutional representations (from grassroots communities, support NGOs, and government units), gender perspectives, and  stages of affiliation to the network.  Such diversities helped to further enhance needed multi-vocality in the exchanges,  enrich interactive learning, and  expand network solidarity.        

Box # 1:  Directory of Foreign Participants

III. Events and Itineraries:

The multi-sited international exchange was organized and programmed around an annual major event for the Mumbai Alliance, the   5^th NSDF Convention in commemoration of  Jockin’s Ramon Magsaysay Award in 2000. This annual national level assembly of federation members serves to further promote a nation-wide consciousness of the slum-dwellers’ struggles and successes that earned for their highly dynamic and charismatic leader the Asian Nobel Prize award for international understanding.  Jockin deems it fitting to mark and celebrate such award (which he treasures as a prize he owes to the federation) and serves as venue for furthering people’s processes.  That the yearly convention also coincides with the birthday of the great father of the Indian Nation, Mahatma Gandhi, likewise readily draws parallelisms and further enhances the national consciousness, the grassroots character, and the liberational thrust of the movement.  

The 2004 assembly was held in the resettlement site of Mankhurd where the physical set-up of the venue itself would vividly reflect strong cultural vestiges as well as practical considerations.  The main interior road was closed and artistically adorned with colorful clothe partitions and floral designs, expandable and rain-proof so as to accommodate about 35,000 participants from different states of India.  The throngs of delegates visibly dominated by women in multi-colored saris showed up with their local banners and slogans and exhibited such remarkable and as it were unperturbed physical order and sitting positions despite a short downpour, even inspiring one foreign delegate to quip that the rain must be a blessing for the un-dispersible assembly. Traditional rituals such as candle ceremonies  as well as customary gestures of respect through giving of big garlands and bouquets to distinguished guests rendered simple ethnic representations to the 3 day events which were also marked with local articulations (singing of original federation hymn in hindi),  festive atmosphere, and overflowing expressions of gratitude and tribute to Jockin (extensive lines of long live wishes and floral gifts per local association and housing society).  The spontaneity even went on with the typical free-spirited celebration characterizing informal settlers with young girls rendering song and dance numbers, men dedicating song rendition to Jockin, and even a drunk man coming on stage to kiss the great “bhapo” of the slum-dwellers.          

The foreign participants were deeply impressed and overwhelmed by the scale of  mobilization, the crowd control mechanism, and the maintenance of order in such a mega-assembly. The processes may have incurred  heavy financial costs but must have really been worthwhile given the impressive outcomes. 

Box # 2: Program of Activities and Visits

IV.  Learning Sites and Exchanges :

This report took the liberty to arrange the proceedings and interactions based on a format that can better illustrate the highlights, major discourses, and learning points in the weeklong exchange.  The key contents were grouped under 2 main categories on:  (A) the urban agenda and the corresponding initiatives of the Alliance (Slum Rehabilitation and Resettlement vis-à-vis Urban Upgrading and Development Agenda;  Slum Community Policing Schemes to address urban violence;  Community Toilets to deal with urban sanitation concerns);  and  (B) Institutional Frameworks and Arrangements (Engaging Government, Federation Building and Institutional Formation, SDI Network and International Relations).   Inputs were culled and formatted from varied learning sites and sources (Messages, Speeches, and Dialogues), events (Convention proper), visits (agencies and project sites),  interaction with local practitioners, and actual experience (savings collection).   The ensuing sections on particular learning discourses and exchanges follow a common format citing the particular sources (events and visits),  re-articulating intangible cultural elements, formulating schemes and policies (in box formulation),  highlighting significant shifts and scales, as well as discourses and dialogues (from messages, speeches, and interactive exchanges).        

A. Urban Agenda and Institutionalized Initiatives

1. Urban Upgrading:  Slum Rehabilitation and Resettlement

Events and Visits

Project site visits cum orientation served as key learning sites on the community-partnered resettlement policies and processes.   The hosts facilitated learning visits to resettlement projects showing  varying facets and  stages of implementation, which include: Oct 3 in Lalubai Compound where 7,000 houses have been built so far a target 10,000 affected families of both MUTP and MUIP;  Oct 6 in another SPARC construction project which is about 90 % completed; Oct 7 in the Dharavi resettlement located in Mumbai’s biggest slums;  a side visit to “Chita Camp” considered the first government resettlement project in 1976 where the original office of the NSDF still operates.  The main venue of the Convention in Mankhurd is also a resettlement project of the Mumbai Alliance.   Learning points were further clarified and reinforced through on-site orientation and a comprehensive program orientation on the MUTP and its rehabilitation and resettlement component presented with lunch hosted by Dr. Joshi at the office of the Mumbai Metropolitan Regional Development Authority (MMRDA).

Cultural Elements

Spatial designs of the housing units are adopted from the model houses to suit cultural sensibilities  to the fullest extent.  Sundar of SPARC further explained the people’s preference for low-rise buildings but also cited the problems of availability of lands as major constraint to the ideal situation.   Due compliance with building standards are assured with needed adjustment such as bigger corridors for social space as well as vulnerability-sensitive unit allocation procedures where the ground floor are reserved for the sick, elderly, and persons with disabilities.

Schemes and Policies

Box # 3 :  Resettlement and Rehabilitation (R & R) Schemes

Shifts and Scale

The visitors were generally impressed and overwhelmed by the scale of results and massive construction projects which the hosts credited to 10 years of continuing struggles to establish such a state-wide housing policy.   The schemes are now operational in 7 areas in Maharasthra where 30,000 houses have been constructed and expected to reach 35,000 by the end of the year.  Pavement dwellers are to be cleared and housed within 3 years while railway dwellers currently in transit camps are to be housed permanently within 2 years.

Discourses and Dialogues

Housing Backlogs and Government Responses  (other countries)

“Our government is faced with serious challenges with the rising population of 3.2M in Johannesburg.  300,000 families are expecting to be housed.  Government subsidies have been increased, but we do recognize the role of  POs particularly their savings mobilization schemes and processes of building houses.  It is also true that working relations still need to be improved … We are confronted with post-apartheid problems where land resources are owned by the white and government needs to buy back the lands at market rate to be able to provide land for the people.  Our laws prescribed that expropriation ought to be implemented in orderly manner, without evicting people… We are gradually developing partnership with other stakeholders amidst long history of ‘mistrust’.  Our government is more open to engagement and duly recognizes the contribution of people’s initiatives… We are looking forward to a brighter future ahead, with our slogan ‘better lives for everybody’ which reflects our bias for the poorest of the poor.. . We also commend the works of the Utsani Fund showing how people themselves coming together and contributing resources can go a long way.” (Johannesburg Housing Dept. Representative, Oct. 4)

“ I am impressed by the solidarity and amazed by the volume of people renewing commitment, and the discussions on issues of sustainability and growth considering that the problem does not end with the acquisition of a house.   The domination of women in the Federation poses as a challenge and new approach for us to adopt in Uganda.  We are doing performance monitoring of the housing sector in view of the Habitat Agenda and the Habitat Day today which falls on the same day as the convention.  Our Housing Policy is in the process of review towards  formulating  a National Housing Policy with provision on improving the housing for the poor.  We welcome SDI’s involvement in Uganda.  We have so far upgraded 6 slums with ongoing efforts supported by SDI.  We need SDI because there is no local housing NGO yet in Uganda.”  (Kampala’s Assistant Commissioner for Human Settlement, Oct 4).

Housing Finance Issues    

“If houses are given free,  what is the purpose of savings? In Kampala there is no ‘free house policy’, so must start projecting about housing and savings. Policy can come later.” (Delegate from Uganda, Oct. 4)

“We have already completed 43,000 houses and  target 50,000 for the next 2 years. Houses are given for free based on policy.  Savings are intended for maintenance (electricity, taxes, etc.) and for improving quality of life.”   (Jockin’s response, Oct. 4)

Who finances the construction?   (Delegate from Uganda, Oct. 4)

“The Alliance pays for the construction.  There are about 150 contractors within the federation.  We negotiate with landowners to give their lands, the government takes the land and issues TDR which can be sold in the open market.  Proceeds from TDR sales are used to finance the construction.”   (Jockin’s response, Oct. 4)  

“Initial investment comes from SPARC through CLIFF or HI.  Similar instrument is used in Kenya.  MMRDA has no investment in the construction.”  (Joel Bolnick’s parallel comment to a similar question, Oct. 6) 

“Subsidy is not from above but generated or  ‘created from the land’, thus, land is free, construction costs are also free from TDR sale, land and houses are given free with no rental and eventually with secured title.”  (Jockin, Oct. 4) 

Social Adaptability and Acceptability

“On the question of  post-resettlement social services particularly education for relocatees, the NGO involvement in surveys and social preparation and relocation processes  is essential to avert risks of recreating new slums.  MMRDA works in partnership with SPARC to address post-resettlement problems.  The formation of Housing Societies, which number about 100 to 120 at the moment, and the actual transfer by society formation led by SPARC is not an easy task…  We provide 10 % open space reservation for schools, hospitals, and other community facilities.  Every building has pre-school in the ground-floor.  We give space to institutions who are already running schools, while provision for hospital facilities are still in the planning phase.”  (MMRDA representative, Oct 6)

“Concerns on financial capacity are duly considered in the Basic Economic Surveys (BES) as basis for the Resettlement Implementation Plan.  Proximity to work opportunities is a priority although transportation costs are extremely cheaper in India.   Shipment charges are paid for plus 20,000 rupees per household are given to the society for maintenance costs.”  (MMRDA representative, Oct. 6)    

“Such extra-ordinary partnership with civil society is highly commendable.  The technical solutions are clearly in placed but not necessarily the social solutions as in other countries usual problems and conflicts arise from unit distribution and even opposition to such  projects.” (Joel Bolnick’s comment, Oct. 6)

“The Grievance and Redress Component is duly addressed and mechanism are fairly working at different levels from the field level committee, senior level committee, to the appellate level.”  (MMRDA representative, Oct. 6)

“70 % of the railway dwellers are part of NSDF mobilized through savings group formation and model house exhibition.  The fast implementation of the projects is the fruit of 15 years of sustained struggles and mobilization efforts… Maintenance costs may be higher in new buildings so we are building up women’s groups and housing societies with common funds that can be used to support those who can not afford.  There is a committee in every building for particular tasks (sanitation, peace and order, etc.).  We are forming people into groups sharing things in common.”  (Sundar’s comment, Oct. 6)

2. Urban Violence:  Slum Community Policing Schemes

Events and Visits

An evident highlight of the annual convention is the effective partnership between the slum communities and the police in addressing urban violence through an innovative mechanism known as the police “panchayat”.   High ranking police commissioners and senior officers of Mumbai and Maharasthra State, retired and incumbent, were among the distinguished guests gracing the assemblies with strong messages of solidarity.  The Federation, in turn, made the most of such public events to articulate their perspectives in varying emphatic ways highlighted by the sharing of Sanita Somerane, a woman panchayat member, voicing out both in Maharathi and Hindi stories, challenges, and central roles of women who are perennially considered at the receiving end of domestic violence and police concerns.   Capping the grand assembly was the giving of official police panchayat IDs to new members majority of whom are women.   Learning points on the  police panchayat mechanism were further deepened in an un-programmed visit and short dialogue with Mumbai Police Commissioner A. N. Roy, key proponent and advocate of police-slum community partnership, in his office.

Cultural Elements

Panchayat which means “village council” in the vernacular is in itself an indigenous concept which the Federation effectively revitalizes not only to address urban violence but also to advocate and build up the public images and social identities of both the police and slum-dwellers.  Cultural vestiges were likewise at work as power-laden media in articulating local sensibilities through ethnic dance renditions of mothers as well as a special dance-drama performance of panchayat volunteers’ children recounting experiences of partnership with the police in dealing with disputes and violence in slums and asserting the collective capacity of slum-dwellers to police one another and  maintain peace and order.

Schemes and Policies

Box # 4: Police Panchayat Schemes

Shifts and Scale

The Police Panchayat system is said to have so far covered 197 slums after one and a half years of implementation.   Promoters from both the police and Federation’s side would unanimously recognize and claim the significant changes that continue to surface in terms of improved understanding between the police and slum-dwellers, and shifts in mindsets towards more collaborative attitudes.   The institutionalization of such partnership is perceived to have brought perennially alienated parties together towards mutually beneficial efforts as crime goes down and improved order and harmony is established.  Post-colonial mentalities are changed whereby police officers are eventually being looked upon as respected democratic personnel regardless of the negative media projections.  The Panchayat system is clearly beneficial from the police perspective as communities are able to pressure and influence even the disinterested officer who finds a viable mechanism for easing his duties.  The Panchayat promotes are also looking into prospects of  mobilizing the police for other support services to slums  such as health care, literacy, or vocational training.

“We are changing the police system as we involve the police in addressing community issues.  We are not afraid of the police anymore as we are committed to make the police and community better understand each other.   Police officers need not worry about policing the slums as we can actually take care of our communities. This is not a politician’s promise.  The slum-dwellers are not afraid of police but willing to support and work with them.  We are challenging police  officers to build their houses  and dwell with slum-dwellers to  see for themselves.”  (Jockin’s remarks, Oct 3)

Discourses and Dialogues

Impressions on the Police Panchayat Schemes

“In our collaboration with the slum-dwellers,  we have come up with a more effective policing system for slums involving participatory process  of conflict-resolution at community levels.  Such innovative mechanism to address urban violence is institutionalized through the set-up of local police panchayats... We even had the chance to present the panchayat scheme in the resent World Urban Forum in Barcelona.”  (Mumbai Police Commissioner’s sharing, Oct. 4)

“We recognize our long connectivity with India as well as apologize for the historical damages caused by our government.   I am deeply impressed by the accomplishments of the Indian Federation with the slum dwellers themselves resolving their conflicts and problems, and involving the police in slum improvement.”  (Kampala Deputy Commissioner’s message, Oct 4)

“We are witnessing new experiences of working with people marked by society as ‘untouchables’. How I wish to have worked with Jockin for a longer time … The slum-dwellers can police themselves. They are not bad citizens.  They can even reduce employment needed for policing.”  (Mr. Sutangka’s message, Oct 4)

3. Urban Sanitation:  Community Toilets

Events and Visits

Community designed, managed, and maintained toilets pose as another effective learning site and essential component of the Federation’s community-led urban development processes.  Occasionally marked with major public events such as “toilet festivals” to underscore the people’s capacity in dealing with urban sanitation,  this particular  SDI exchange still managed to include and appropriate the agenda as the participants attended a simple inauguration rite of 1 community toilet under the rail bridge in Matunga.  Although intended site visit to the massive community toilet projects in Pune did not materialize due to time and travel constraints, visits and interaction with local managers of community toilets in Dharavi and Govandi communities served as fitting alternatives.    

Cultural Elements

Spatial designs and physical set-up vividly reflect vestiges of cultural sensitivity as well as practical  considerations.   Child-friendly toilet facilities with built-in play materials are visible indicators of  a strong resolve to develop toilet habits and sanitation practices at the earliest stage.

The integration of the urban sanitation agenda to the core initiatives of the federation is also spatially enhanced where meeting rooms,  Area Resource Center (ARC) for savings schemes, police panchayat stations,  communication and information  lines such as phones and television units, and other federation facilities  are housed within the community toilet structures.

Schemes and Policies

Box # 5: Community Toilet Operations

Shifts a