Link - JnNURM

Editorial 

Dear friends, 

2 

Greetings from JnNURM CTAG and CVTC Madurai. 

It was an immense pleasure to show case CTAG 

and CVTC activities in Madurai work at the Foundation 

Programme for potential Anchor Non Governmental 

Organizations (NGOs) to build City Volunteer Technical 

Corps (CVTC) and City Technical Advisory Group (CTAG) 

organized at New Delhi by the National Technical 

Advisory Groups. This would have not been possible 

with out the cooperation of the commissioner and his 

team in our endeavors. It also brings us the responsibility 

to be the leader for other Mission cities to show that the 

spirit of voluntarism sustains development initiatives. 

This issue is focusing on Basic Services for Urban 

Poor. Involvement and Participation of the community 

in the development is the key for success. Case study 

of Meeenambikai nagar and visit of CTAG and CVTC 

member to the urban slums would reveal the labor 

pains of corporation executive and governance system 

in transforming the slums in to Slum free city. The lead 

article on the challenges and way forward not only 

highlights the issue but also suggests few solutions 

for the consideration of the corporation, state and the 

Ministry. 

Madurai Heritage Development Plan prepared by 

Thiagarajar College of Engineering would go a long 

way in broadening our perspective and be a model 

for other cities in terms of stakeholder’s involvement 

in preparation of the Heritage Development Plan. The 

rehabilitation of Potramarikulam tank at Imayil nanmai 

Tharuvar Temple along with the corporation would set 

new trends in public and private partnership. 

Last six months, our voluntary and advisory members 

were more in field than in meetings is a positive sign 

but the need for regular meetings and induction 

of new members is the need of the hour to build an 

enabling environment for the corporation to fulfill the 

dreams of the citizens of Madurai. Despite lot of efforts 

done for bringing the community to participate and 

involve in the process of development, yet a feeling of 

dissatisfaction remains as many plans like notification of 

CTAG and CVTC members by the corporation, opening 

of information centre at different places and above all 

the dream of nagar raj bill to create Nagar Sabha in 

all the areas /wards are yet to be done. Hence, I look 

forward for your cooperation and continued support to 

be the model for other cities in building the stakes of 

the communities in the development process. 

- B.T. Bangera, Chairperson, CTAG 

Contents 

1. Basic Services for Urban Poor - 

Challenges and way forward ... 1 

2. Case Study of 

Meenambikai Nagar Plan ... 7 

3. Namma Ooru Malli ... 9 

4. Where Community 

Participation Matters ... 11 

5. Socio Economic Survey for 

52 Slums under BSUP ... 14 

6. Madurai Heritage Development Plan ... 16 

7. Showcasing Madurai ... 18 

8. Policy for Housing the tenants 

residing in Urban slums ... 21 

9. Rehabilitation of "Immayilum Nanmai 

Tharuvar Temple - Potramaraikulam" ... 22 

10. Institution Building for 

Community Empowerment ... 24 

11. Concept Note on City Information 

Development Centre ... 25 

12. Civic Intermediation in Urban Slums ... 28 

13. Action Plan July to November 2008 ... 31 

14. Madurai Corporation : 

JnNURM Sanctioned Projects 

as on 30.06.2008. ... 32 

15. Events at a Glance : 

Diary of Meetings and Events ... 34 

16. List of CTAG & CVTC Members ... 35 

CTAG 

Madurai Corporation 

Arignar Anna Maligai 

Tallakulam, Madurai. 

CTAG Secretariat 

18, Pillaiar Koil Street, S.S. Colony, 

Arasaradi, Madurai - 625 016. 

junurmctag@gmail.com

Basic Services for Urban Poor – 

Challenges and Way Forward 

- V.K. Padmavathi, Member, CTAG 

1.0 Introduction 

The Jawaharlal Nehru National 

Urban Renewal Mission (JnNURM) 

supports 63 cities (7 mega cities, 

28 metro cities and 28 capital cities 

and towns of historical /religious 

importance) across the country in 

terms of perspective plans called 

City Development Plans (CDPs) 

for specifying infrastructure gaps 

relating to water, sanitation, 

sewerage, drainage and roads on 

the one hand and deficiencies in 

housing and basic services on the 

other hand. The Basic Services 

for the Urban Poor (BSUP) 

seeks to provide a garland of 7 

entitlements/services – security 

of tenure, affordable housing, 

water, sanitation, health, 

education and social security – in 

low income settlements in the 63 

Mission Cities. 

An analysis of the existing 

situation focusing on 

demographic analysis and 

economic activity, land use 

pattern and issues, financial, 

urban infrastructure and urban 

services [like (a) affordable 

housing (b) security of tenure 

(c) water supply (d) sanitation 

(including sewerage, solid waste 

management and drainage) (e) 

health (f) education (g) social 

security, (h) transportation and 

transport parking spaces etc], 

physical and environmental 

aspects including heritage areas, 

water bodies etc is submitted 

for the Ministry through their 

respective State Level Nodal 

agencies for consideration of 

their proposal. 

The BSUP assures to make 

slum free city. In operational 

terms, it means that all the houses 

will have concrete roof and basic 

services to them will be ensured 

under the scheme. For those 

who are residing in non notified 

slums, resettlement possibilities 

will be worked out considering 

the access to livelihoods in 

collaboration with the Slum 

clearance board. 

2.0 Madurai Context 

The temple town of Madurai, 

situated on the bank of river 

Vaigai and 500 km southwest of 

Chennai, is the third largest city 

in Tamil Nadu and the district 

headquarters of Madurai District. 

Interaction of Corporation administration with the community 

3

Sl. 

No. 

Particulars 

It is a pilgrimage centre and 

gateway to south Tamil Nadu 

having the famous Meenakshi 

Temple at its core. The South 

bank of Vaigai River comprises 

the ‘Old Town’ where Madurai 

was nested and encircled around 

the Meenakshi Amman Temple 

and Tamil Sangam. 

No. of 

households 

1 Total number of new houses proposed 22766 

2 Number of work order issued cases 3522 

3 Stages of cases for which work order is issued 

a) Earth work 275 

b) Foundation 407 

c) Lintel level 267 

d) Roof laid 546 

e) Completed 342 

f) Work not yet started 1685 

4 

Number of cases to which work order can not 

be issued (%) 

9717 

(43%) 

a) Lack of land record 2436 

b) Odai Porambokku 117 

c) No valid document 5576 

d) Financial reasons 1639 

e) Others 49 

5 Amount received so far (Rupees in Lakhs) 5959 

6 Expenditure (Rupees in Lakhs) 603 

7 Number of cases loan tie up arranged through Bank 

a) Total number of applications submitted 1378 

b) Total number of cases loans sanctioned but 

not disbursed 

783 

c) Total number of cases loan disbursed 581 

d) Total number of cases rejected 14 

Source : Madurai Corporation as on 30.06.08 

slums is 25,090 accommodating 

a population of 125,633. The 

number of households in nonnotified 

144 slums is 35,167 and 

the population is 177, 508. A total 

numbers of new houses proposed 

under JnNURM is 22766 and 3522 

have been issued work order. 

3.0 Progress and 

Constraints 

involved in BSUP 

implementation 

At present works are going on 

at the slums listed in the phases 

I and II. Phase I has covered totally 

two zones, namely south and east. 

Phase II has covered totally four 

zones namely north, east, west 

and south.The progress as on 

30.06.08 furnished by corporation 

is given (Refer Above Table). 

The following inferences are 

drawn from the above table 

namely: 

a. 

b. 

c. 

d. 

e. 

f. 

15 % of the proposed 

houses are given work 

order. 

Of the working orders given 

9% houses are completed. 

Against the work order 

issued 47% of the 

households have not 

started the work. 

About 43 % of the 

households proposed are 

in objectionable areas, due 

to lack of proper document, 

rented households and 

lack of resources for own 

contribution. 

10 % is spent or shown as 

expenditure. 

42 % of the households 

who have submitted 

The city development plan 

for Madurai Corporation has 

been approved by Government 

of India Ministry of Urban 

Development, where in certain 

amount has been allocated for 

improvement to be notified and 

non-notified slums enumerated 

in 72 wards. The number of 

houses holds in 64 notified 

Total Area : 51.96 Sqkm 

Population : 10.54 Lakhs (2001) 

No of Wards : 72 

No. of Zones : 4 Zones 

No. of Slums : 208 (64 are notified) 

No. of Households : 60, 257 (approximately) 

Slum Population : 3,03,000 (approximately) 

4

applications are granted 

loan at differential interest. 

The above analysis highlights 

the need for coming out with 

innovative strategies to accelerate 

the pace of implementation. 

The progress under BSUP 

warrants action immediately 

to accelerate the pace of 

implementation to achieve the 

mid term targets set by the state 

and central government. As per 

the baseline and socio economic 

survey conducted for 52 slums 

in III phase a large percentage 

(61%) of residents of slums are 

tenants whose aspirations need 

to be looked into. 

4.0 Way Forward 

4.1. Land Tenure: 

People in slums reside in 

non objectionable areas and 

objectionable areas. People who 

reside in non objectionable areas 

have patta ( title of ownership) 

qualifying for the beneficiary 

under the project and people 

who live in porambokku in non 

objectionable area / notified 

Mayor along with the beneficiary 

WHERE COMMUNITY WISDOM MATTERS 

City Technical Advisory Group members and City Volunteer 

Technical Corps visited Meenabikai Nagar, Anuppanadi, 

Karumbalai slums and their observations are given below : 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

People construct houses on their own without giving to 

contractor. 

Each house is innovative and has different dimensions. 

Each house cost ranges based on their socio economic 

condition of the family. 

Householders have not given enough ventilation in the 

toilets. 

Each house cost was ranging from Rs, 2.0 lakhs to 4 lakhs. 

System of releasing the money through cheque from the 

corporation to the beneficiaries was good. 

Timely release of money from the corporation against the 

proof of construction was good. 

At places, banks have not released credit of Rs. 20,000/= at 

4 % p.a. 

Few members who are in RCC were given the privilege 

of construction adjacent to their houses where land is 

available. 

At places, we found that the title deed of the beneficiaries 

are either with slum clearance board or in father name 

where two sons / daughter claiming the title were there and 

accessibility of credit to go for construction was another 

deterrent factor. At few places, like Muthupatti where delay 

of funds disbursement to the beneficiaries gives room for 

unnecessary rumors. 

5

slums have tax receipts which give 

them also privilege to negotiate 

with the state administration 

to get pattas. Whereas people 

who are living in objectionable 

areas have no pattas but have 

tax receipts for their occupation 

of land which qualifies them for 

resettlement. There are slums 

which are adopted by Tamilnadu 

Slum Clearance Board and the 

beneficiaries are given Lease cum 

Sale agreement. 

The following features emerge 

on studying the characterization 

of land tenure in the slum areas 

namely 

• 

• 

• 

the number of houses in the 

slum is decided by number 

of families residing in the 

slum and not by landholding 

/ patta available with the 

individuals 

On mutual understanding, 

land is shared by the legal 

heirs without any registration 

and it becomes difficult to 

claim the benefit under the 

programme. 

Household plinth area 

• 

• 

• 

ranges from 100 sq.ft to 

2000 sq.ft resulting in huge 

costs for construction of 

large sized housed and put 

the householder in debt 

under higher interest rate. 

d) 50% of the dwellers in 

the slum who are living 

in rent don’t know their 

destination. On the light of 

above issues, the following 

recommendations are made 

to hasten the process of 

BSUP implementation. 

Eligibility norms for the 

potential households 

and ceiling for the plinth 

area to be decided by the 

corporation for ensuring the 

benefit s go to the urban 

poor.. 

Booklet namely “Frequently 

Asked Questions” in response 

to the questions raised by 

the clients can be brought 

out in local language to give 

clarity to the members living 

in slums. 

Grievance cell under each 

zone can be opened to give 

the guideline value and the 

• 

• 

process of land transfer to 

next generation through 

proper legal documents can 

be facilitated. 

Purchase of land / site 

access to livelihood can 

be made available for the 

rented households by the 

corporation at the nominal 

price. 

Land pooling and sharing 

arrangements can be 

encouraged in order to 

facilitate land development 

and improvement of 

basic amenities in slums. 

Release of Transferable 

Development Rights can 

be carefully considered 

for accelerating private 

investment in provision of 

shelter to the poor similar 

to Dharavai model of 

improvement. Community 

Based Organizations 

(CBOs), Non-Governmental 

Organizations (NGOs) and 

Self-Help Groups (SHGs) 

can also be involved in 

partnership with the Private 

Sector. 

Interaction of Collector alongwith Corporation administration on land tenure 

6

• 

Beneficiary-led housing 

development will be 

encouraged. Suitable 

percentage of land 

developed by the Public 

Sector can be provided 

at institutional rates 

to organizations like 

Cooperative Group Housing 

Societies, which provide 

housing to their members 

on a no-profit no-loss basis. 

4.2. Technical Support 

Potential Dwellers in the slum 

go by their own wisdom for 

construction and get cheated by 

the contractor. The contractors 

on the name of quality go for 

needless materials like steel 

rods for construction resulting 

in taxing the poor. Most of the 

houses need only roofing but the 

norms of the corporation do not 

permit them to have only roof. 

Members need to demolish their 

own building to qualify under 

the scheme. Every household / 

contractor purchases individually 

purchases the material resulting 

in huge costs. To address the 

issues listed above the following 


namely 

• 

• 

• 

• 

There is a need for policy 

change for considering 

the upgradation which 

will accelerate the pace of 

implementation. 

Design Freeze should 

be done by the qualified 

engineers to reduce the 

costs. 

Use of low cost technology 

recommended by Laurie 

Baker used in Kattada 

maiyam need to be 

explored for reduction in 

costs. Model houses using 

cost effective materials and 

alternate technologies using 

appropriate agencies can be 

constructed at district, state 

and at central level. 

Showing video films on 

construction of houses 

with alternate technologies 

can be arranged for the 

prospective beneficiaries 

• 

• 

• 

and on important aspects 

of the scheme including 

Do’s and Don’ts can also 

be arranged. This would go 

a long way in helping the 

potential beneficiaries to go 

by the norms. 

Households who reside in 

contiguous surrounding 

can come together for 

purchase of materials 

to reduce the costs. 

Encourage beneficiaries to 

form cooperative housing 

societies for pooling of 

resources. 

Ensuring the kitchen and 

latrine are constructed with 

proper ventilation need to 

be ensured by the technical 

team. 

Corporations can prepare 

detailed city maps on the 

basis of the GIS mapping 

through satellite data, 

aerial survey and ground 

verification. 

4.3. Financial Support 

As per the programme, the 

support for the construction is 

Rs. 64,400/= and the bank loan is 

Rs. 20,000/= (why ceiling on land 

loan?) at 4 % per annum is given 

to the potential beneficiary. It 

is assumed that 70% is given 

by the corporation under the 

programme and the 30% is to be 

contributed by the beneficiary 

through the bank loan. In reality, 

the cost of constructing 270 sq. ft 

ranges from 2.0 to 2.5 lakhs which 

enhances the burden on the urban 

poor on the name of housing. 

Moreover, construction work is 

stopped due to the reluctance of 

bankers in not opening the bank 

account / delay in getting the 

payment from the corporation 

due to unavoidable reasons. 

Potential beneficiaries are not 

7

clear about the budget / cost to 

be incurred for the construction. 

They consider the investment on 

housing as one time affair and 

resort to loans at higher interest 

rates from money lenders. On 

the light of the above issues the 

following recommendations 

are suggested for consideration 

namely. 

• 

• 

• 

8 

Similar to design freeze, 

budget is also to be freezed 

through proper financial 

counseling to avoid the 

members getting in to the 

trap of money lenders. 

Bridge fund should be 

facilitated by the corporation 

in anticipation of the support 

by the bankers to hasten the 

construction considering 

the inflation of costs of 

building materials. Amount 

earned as interest on BSUP 

funds in the banks can be 

used for this purpose by the 

corporation at least to the 

tune of assured bank loan. 

The draft National Housing 

and Habitat Policy, 2006 

lays emphasis on social 

harmony and on increasing 

institutional finance for 

housing for the poor and 

its accessibility at affordable 

rates. A new Centrally 

Sponsored Scheme to 

provide an interest subsidy 

of 5% per annum for a period 

of five years to commercial 

lenders for lending to 

Economic Weaker Section 

and Low Income Group 

segment of the urban areas 

have accordingly being 

proposed to be launched 

beginning 2007-08. Interest 

Subsidy is expected to 

leverage market funds to 

flow into housing for poor. 

The National Housing Board 

(NHB) and Housing & Urban 

• 

• 

• 

Development Corporation 

Ltd. (HUDCO) would be nodal 

agencies for disbursement 

of subsidies. 

Facilitate NGO’s / People 

organization who are running 

self help groups to provide 

loan against housing based 

on credit worthiness of the 

household. Promote Slum 

Development Association 

for leveraging the resources 

from the mainstream 

institutions. 

Percentage of land should 

be earmarked in every 

public / private housing 

project, appropriate special 

incentives can be developed 

by Urban Local Bodies for 

urban poor. 

Similar to Nabard, National 

Housing Bank (NHB) can act 

as a refinance institution 

and setting up of National 

Shelter Fund at the ministry 

level to provide subsidy 

support in terms of interest 

concession. 

4.4. Programme 

management 

Effective management of a 

programme is a prerequisite for 

sound implementation. There are 

considerable delays in opening 

the bank accounts, lack of 

orientation for the potential 

members, delay in release 

of money and to work out 

alternative propositions for 

speedy implementation. 

• 

Bankers need to be oriented 

by the corporation for 

speedy opening of bank 

accounts for the potential 

members and to increase 

the loan component for 

construction. 

• 

• 

• 

• 

• 

Considering the total cost 

incurred by the beneficiaries, 

banks need to come 

forward for the funding the 

total contribution of the 

beneficiary at 4 % p.a . 

Steering Committee to be 

organized at every zone 

along with the corporation 

officials, bankers and slum 

development association 

(potential members) 

fortnightly to hasten the 

process of implementation. 

Awareness camps need to be 

organized by the respective 

zones for motivating the 

beneficiaries and to clarify 

the doubts. 

Review of the programme 

can be done along with 

the district administration 

to break the operational 

constraints in land tenure. 

Special purpose vehicle 

involving all the stakeholders 

for BSUP can be considered 

for accelerating the pace of 

implementation. 

To conclude, it is felt that the 

detailed project report should list 

the only potential households 

after considering the constraint 

involved in the implementation 

of the programme and it is time 

to do mid course corrections for 

the programme to ensure the 

real poor get entitlements. In 

this context, there is an immense 

need to frame the enabling policy 

for ensuring the entitlements to 

tenants at state level involving 

all the stakeholders to break the 

barriers in the implementation 

process. At the ministry level, 

ceiling of land / plinth area, 

acceptance of house up gradation 

and eligibility norms for BSUP 

programme are to be redefined 

on the light of above realities at 

grassroots.

Case Study of 

Meenambikai Nagar Slum 

- Pradheep, CTAG Secretariat 

Meenambigai Nagar is one 

of the selected slums 

in the first phase for house upgradation. 

It has 536 households 

comprising a population of 2000 

to whom the basic amenities 

had to be provided. It falls in the 

ward No 64, which is situated in 

southern side of Madurai. It is 

surrounded by Kambar Street in 

the North, Meenabigai Nagar V 

street in the south, Jeevanagar 

I street in the East, Kovalan 

nagar in the west. Meenambigai 

Nagar is one of the slums where 

the Corporation officials and 

Ward Councillor have put their 

consistent effort to motivate 

the potential beneficiaries for 

constructing the houses. 

In Meenambigai Nagar all the 

households have either patta 

or lease cum sale agreement of 

Tamilnadu Slum Clearance Board 

to qualify as beneficiary. Most of 

the slum dwellers are masons and 

women are engaged in appalam 

(pappad) production. As per our 

Houses were constructed 

by themselves as most of 

the households are masons. 

Organisation of awareness 

campaign and the assurance 

of the administration to 

give basic services besides 

housing has influenced 

the members to go for 

construction. 

- Mr. Myilerinathan, 

Asst. Executive Engineer, 

Meenambikai Nagar 

Dr. Niranjan Mardi, CMA & D.J. 

Dhinakaran, Commissioner, 

Corporation of Madurai interacting 

with the household 

9

aseline survey there are 107 

beneficiaries in this slum. All 

the houses are constructed with 

all basic infrastructural facilities 

like Toilet, Drainage, etc. Ideally 

it can be called “SLUM FREE 

MEENABMBIKAI NAGAR” as now 

only RCC roofed rooms are there. 

Since most of slum dwellers are 

masons they involved themselves 

in the construction work resulting 

in saving the labour cost. During 

the period of construction the 

beneficiary households have to 

live in their relative houses or 

in rental houses Each and every 

house are built innovatively. The 

quality of construction material 

and mixtures are up to the mark. 

They utilize the plinth area in an 

effective manner by constructing 

the Toilets under the stair cases. 

Out of 128 new houses 

proposed, 43 new houses are 

completed and people have 

occupied. In general, the Plinth 

area ranges from 300sq ft to 2000 

square feet. As the plinth area 

increases, the cost of construction 

also increases. Corporation allots 

only Rs. 64,400/- for a house. But 

the beneficiary spends more than 

Rs. 2,25,000 for a house. The 

extra money sourced from money 

lenders at 5 to 10% interest rates. 

Out of 128 houses only 43 houses 

were linked with bank loan for Rs. 

20,000/- Few reflections based on 

the interactions are listed below: 

• 

• 

• 

Provision of ventilation 

provision is to be ensured 

in the Toilets. There is no 

ceiling fixed for plinth area 

for constructing the houses. 

There are problems identified 

in transferring the title deed 

from their parents’ name 

to their sons or daughters 

names. In the cases of more 

than one successors in a 

family sharing of asset will 

be a problem. 

About 11 beneficiaries could 

not build the houses because 

they are not able to generate 

• 

• 

• 

the fund for their portion. 

Some Beneficiaries could 

not raise the initial amount 

for building basement work 

Due to the introduction 

of the scheme the rented 

family holders are forced to 

vacate the houses. 

People who occupy the land 

under the Lease cum Sale 

agreement under TNSCB, 

face difficulties in settling the 

long pending interest dues 

and on getting the sale deed 

resulting in unwillingness to 

upgrade their house 

Due to delay in the 

installment payment some 

of the beneficiaries had 

stopped their house work. 

Meenambikai nagar success 

is due to the perseverance 

and motivation given by 

Sri M. Palanichamy, Councilor and 

Sri Mayilerinathan, Assistant. 

Executive Engineer to the slum 

dwellers. 

Frequent visits by Commissioner and Superintendent Engineer and 

officials have motivated the members for construction of houses. There is 

no political pressure from any end and timely disbursement of installment 

has accelerated the pace of construction. 

- M. Palanichamy, 

Councilor, Meenabikai Nagar. 

10

"Namma Ooru Malli" 

Madurai Malli is a special 

name given to the jasmine 

flower grown in the geographical 

area bounded by Aruppukkottai, 

Thirumangalam, Natham 

and Melur. People claim that 

the flowers in this area has 

specialised characters like deep 

fragrance, thick petals, lengthiest 

petiole and late opening of 

buds, though it does not have 

scientific validation. Tamil 

Nadu Agricultural University, 

Coimbatore on directions from 

Government of India is making 

efforts to patent it. Madurai Malli 

has colour of greenish white 

while harvesting and changes 

into creamy white after a certain 

hours. The special characters of 

Madurai Malli enable vendors 

to preserve the flower under 

freezing condition for two days 

which is impossible in other 

Jasmine flowers. 

‘Madurai Malli’ is garlanded 

in different ways. There are 

six styles of garlanding. Each 

style has its own unique style 

of garlanding. Slum women 

are doing this flower garlanding 

as a part time livelihood after 

Enhancing Livelihood for 

Flower Vendors 

“We always thought Madurai 

Malli was meant only for garland or as a string for wearing in 

our heads. The workshop has enlightened us that it can be 

made into different products for various purposes. I have learnt 

the trick of tying garland that could fetch Rs.100/= bucks a day. 

After tying flowers for three to four hours we can earn only 

Rs. 30 to Rs. 40/=. But a single garland can fetch me around 

Rs. 70/= to Rs. 100/=” 

- K.Devi, Member, Madurai Vattara Kalanjiam 

completion of their house 

works. The wages for garlanding 

is Rs. 4.60 for 1000 flowers. 

During peak seasons, labourer 

can earn Rs. 60/= per day. Men 

and women involve in flower 

vending business. Women sell 

the flowers on road sides, bus 

stands, temple corridors and 

other public places. Men sell 

the flowers by moving from 

place to place through cycles or 

run shops on road sides. 

Flower garlanding can be 

done by the women who have 

some basic knowledge in flower 

weaving. Flower weaving is a 

skill acquired through training. 

Normally in Madurai city all 

women have the knowledge 

on flower weaving. In that case 

learning many types of flower 

garlanding and designing is 

not a big task to them. Now 

there is a demand for eminent 

flower designers. But there 

are so many constraints to the 

slum women in following up 

the acquired skill like Work 

load, Lack of finance for initial 

investment for this business 

and getting cooperation by the 

family members. 

A workshop was organised 

jointly by Indian National Trust 

for Art and Cultural Heritage 

(INTACH), Thiagarajar College 

and DHAN Foundation to 

empower the flower vendors 

by way of teaching them new 

and innovative methods of 

tying, preserving, packing and 

marketing “malli poo” in myriad 

forms. The key note address was 

given by Mr S.S. Jawahar I.A.S., 

District Collector, Madurai. 

By acquiring the skill in 

flower designing a slum woman 

can increase her family annual 

income from Rs. 8,000/- to Rs. 

11

9,00,000/-. Various types of 

designs and utilities are Nela 

Malai (doorway adornment), 

Thoranam, Bed spread, Kreedam 

(Crown), Rakkodi, Muthangi, 

Mogra (Round ornament 

on crown), Kunjam (Tassel), 

Oddyanam (waist belt), Jadai 

Patti, Poo Pavadai, Necklace, 

Haram (Long Necklace), Floral 

net, Flower carpet, Flower 

Rangoli, and Mini souvenir. 

In order to enhance practicing 

of acquired skill by slum women 

and the heritage value of 

Madurai Malli the following 

activities are advocated for 

popularising the Madurai Malli 

and its by-products. 

a. 

12 

Formation of Primary 

Producer Groups among 

e. 

f. 

g. 

• 

• 

• 

• 

Uruttkattu 

farmers 

b. Formation of 

Primary Marketing 

Groups among 

traders 

c. F a c i l i t a t i n g 

Market linkage 

between the above 

two groups 

d. Skill building 

to the needy slum 

women 

Facilitating profitable 

alternative livelihoods for 

the poor 

Training Centres for 

diploma course on the 

pattern of ITI for training 

the personnel in floriculture 

should be set up. 

Production 

Interesting Facts 

and 

National flower of 

Pakistan and Indonesia 

Life of jasmine garden is 

six years. 

Said to have fighting 

properties against cancer 

and curing properties for 

headaches, insomnia and 

soothens sensitive skin 

Consumed in tea form 

in parts of Asia and in 

Feng Shui, a symbol of 

friendship and good gift 

• 

• 

• 

• 

h. 

Unique Madurai Malli 

Superior Fragrance 

Thickest Petals 

Stay fresh for more than 

24 hours. 

Buds bloom after 6 p.m. 

against other varieties 

that bloom before 5 p.m. 

Kathambam 

popularisation of the 

products like Malli Sherbet, 

Malli Bouquet, Malli Scent 

Sachet, etc., 

Influence Governments to 

facilitate an environment 

for exporting and also 

ensuring minimum prices 

for the farmers. 

Above all, the industry is 

facing the threat owing to 

escalating cost of land that 

forces farmers to quit jasmine 

cultivation. Also the vendors are 

seldom are able to demand a 

higher price as they have to sell 

the perishable commodity in 

the absence of proper storage 

facilities. Hence, a committee 

of members need to be drawn 

from government and industry 

to evolve remedial measures. 

Living and working conditions 

of the people and industry 

also need to be enhanced with 

bank credits and insurance 

facilities.

Where Community 

Participation Matters 

A.Ramesh, CVTC Member 

JnNURM requires State 

Governments to enact 

a Community Participation 

Law, to enable constitution of 

Area Sabhas within municipal 

wards. States are also required 

to enact a Public Disclosure Law 

mandating ULBs to periodically 

disclose information to its 

citizens. It is being increasingly 

realized that communities have 

little capacity to participate. 

Providing the platform for 

participation as described above 

is only one aspect of enabling 

community participation; 

the other is to ensure that 

communities have capacity to 

fully utilize these spaces, and 

participate meaningfully. This 

issue is even more acute with 

respect to the urban poor. 

To address this issue, a 

Community Participation Fund 

(CPF) has been established 

by the Ministry of Urban 

Development and Ministry of 

Housing and Urban Poverty 

Alleviation. The primary 

objective of this Fund is to create 

capacities in the communities 

to effectively engage and 

contribute in improving 

their living environment. It is 

meant to catalyze the process 

of community participation 

by allowing communities to 

experience the process of 

collective decision-making 

for themselves, and taking 

full accountability for these 

decisions on themselves. 

In response to the call 

of the Ministry, Community 

Based Organisations at 

Madurai have submitted the 

following proposals for the 

Madurai corporation under 

Community Participation Fund 

for consideration of State Level 

Nodal Agency and Government 

of India. 

• 

• 

• 

Enhancing livelihood for 

urban poor women in 

Ponemeni Harijan Colony 

Behavioral change 

communication on Safe 

Water 

Livelihood and Social 

Security for Street Vendors 

All the proposals have the 

total outlay restricted to Rs. 9.5 

lakhs and the balance is sought 

from the community or the 

Deputy Commissioner of Madurai receiving proposals from people organisation 

13

implementing agency. The gist 

of the proposals submitted is 

given here under. 

1. Enhancing 

Livelihood for 

Urban Poor Women in 

Ponmeni Harijan Colony 

Among the urban poor, 

poor women vendors are in 

very critical situation that, 

moneylenders and contractors 

exploit them. They suffer due 

to insecurity of jobs, improper 

housing and are subject to 

pressures from formal and 

informal set ups due to their 

non recognition of services. 

According to study conducted 

during 1999-2000 (NASVI) 

National Association of Street 

Vendors of India, about 17 to 25 

lakhs of street vendors work for 

10 hours a day under grueling 

condition for wage earning 

from R.40 to Rs.80./= 

Vendors always have hand 

to mouth existence. They 

live in constant fear of being 

forcibly moved or that they 

would have to pay some one 

14 

in order to remain undisturbed. 

So whenever eviction drives 

are conducted, their wares are 

confiscated or even destroyed. 

Some of them offer rent (bribe) 

to authorities for warding off 

eviction drives or fore warning 

of the impending drives. It is 

estimated that so called rents 

collected from vendors is very 

high in urban area. 

Hence, Pothigai Vattara 

Kalanjiam, a Community Based 

Organisation wants to organize 

the unorganized vendor 

community by forming Primary 

vending group and vendors 

association to create access to 

legal entities (banks, municipal 

authorities, state government). 

This association is people owned 

and people controlled. Primary 

Vendors Group (PVG) would be 

formed from organized poor 

and representatives of the 

Primary Vendor Groups will 

constitute vendors Association. 

Through Vendors Association 

Primary Vending Groups can get 

Regulated online credit facility 

& Insurance services. 

So organizing vendors 

under an association enables 

them to get basic amenities, 

economic improvement, better 

living environment and access 

to mainstream institutional 

services due to them. 

The net outcome of the 

project will be unorganized 

women are organized into self 

help groups, of which primary 

vendors groups will be formed 

who will have access to the 

mainstream institution like 

commercial banks for credit, 

access government institutions 

for recognition of their entity and 

formalize with license which will 

reduce the harassment of the 

formal and informal elements. 

Since the amount drained is 

higher in the form of interest, 

the credit access will reduce 

the drainage and also vendors 

association formed will facilitate 

daily credit at lesser rate of 

interest. To enhance their 

earnings, mobile shops (70) and 

capacity building of the skills 

will be earnestly strived for.

2. Behavioral change 

communication on Safe 

Water 

Access to safe drinking water is 

the need of all the communities. 

The people are getting access 

to drinking water from the 

pipelines and overhead tanks 

on alternate days. Unhygienic 

conditions prevailing in the 

slum contaminates the safe 

quality of water. The following 

are the some of the water 

related diseases, which are 

most prevalent in Karumbalai 

slum, are Scabies, Trachoma, 

conjunctivitis, Amoebiasis, 

Giardiasis, Gunia worm 

infection and Schistosomiasis. 

The consequences of it result 

to high drainage of income 

through medical expenditure 

and ill health. 

Any programme or project 

will sustain when it owned 

by the community as part of 

their life. Our Government 

has been implementing many 

programmes and projects 

for providing safe water 

and adequate infrastructure 

facilities to get sufficient water: 

which are not utilized by the 

community properly due to 

lack of awareness to them. This 

project has planned to educate 

the community for curative 

measures and to prevent from 

water related issues (Diseases, 

scarcity etc); to promote people 

owned governing structure. 

Karumbalai is a notified 

slum, which is located under 

ward Number 11 of Madurai 

Corporation. It located in the 

middle of the Madurai city. The 

project has been designed by 

Karumbalai Vattara Kalanjiam to 

basically change the behavior of 

the community regarding water 

related practices. Basically the 

activities of the project have 

been designed to provide 

education to the slum dwellers 

regarding safe water. Major 

emphasis has been given to 

change the knowledge, attitude 

and water related practices 

of the slum dwellers from 

unhygienic to hygienic. The 

project will be implemented 

basically on curative, preventive 

and promotive mode. It will 

reduce the prevalence of water 

prone diseases and health care 

expenditure of the families of 

Karumbalai slum. 

3. Livelihood and Social 

Security for Street 

Vendors 

Urban poverty emerges as 

a more complex phenomenon 

than rural poverty, to overcome; 

it must be met with a holistic 

approach and innovative 

interventions. Mostly people 

are migrants and unskilled 

labourers working in the 

informal sector. They are getting 

very low fluctuating income 

and also they don’t have an 

access to formal credit. Most 

of the migrants are involved in 

vending activities. 

Vendors start with minimum 

capital their retail vending 

activity in the street or public 

places to earn Rs.40-50/- . They 

have no space to sell their 

goods; 20-30% of the incomes 

went for giving bribe to police 

and other contractors to get 

spaces in the market. Their 

hard earned income goes 

for paying interest to money 

lenders and rental charges. 

They face lot of problems to 

sustain their activity on a daily 

basis. National policy on Urban 

Street Vendors evolved by the 

Ministry of Housing & Urban 

Poverty alleviation stressed the 

need to provide and promote 

a supportive environment 

for earning livelihoods to 

the vast mass of urban street 

vendors while ensuring that 

such activity does not lead to 

overcrowding and unsanitary 

conditions in public spaces and 

streets. Mission cities under 

JNNURM have given legitimate 

space to build the capacities of 

communities and to effectively 

engage and contribute for 

their living environment under 

Community Participation Fund. 

To address the issue, the 

project is proposed by Gangai 

Vattara Kalanjiam with the 

support of nodal agency Pudhur 

Vattara Kalanjiam in Ramavarma 

Nagar Slum at Madurai 

Corporation in Ward No. 5. The 

age of the slum is more than 50 

years and the total population 

is more than 5000.Out of 5000, 

one thousand five hundred 

populations depend on vending 

activity. GVK is an implementing 

agency and initiates the activity 

with the help of nodal agency 

Through this project the 

vendors will be provided 

supportive environment and 

legitimate space in the society. 

Unorganized vendors will be 

organized as a Primary marketing 

Group (PMG). About 20 PMG 

will be promoted benefiting 

1500 family members. Vendors 

will leverage resources from 

mainstream institution with 

their own savings. This will 

arrest the leakage of interest 

and enhance their daily income. 

Besides mobile shops, rural and 

urban tie ups, social security 

would be provided for their life 

and health issues. This project 

learning’s will be available to 

other organization and it will 

help us to expand this activity 

into other slums and also for 

other livelihood. 

15

Socio Economic Survey for 

52 slums under BSUP 

1.0 Background 

The City Development Plan 

(CDP) for Madurai Corporation 

has been approved by Govt of 

India, under Jawaharlal Nehru 

National Urban Renewal Mission 

(JnNURM). Ministry expects to 

have socio Economic Survey done 

for all the projects submitted 

under Basic Services for Urban 

Poor( BSUP). There are 208 slums 

in Madurai Corporation. They are 

grouped into four Phases namely 

21, 58, 52 and 77 slums under 

Phases I, II, III and IV respectively. 

The first three phases are 

sanctioned with the total outlay 

for Rs. 307.16 crores. 

2.0 Socio Economic 

Survey 

On Corporation’s request, 

DHAN Foundation carried out 

the baseline survey for the first 

and second phases. Corporation 

requested to carry out the Socio- 

Economic Survey for the slums 

16 

sanctioned under III phase. The 

main objectives of the study are: 

• 

• 

• 

To identify the socio 

economic conditions of 

households residing in 52 

slums. 

To identify the potentiality 

of housing allotment under 

Basic Services for Urban 

Poor. 

To suggest way forward for 

the issues. 

Out of 52 slums, 32 are 

classified as non-objectionable 

and remaining are under 

objectionable area. As per 

Detailed Project Report (DPR) 

the number of new houses to 

be constructed is 12, 608 where 

as it is 12,498 as per our survey 

findings. The major findings of 

the survey are given below: 

2.1 Socio Economic 

Conditions 

a. 

Male population (56%) is 

b. 

c. 

d. 

e. 

f. 

higher than the female 

population (43%). 

40 percentages of the 

slum parents are illiterate 

Comparing with girls, 

higher amount of boys 

drop their education at all 

education levels except for 

primary level. 

More than 50 per cent of 

the families are living less 

than 10 years in one house 

or the slum. This is because 

68.5% families are living in 

rental houses. 

77 per cent slum family 

heads are wage labourers. 

The wage labourers 

are classified under 89 

categories based on their 

specialization of job. 53 per 

cent of slum family heads 

have no specialized jobs. 

They will go for any job 

based on the availability 

and demand. 70 per cent 

of the families are single 

person earning families. 

From the collected data it is 

observed that only 1.9 per 

cent families are rearing 

livestock in 52 slums. 

Huge expenditure is 

incurred on medical 

expenses, social obligations 

reflecting their quality of 

life. 

On analyzing the caste 

classification, it is 

observed that backward 

community occupies 

the major proportion of 

the slum population i.e. 

79 percentage.

g. 

h. 

There are 12 per cent 

families are women 

headed families and 4 

per cent family heads are 

handicaps. There are 12 

per cent families are run by 

single persons. 

All the slum families are 

having access to safe 

drinking water through 

house pipe, common 

pipes and lorries. Despite 

the presence of proper 

community toilets people 

used to excrete in open 

space also. . It is clearly 

known that 60 per cent of 

slum families are having 

the inbuilt toilet facility 

and 12 per cent families are 

utilizing community toilet 

facility. 

2.2. Potential for Housing 

There are 8147 families 

residing in non-objectionable 

and 4351 in objectionable slums. 

Out of 12,498 potential houses for 

construction 11574 houses are 

tiled and 924 houses are thatched. 

There are 3524 (28%) houses 

owned by the beneficiaries. Out 

of 3524 own houses, only 1312 

houses (11%) are in Patta lands of 

non-objectionable slums. There 

are 4351 families residing in 

objectionable slums. 

The households residing in 

objectionable areas and the 

rented or leased houses feel 

insecure that whether they will 

be allotted with a new house 

in the same area or they will be 

settled in new areas having no 

accessibility to their livelihoods. 

The people with ‘No identity’ also 

be verified with the records that 

whether they are eligible to issue 

Patta or qualify for resettlement. 

59 per cent of slum dwellers 

are not showing interest in 

new construction as well as in 

resettlement. The house owners 

are of outsiders, too poor to invest 

and owners of multi houses. For 

the tenants, they are not ready 

to give higher rents for the new 

houses, shift the families to new 

places and have no confidence 

in getting the same house after 

reconstruction. 

3.0 Way Forward 

3.1. On Socio Economic 

conditions: 

Vocational training centres 

are to be established in slums 

to impart special trainings in 

specific trades to wage labourer. 

This will open many avenues 

of employment to them. Trade 

specific producer and marketing 

groups are to be promoted. 

Captive market linkage is to be 

explored for the products of slum 

dwellers. 

Supports are to be yielded 

to organise the slum women 

under Self Help Groups. This 

will enhance the saving habit 

and provide opportunities to 

get credit facilities. Awareness 

on social security measures such 

as medi-claim and accident 

insurance should be created 

among slum families who are 

vulnerable for accidental deaths 

and limbs’ lost. They should be 

facilitated to adopt the social 

security measures 

Families who have no ration 

cards will also to be offered with 

new houses if their statements 

on staying are found as true. A 

study to be undertaken to know 

the reasons for less females. 

Access to Primary and 

Secondary schools should be 

facilitated and counselling needs 

to be done. A special team should 

be organised to identify the 

reasons for school drop out. 

User Groups for maintaining 

the community toilets, common 

pipes and other sanitation are 

to be promoted. Basic Services 

like sewage and sewerage infra 

structures are to be ensured in 

all slums. Effective solid waste 

management system is to be 

implemented. 

3.2. On Housing 

Resettlement for rented 

households is to be done as 

the majority of the dwellers 

come under this category due 

to migration. Strict regulation 

through bio metric process is to 

be done for ensuring one house 

for one beneficiary. 

Roofing possibilities for the 

patta householders need to 

be considered as upgradation 

considering the inflation costs 

of the building materials failing 

dwellers will result to debt trap. 

Financial counselling needs 

to be done ( budget / design) 

towards the cost incurred for the 

construction facilitate access to 

finance and also on the area to be 

constructed. Time frame should be 

adhered for credit disbursement 

to avoid unnecessary delays in 

construction. 

3.3. Slum Development 

Association 

A Slum Development 

Association is to be promoted for 

each slum for collective action 

to resolve the issues in housing. 

A Special Purpose Vehicle is to 

be launched especially for BSUP 

under JNNURM for smooth 

implementation. A helpline 

is to be created in Madurai 

Corporation to clear the doubts 

and resolve the problems among 

the beneficiaries when ever they 

arise. 

17

Madurai Heritage Development Plan 

Ar. G.Balajee, Thiagarajar College of Engineering. 

H e r i t a g e 

Development Plan 

takes an integrated 

approach with 

multidisciplinary 

nature with 

development of 

Heritage as key 

focus. This approach 

is fruitful to address 

the complexity 

and plurality of 

Madurai in terms of 

cultural, historical, 

a r c h i t e c t u r a l , 

e n v i r o n m e n t a l , 

economic and 

ethical implications. 

Heritage is not 

contradictory to 

development, but 

development with 

proper information 

base and considering 

the local dynamics 

of the place. Thus integrated 

approach means integrating 

heri-tage development with the 

existing planning process and 

with the local community. It 

incorporates both the principles 

of protection and management 

of historical and cultural 

heritage within all decision 

making processes, especially in 

the context of urban planning. 

This Plan is prepared as a 

part/addendum for the City 

Development Plan (already 

submitted) by Madurai 

Corporation. Earlier prepared 

City development Plan lacked 

information, issues and 

suggestions on the Heritage 

aspects of Madurai declared as 

Heritage city under JnNURM 

scheme. The proposed plan 

1 

is limited within the Heritage 

areas in the region within the 

administrative limits. The Study 

Area includes the following: 

• 

• 

• 

• 

• 

• 

Immediate actions 

The Historic city (within 

the Four outer concentric 

streets of Madurai) 

The region around the river 

Vaigai and other water 

channels in the city 

The archeological Tanks 

and other water bodies 

within the LPA boundary. 

The areas around the 

Natural mountains within 

the LPA region 

The festival procession 

routes within the LPA 

limits 

The isolated regions 

Establishing a Heritage cell, listing and grading of Heritage 

properties 

2 Conservation of Heritage items within the city 

3 

4 

Setting up Interpretation center, information center in the 

city 

Shifting of whole sale markets, hardware shops, electronic 

shops etc 

5 Reducing traffic mobilization in the heritage zones 

6 

7 

8 

Environmental Up gradation in proposed Zone A, and 

Zone B with security measures in the city for the tourist. 

Improvements in the Heritage precincts and water bodies 

in the heritage zones. 

Creating Heritage Awareness programmes in schools, 

colleges and in public. Providing heritage center in 

Madurai 

9 Creating Heritage based employment for the poor people 

18

Short term actions 

1 listing and grading of Heritage properties in ULB area 

2 Providing tourist infrastructures in the Heritage spots 

3 

4 

5 

Improvements in the Heritage precincts and water bodies 

in the heritage zones in LPA area 

Setting up of Information/ library centers and training 

centers for Heritage. 

Setting up a center for contemporary heritage related 

activities. 

Long term actions 

1 Providing pilgrim hubs in ULB area 

2 

3 

Providing heritage centers and information centers in ULB 

areas 

Providing adequate parking space in Zone A and Zone B 

and other zones ULB area 

like the Summer Palace 

(Tallakulam), Puttu thoppu 

and other identifies zones 

within the city limits. 

From the significance 

formulated through the primary 

and secondary sources, the 

phasing and the projects are 

identified. The cost given in the 

Plan is indicative. The projects 

are prioritized according to the 

need. The Plan recommends 

certain support projects to 

facilitate the restoration and 

rehabilitation process. 

The implementing agencies 

are identified to execute 

the projects. The Plan also 

recommends in integrating 

the heritage projects with 

other parallel DPR’s (Detail 

Project Report) in the city. 

For Example, the BSUP (Basic 

Services for the Urban Poor) 

surveys clearly indicates the 

status of unemployment in 

the city. The heritage projects 

derived form the Plan creates 

sufficient space to provide 

employment opportunities, 

thus utilizing Heritage as a lever 

for development. Similarly the 

revival of water channels and 

Vaigai river front development 

can use the plan to integrate its 

design base for executing the 

projects. 

The HDP recommends the 

actions of immediate, short term 

and medium actions which are 

listed below: 

The Heritage Development 

Plan proposes Rs 383.25 crores 

as the total outlay. The plan 

has four components namely 

conservation plan, resource 

plan, open space networking 

and Pedestrianisation divided 

into three phases. The plan 

incorporates the views of the 

experts in the field of literature, 

academia and general public. As 

part of the plan consultations, 

seminar and workshops, 

awareness camps, Run for 

water bodies were organized. 

The plan is getting vetted from 

City Technical Advisory Group, 

Corporation Officials, INTACH 

Madurai and Heritage Cell and 

will be submitted in the II week 

of August 2008 for consideration 

of SLNA and Ministry of Urban 

Development. 

19

Showcasing Madurai 

National 

Technical 

Advisory Group (NTAG) 

under the auspices of Jawaharlal 

Nehru National Urban Renewal 

Mission organized a Foundation 

Programme for potential 

Anchor Non Governmental 

Organizations (NGOs) to build 

City Volunteer Technical Corps 

(CVTC) and City Technical 

Advisory Group (CTAG) in 

Mission cities on May 2nd, 2008 

in Delhi. The CVTC and CTAG are 

to be formed in all the JnNURM 

cities to harness and channelize 

the civic minded and talented 

professionals to make the City 

Development Plan a “Living 

Document” as well as to ensure 

greater people’s participation 

in the Mission to make it more 

transparent & to enhance 

citizen’s sense of ownership for 

their cities. 

In his welcome address 

Mr. Ramesh Ramanathan 

(Chairperson, National TAG) 

said that since cities are the real 

theatre of action with regards 

to JnNURM so it was seen as a 

logical move to push for that 

kind of a structure at the city 

level with a formal mandate 

from which it can engage with 

the city government & possibly 

with the state government 

if necessary. As per the TAG 

this model has the capacity & 

potential for scaling up & go 

across the Mission cities. At the 

same time there is an urgency 

to put up these structures in 

place because the Mission is 

like a machine powering ahead 

& doesn’t have the luxury of 

stopping or waiting for anyone/ 

anything. 

While the Mission Director- 

(Basic Services to Urban Poor) 

Dr.P.K. Mohanty felt that the role 

of the civil society in the Mission 

is multi-faceted ranging from 

organizing the community to 

ensuring that the CDPs are propoor 

& infrastructure projects 

sanctioned by submission 

on Urban Infrastructure & 

Governance are integrated 

Foundation Programme for potential Anchor NGOs to build CVTC & CTAG 

with the slums as well as 

organizing national campaign 

on land tenure & ensuring 

proper utilization of the funds 

sanctioned under the Mission. 

The Mission Director 

for (Urban Infrastructure & 

Governance) Mr. P.K.Srivastava 

felt that Civil Society has a 

big task of eansuring that the 

revised CDPs truly capture the 

spirit of the city & its citizen’s 

needs. 

National TAG has been 

instrumental in the setting 

up of 3(Three) CTAGs i.e. (in 

Madurai, Coimbatore & Jaipur) 

& 2(Two) CVTCs i.e. (in Madurai 

& Coimbatore) so far. Alongside 

there are 6 State level TAGs in 

(Maharashtra, Gujarat, West 

Bengal, Andhra, Rajasthan & 

Delhi respectively. 

Mr. Vasimalai presented the 

concept & operational details 

about CTAG & CVTC which he 

said are advisory bodies purely 

fuelled by passion & sheer 

volunteerism. But he clearly 

20

said that the model presented 

by him is not a blue print 

since the process of setting up 

these bodies as well as their 

functioning will be profoundly 

impacted by the city specific 

dynamics & thus it is very difficult 

for him to be prescriptive. 

Talking about the role of the 

Anchor NGO he said that it 

has to facilitate cross learning 

among the stakeholders & cities 

as well as interactions with the 

Corporaters & the Municipal 

Corporation. 

Madurai city was the first to 

setup a CTAG & CVTC, sharing 

their respective experiences 

in that context Madurai CTAG 

chairperson, their Municipal 

Commissioner & the anchor 

NGO i.e. DHAN Foundation 

spoke about the whole process 

with its ups& downs .It was 

an enriching exercise for all 

Formation of 

CTAG & CVTC 

– Madurai 

experience 

Mr. B.T. Bangera 

Chairperson, CTAG, 

Madurai 

Chairperson CTAG, Madurai 

Mr.B.T.Bangera was the first 

one to share his thoughts; 

he began by saying that the 

most crucial thing in the 

beginning was the integration 

of the CTAG & CVTC with the 

Corporation. In the starting 

he said CTAG & the Anchor 

NGO were very cautious 

because these groups were a 

third force coming in with the 

elected representatives & the 

Municipal Corporation already 

in place. But the meeting with 

Councilors, mayor, deputy 

mayor was an icebreaking 

event since they showed a 

lot of openness & excitement 

towards the CTAG & CVTC. 

So much so that they asked 

them to come and attend the 

council meeting & address 

their members as well. 

Madurai Municipal Corporation’s views 

Mr. D.J. Dinakaran 

Municipal Commissioner, 

Madurai Corporation, 

Tamilnadu 

Mr. Dinakaran, Municipal 

Commissioner, Madurai 

shared that the Mayor 

& deputy Mayor have 

attended the complete two 

day programme organized 

for the CTAG which was a 

sign of their openness with 

regards to this group & its work. He added that the stakeholders’ 

meeting is happening regularly & the involvement of public in 

the Mission is being given due weight age in his Corporation. 

Appreciating all the CTAG members all of them are rich in 

knowledge and very helpful in the activities of the corporation 

& similarly the corporation is willing to deliver its services to the 

public in consultation with the CTAG members. 

He said that under BSUP 

component Corporation 

wanted to build one 

thousand houses for the poor 

but there were roadblocks 

in terms of getting people’s 

contribution, the Anchor 

NGO DHAN Foundation was 

very helpful in changing the 

people’s mindset and make 

them contribute for their 

own homes. 

Similarly he said that the 

first 3 projects sanctioned 

under the recently launched 

Community Participation 

Fund under JnNURM were 

from Madurai City. He also 

briefly talked about the 

21

Madurai Municipal Corporation’s views ... 

Madurai Marathon 2008, organized by the Corporation with the support of the CTAG, CVTC & 

the Anchor NGO for the revival & preservation of the heritage water bodies in the city. He said 

he is sure that this event which saw a massive gathering of people from all walks of life will go a 

long way in the changing the mindset of the city populace towards revival of the precious water 

bodies in the near future. He too like Mr.Bangera was hopeful of setting up city resource centres 

across the city for fulfilling the citizen’s information needs. 

He said that Madurai’s CDP was finalized before the CTAG& CVTC came into existence, a lot 

of environmental and heritage aspects in relation to the projects were overlooked at that time. 

TAG he said has been instrumental in getting that CDP revised which the corporation would be 

sending to the Government of India very soon. 

Role of the Anchor NGO 

Mr. A. Madhan Kumar 

DHAN Foundation 

Mr. Madhan Kumar from DHAN Foundation 

talked about the role of Anchor NGO in this 

whole process. He started out by saying that 

“Patience & Perseverance” is the key for the 

Anchor NGO to make this work. 

Mr. Madhan Kumar also acknowledged 

the role that the CVTC members have been 

playing in their individual capacities & as a 

group, he informed the participants that they 

have made a short documentary on solid 

waste management wherein they have shown 

the corporation making a commitment to the 

people that by December 2009 the problem 

of Solid waste 

management will 

be resolved for 

the entire city. 

He too like the 

other members 

from Madurai 

stressed on 

the need for a 

formal notification for Madurai & Coimbatore 

CTAG & CVTC, he said that at the moment the 

commissioner is very cooperative but with the 

change of guard in future these bodies should 

have a formally recognized standing to avoid 

unnecessary problems. 

participants to learn from 

Madurai’s experiences be it their 

stupendous effort to organize 

the Madurai Marathon for revival 

of the heritage water bodies, the 

revision of the DPRs to ensure 

that projects are not undertaken 

at the cost of the city’s heritage 

or their innovative concept of a 

city resource centre. 

The day long workshop 

concluded with some very fruitful 

insights whereby everyone 

22 

agreed that depending upon 

the size of the city there are 

bound to be multiple platforms 

available for engagement at the 

city level, with CTAG & CVTC 

being one of them. 

It is important to keep in mind 

that JnNURM is a big initiative 

which gives a formal platform 

to engage & there is potential 

for long term evolution in this. 

JnNURM is moving ahead with 

each passing day, now civil 

society has a choice to make 

either they engage or they 

don’t. Even if they don’t, this 

thing will carry on & the gaps 

in it will become even more 

glaring. Ideally this should be a 

demand driven process but that 

kind of luxury is not available 

since the Mission is time bound. 

The details of these bodies can 

be left open ended but its wise 

to at least have a CTAG & CVTC 

in place.

Policy for Housing the tenants 

residing in Urban Slums 

Urban Poverty Cell, CVTC. 

Background 

The Ministry of Urban 

Development and Poverty 

Alleviation through its National 

Housing and Habitat Policy wants 

to ensure that each household 

has a roof over its head by 2010. 

The National Urban Housing and 

Habitat Policy, 2007 seeks to 

use the perspective of Regional 

Planning as brought out in the 

74th Amendment Act in terms 

of preparation of District Plans 

by District Planning Committees 

(DPCs) and Metropolitan Plans 

by Metropolitan Planning 

Committees (MPCs) as a vital 

determinant of systematic 

urban planning. The Housing 

and Urban poverty alleviation 

ministry’s has created safety 

net for poor through its various 

development programmes like 

National Slum Development 

Programme (NSDP), Swarna 

Jayanti Shahari Rozgar Yojana 

(SJSRY), Valmiki Ambedkar Awas 

Yojana (VAMBAY)and through 

Basic Services for the Urban 

Poor (BSUP) in Mission cities 

under JNNURM and Integrated 

Housing and Slum Improvement 

Programme (IHSP) for other 

urban areas combining with 

environmental improvement. 

Under BSUP of JNNURM 

subsidy for housing is channelized 

to eligible candidates and the 

precondition for eligibility is 

that the slum dweller is a patta 

holder or assurance of grant of 

patta to the slum dweller by 

the Government (state). This 

approach is to ensure 

that the slum dweller 

who hitherto an 

encroacher making him 

an illegal occupant to 

become lawful owner of 

the land and the houses 

constructed under the 

subsidy programme are 

not demolished. People 

who have constructed 

the houses are listed 

as house owners and under the 

schemes in vogue are granted the 

ownership either through grant of 

patta or through lease cum sale as 

in the case of Madras / Tamilnadu 

Urban Development Projects 

implemented by Tamilnadu Slum 

Clearance Board. 

However, the data collected 

recently in slums covered under 

BSUP in Madurai has revealed 

that 50 % of the slum dwellers are 

tenants paying rent to the owner 

of the structure and are left out 

of housing programme because 

of the objections of the owners, 

political interference or inability 

of the bureaucracy to deal with 

such problems. They are unequal 

amongst equals inhabiting the 

low income settlements though 

they are the people who truly 

deserve the housing facilities. 

Hence the urgent need is that 

these tenants also have access to 

ownership housing on par with 

patta holders. Non availability 

of land is cited as one of the 

reasons for not being able to 

accommodate more number of 

households and lack sufficient 

resources are some the reasons 

cited by the implementing 

agencies. This stale mate has 

existed for a long time and 

perhaps it is time that issue of 

housing becomes equitable 

rather than getting monopolized 

by a few and definitive strategies 

have to be evolved. 

There have been good 

examples from where lessons 

can be drawn upon – be it sites 

and services programme under 

Madras Urban development 

project, Slum redevelopment 

programme in Mumbai or 

resettlement scheme in Delhi. 

Though the success of these 

being questioned, it is worth 

revisiting to draw lessons from 

the past and evolve appropriate 

strategies for the future of urban 

poor housing. 

In this context, every 

state along with corporation 

commissioners / stakeholders 

have to examine policy constraints 

in extending housing facilities to 

all urban poor in particular who 

are tenants residing in slums. 

Evolve appropriate strategies 

to build in to the existing policy 

frame work and assure affordable 

housing for tenants in slums 

under Basic Services for Urban 

Poor Programme. 

23

Rehabilitation of “Immayilum Nanmai 

Tharuvar temple-Potramaraikulam” 

R. Devika, CURE, DHAN Foundation 

Background 

Man made tank (in the form 

of stepped well) was constructed 

in the year 1200 AD during the 

period of post Pandiyas. The 

tank is used for the religious 

purpose. The tank is now owned 

by Sivaganagai Samastanam. 

To conserve tank is our duty to 

nourish our younger generation. 

The tank’s capacity is as nearer 

as 1, 20, 000 cubic foot. The tank 

can feed 1000 people for one 

complete year if the tank has 

been filled in its whole capacity. 

The tank once believed to be fed 

by ‘Girudhumal River’ and now 

being fed by rain water. 

Status of 

Potramarikulam 

Potramarikulam is located 

inside the temple. The Kulam 

was in a neglected condition 

and is being used as a dumping 

receptacle for the used up and 

waste water from the temple 

rituals and from washing vessels 

used for cooking, along with 

decomposed food, oil, milk, 

turmeric powder and remnants 

of offerings made to the deities 

in the temple. No fresh water is 

stored in the tank excepting the 

wastewater mentioned above. 

Due to this tank became the 

ground for mosquito breeding 

and also resulting in bad odor. 

Nearly 2000 liters of wastewater 

is entering from the temple every 

day. In addition, the tank filled 

with debris up to 10 feet. 

Rehabilitation of 

Potramaraikulam 

As a Madurai marathon 2007 

follow up, DHAN Foundation 

along with Madurai Corporation 

proposed to take Immayil 

Nanmai Tharuvar Temple- 

Potramai kulam for rehabilitation 

work. As per plan, the estimate 

was prepared by CURE (centre 

for Urban water Resources) 

and the work was started on 

15th December at 

24

the estimate cost of 

Rs.1,20,000. First, the debris was 

removed from the tank. Nearly 

684 tons of debris was removed 

by manual labors at the cost 

of Rs.80,000. The corporation 

provided the vehicles for 

transporting the debris from the 

tank. The corporation provided 

vehicle cost of Rs.86,000 for doing 

this work as a contribution. 

Nearly 449 labors were 

engaged for this tank. 45 days 

work man days are given to 

labors. For diverting wastewater, 

we have planned to provide three 

cisterns from temple to Main gate 

of the temple. The manhole will 

be constructed by the corporation 

and the sewer connection will 

made by CURE with the help of 

corporation. This temple tank will 

be a good example for the other 

temple tanks. 

Outcomes 

The debris was excavated 

from the tank to a depth of 10 

feet which helps to increases the 

storage capacity to the tune of 

25%. 

By this conservation work, the 

water recharge may be increased 

in the bore-wells of surrounding 

area which will satisfy the water 

need during summer. 

The ground water recharges 

also increase in the surrounding 

area. 

Due diversion of waste water, 

the tank is protected from 

pollution. 

Now, this tank is working as 

rain water harvesting structure. 

The tank is revived after 30 

years and now the tank water is 

used for holy purpose. 

25

Institution Building for 

Community Empowerment 

M.P. Vasimalai, Member, NTAG 

The Government of India 

has launched Jawaharlal Nehru 

National Urban Renewal Mission 

(JNNURM) to address the 

issues of urban infrastructure, 

slum development and basic 

amenities to the urban poor. 

The Urban Ministry of Housing 

and Urban Poverty Alleviation is 

implementing the submission 

on Basic Services to the Urban 

poor (BSUP) for the identified 

cities and integrated the mission 

period (2005-12) the urban poor 

are enabled to have access to land 

tenure, affordable shelter, water, 

sanitation, education, health 

and social security and to have 

convergence of infrastructure 

development and urban poverty 

alleviation programmes to 

promote inclusive cities. The 

Ministry has established a 

national core group on urban 

poverty with members drawn 

from civil societies and academic 

institutions. In response to the 

Ministry the following policy 


on “Institution Building with 

Community Empowerment” 

with concrete actions as detailed 

below: 

• 

• 

City Wise Social Capital 

formation (status and plan) 

has to be formulated with 

distinct Detailed Project 

Reports (DPR) for social 

intermediation. A model 

toolkit and guideline would 

be formulated for the cities 

for social capital formation. 

Financial Inclusion for Slum 

Dwellers requires special 

efforts under JnNURM. 

• 

• 

National Housing Bank 

(NHB) could play the nodal 

facilitation role as that of 

NABARD in urban areas. 

A bank linkage guideline 

has to be issued with the 

approval of RBI for housing 

and microfinance with 

self help groups. A part of 

microfinance development 

and equity fund could be 

diverted to NHB under the 

guidance of the Ministry. 

Financial inclusion plan 

would be prepared for each 

city with relevant financial 

institution. Separate DPR 

could be prepared for 

financial inclusion including 

SHG revolving fund and SJSRY 

programme for livelihood 

development. SIDBI could 

also play a proactive role 

for the development of tiny 

enterprises. 

Business Development 

Services would be created 

to promote producers, 

vendors and marketing 

groups among urban poor. 

Producers and trading 

• 

• 

groups would be federated 

as Producer Company taking 

advantage of recent facility 

with Company Act. Business 

Intermediation plan would 

be prepared for each city. 

Further livelihood skills 

would be given to urban 

poor families by establishing 

community colleges in each 

city along with Jan Shikshan 

Sansthan (JSS) programme. 

A Tool kit with guidelines 

would be evolved to 

develop distinct DPR for 

business intermediation for 

wealth creation of urban 

poor. Adequate space for 

business alliances with 

business houses would also 

be created under JnNURM. 

Convergence of Civic 

services, health and 

education, and infrastructure 

activities drinking water, 

drainage, electricity, road, 

storm water, solid waste 

management would be 

ensured through entitlement 

and through Slum 

Development Association. 

All the functional groups 

including SHG’s ,Producers 

Groups, Trading groups 

would become part of 

a geographical entity 

called Slum Development 

Association like CDS ( 

Community Development 

Society) SDA/ CD would 

be the base unit of city 

governance as envisaged 

in Nagar Raj Bill. SDA/ CDS 

would be the focal point for 

convergence of all services. A 

26

• 

toolkit and guidelines would 

be issued for separate DPR 

for convergence of Services 

under JnNURM. 

Capacity Building is the key 

for the four functional areas 

of intermediation. Capacity 

Building has to be done 

for the demand, supply 

and enabling streams 

simultaneously and also 

together. City Resource 

Centre could be created 

to cater to the capacity 

building needs of all the 

stakeholders. Regional and 

national centre’s would 

provide design and strategic 

input for delivering the 

capacity building activities 

through City Resource 

Centre. A Separate set of 

toolkit and guideline would 

be developed for distinct 

DPR modules. 

A comprehensive manual 

would be developed with five 

distinct guidelines and tool kits to 

promote livelihoods with social 

capital for sustainability. Ministry 

would invite five set of DPRs 

for urban poverty alleviation as 

that of infrastructure toolkits for 

roads, transportation, sewerage, 

sanitation, storm water, 

drinking water and solid waste 

management. 

Concept note on City Information 

Development Centre 

City Technical Advisory Group, Madurai. 

1.0 Introduction 

The Jawaharlal Nehru 

National Urban Renewal 

Mission (JnNURM), launched 

on December 3rd, 2005, is the 

largest national urban initiative 

to encourage reforms and fast 

track planned development 

of 63 identified cities. National 

Technical Advisory Group is set to 

provide assistance at macro level. 

The cities are the real theatre 

where all the activities vis-à-vis 

JnNURM takes place. Hence at 

micro level, the structures like City 

Technical Advisory Group and 


are formed in all the JnNURM 

cities to harness and channelize 

the civic minded and talented 

professionals. These mechanisms 

would strengthen the State 

Technical Advisory Group (STAG) 

and National Technical Advisory 

Group (NTAG) to reflect the 

grassroots realities at different 

levels. 

CVTC and CTAG are constituted 

by Madurai Corporation as 

a formal structure with the 

guidance of NTAG for both the 

submissions under Ministry 

of Urban Development and 

Ministry of Housing and Urban 

Poverty Alleviation. The role of 

CVTC and CTAG in the overall 

scheme of JNNURM includes 

advise to city governance and 

management team on enlisting 

community participation in 

service delivery, building poverty 

reduction programmes, ensuring 

transparency and accountability 

to citizens in programme 

implementation of JnNURM, help 

enlist involvement of citizens at 

grassroots le vel through Ward 

Committees, Area Sabha’s, and to 

help implement commitments 

under Community Participation 

Law. Both the structures at 

city level provide technical 

support to City Governance 

and Management in preparing 

Detailed Project Reports (DPRs), 

in establishing City Resource 

Centre’s, in implementing the 

reforms and make CDP as a 

Living Document. The concrete 

achievements of bringing 

community participation of CVTC 

and CTAG is the preparation of 

Heritage Development Plan by 

facilitating community interaction 

on Visioning exercise, facilitating 

proposals for community based 

organizations to bring community 

participation under JnNURM, 

organizing Madurai Marathon 

for protecting water bodies 

and Community workshops for 

building Neighborhood groups, 

Neighborhood committees as 

envisaged under Basic Services 

for Urban Poor. 

To ensure community 

participation and involvement 

of people in the implementation 

of JnNURM programmes, CTAG 

& CVTC proposes to have a City 

Information Development Centre. 

This centre will focus mainly on the 

information related on JnNURM 

activities and strives to organize 

area sabhas across all wards for 

building a vibrant heritage city. 

The present information centre 

at corporation gives information 

on taxation on functional and 

administrative areas and the 

Developmental Information 

Centre ( CIDC) envisaged is more 

on developmental perspective 

and enabling community and 

27

stakeholders to be the part 

and parcel of developmental 

process. 

2.0. Purpose of 

Developmental 

Information Centre 

The 

Developmental 

Information Centre facilitates 

and guides community 

members in matters relating to 

local governance by providing 

comprehensive information 

about the wards and city, provides 

work space for study, discussion, 

preparation of plans and detailed 

project reports and facilitating 

dialogue. Thus DIC will perform 

following functions namely 

information, dissemination, 

facilitating participation and 

communication to all the 

stakeholders interested in the 

welfare of the city. 

2.1 Information 

• 

• 

• 

Update on JnNURM activities 

in the corporation. 

Update of CTAG and CVTC 

activities in the corporation. 

Information on Consultants 

who prepared DPRs 

28

• 

• 

• 

Update of status of DPR’s on 

pipeline. 

Update of presentation 

about DPR 

Summary of DPR’s and plan 

components under each 

DPR. 

2.2 Dissemination 

• 

• 

• 

• 

• 

• 

• 

To facilitate dialogue 

sessions among stakeholders 

by facilitating meeting to 

exchange ideas and to work 

together 

Implementing agencies and 

time frame for completion 

of works under JnNURM. 

Visual Gallery on 

Implementation – water 

supply, BSUP etc 

Media Coverage on JnNURM 

activities 

Technocrats list under Urban 

Governance, Urban Planning, 

Urban Engineering, Urban 

Poverty, Urban finance. 

To provide information 

about civic bodies in 

Madurai – social welfare, 

women and child, physically 

challenged , Police and 

Home department, 

Tamilnadu Slum Clearance 

Board, Tamilnadu Electricity 

Board, Transport corporation 

- – plans and programmes, 

systems and procedures for 

seeking guidance and how 

to file grievances. 

Provision of Website 

providing information about 

the projects undertaken in 

the wards, their budgeting 

and periodic progress and 

Ward wise details: 

• 

Layout, spatial plans, 

demographic data 

• 

• 

• 

• 

• 

• 

• 

Information on water 

supply, sewerage, 

transmission and 

telephone lines. 

Information on budget 

allocation and planning 

involved in Ward 

projects. 

Voters list. 

Available facilities like 

hospitals, police stations, 

ambulance services. 

Recreation facilities like 

parks, playgrounds. 

Norms for various civic 

facilities. 

Programmes from 

service providers 

– information on 

vocational training. 

2.3 Participation 

• 

• 

• 

• 

• 

• 

• 

Facilitating monitoring the 

progress of works under 

JnNURM. 

Update Corporation on 

CTAG and CVTC activities and 

provide advisory support in 

review and implementation 

of the plans. 

Facilitating exposure visits 

for Corporation, Councilors , 

CTAG and CVTC members on 

JnNURM implementation. 

Facilitate Basic Research for 

Corporation by organizing 

baseline surveys and socio 

economic profile. 

To facilitate seed support 

for Community Based 

Organizations 

Facilitating centre for 

organizing seminars 

and workshops for the 

stakeholders on plan 

components. 

To create awareness 

about citizen rights and 

• 

• 

• 

responsibilities under 

Community Participation 

law. 

To facilitate preparation of 

long / medium / short term 

plans for Nagar Sabhas. 

Facilitating Civic Institutions 

to undertake managing of 

Sanitation projects under 

Madurai Corporation. 

Facilitate Awareness 

campaigns on JnNURM 

programmes through 

padayatras, marathon like 

water literacy. 

2.4 Communication 

• 

• 

• 

• 

• 

Show achievements through 

Documentaries / Signage’s 

/ Posters on civic issues / 

News letters. 

Coordination of technical 

cell programmes of Ministry 

for organizing Seminar and 

workshops. 

Articles on JnNURM. 

Case Studies and Best 

practices under JnNURM. 

Programmes for youth, 

children and women. 

3.0. Logistics 

Support 

Corporation will facilitate 

logistics and financial support 

required for this information 

centre. A support staff can be 

directly recruited from the 

Corporation funds or a regular 

municipal employee can be 

made as the focal Person to look 

after the information centre. 

The major activities of the HUB 

will be ensuring community 

participation by providing 

information, communication 

and dissemination in JnNURM 

programmes and organize 

dialogue sessions among 

stakeholders for cross learning to 

build a vibrant city. 

29

Civic Intermediation in 

Urban Slums 

- CVTC, Madurai 

1.0. Introduction 

The 74th Constitutional 

Amendment has given a 

significant role to Urban Local 

Bodies (ULBs) in terms of 

empowerment and expanding 

their normal functions to include 

urban poverty alleviation. Urban 

poor in are facing number 

of problems related to basic 

necessities such as - lack of 

shelter, clean air, clean water, 

proper toilets, electricity, proper 

nutrition and medical facilities 

etc. Housing for the urban poor 

is scarce and consequently slums 

are mushrooming everywhere, 

especially in unsafe locations 

which are relatively cheap and 

vulnerable to natural disasters. 

Slum Governance calls for 

people action and responsibility 

for their well being. Urban poor 

need to develop themselves 

by having access to various 

resources especially financial 

resources. People organisations 

and their linkages have to be 

positioned based on their quality 

work in slums and its impact in 

the lives of urban poor rather 

than alliance of convenience. 

Linkages should have benefits 

to either organisations and 

should be viable. Linkages 

can be established through 

many ways. But, ideal system is 

building linkages among local 

organisations to make them 

co-exist for many generations. 

Linkages should not be based on 

individuals’ interest and direction 

from top management. It should 

become an organisational 

relationship and graduate into 

a partnership to promote equity 

in the society and making 

resources available to the people 

who do not have resources. 

Resources should be controlled 

by themselves based on their 

needs and principles. Effective 

slum governance is required for 

the following reasons: 

1.1.1. Ensuring the 

entitlements to urban poor : 

Even though many development 

schemes of government agencies 

and banks are directed towards 

urban poor, ultimately they do 

not reach urban poor due to 

ineffective system, bureaucracy, 

corruption and political 

interference. Linkage building, 

hence aims to ensure urban poor, 

their entitlements and their share 

of development. 

1.1.2. Demonstrating the 

new ways of working with 

mainstream institutions : 

Mainstream institutions like 

banks, financial institutions and 

government agencies always 

believed in only subsidy based 

services. Those systems are 

also failed due to higher level 

of delinquency and selection 

of wrong beneficiaries. SHG 

Slum Development Associations 

demonstrate that linkage is 

possible on purely commercial 

basis, and based on principles. 

1.1.3. Building viable 

relationships between 

community and mainstream 

institutions : Individual lending 

increases service delivery cost. It 

makes the mainstream system 

ineffective in reaching thousands 

Community NGOs Urban Local Bodies 

Access and control of 

government resources 

Relevant and flexible 

programmes 

Transparent mechanisms and 

processes 

Direct handling of resources not 

through intermediaries 

Sustainable, viable and value 

adding relationships 

30 

Supporting urban poorest to 

receive their entitlements 

Flexibility in programmes 

Focus on enabling 

Ensuring fairness in the 

system 

Partnership mode of working 

than contracting type 

Equity in distribution of 

benefits 

Adhering meticulously to roles 

of the government 

Regular and timely reporting 

and progress sharing 

Timely project implementation 

and sticking to schedules 

Supporting partnership

of urban poor families. SHG 

Slum Development Associations 

complement roles of mainstream 

institutions and reduce the 

transaction cost to a greater 

extent due to systems like group 

lending. 

1.1.4. Creating a strong 

‘demand driven system’ 

than ‘supply driven system’: 

Traditional systems always 

focused on strengthening only 

supply system. Government 

policy and development schemes 

are example to this. But, Slum 

Development Associations 

focuses on strengthening 

demand system by building 

their capabilities to access and 

use resources from mainstream 

organisations efficiently and 

effectively. 

1.1.5. Setting up agenda 

for mainstream institutions: 

Planning is done at individual 

family and village levels due 

to SHGs. Hence, demands for 

various services are assessed 

appropriately. Top down planning 

system, many times ground 

realities are ignored. 

2.0. Status of Urban 

Governance 

Building viable and 

sustainable linkages should 

address various concerns of 

collaborating organisations. The 

table gives major concerns of 

NGOs, community and Urban 

Local Bodies. 

To address this concern, there 

is an immense need to simplify 

laws, rules and procedures to 

make easily intelligible to an 

average person, facilitate cities 

in development of transparent 

public procurement and hold wide 

consultations on city budgeting, 

Identifying major bottlenecks at 

the local governance level through 

consultative processes like group 

discussions, public hearings and 

developing similar participatory 

tools and improve efficiency of 

local bodies thorough enhanced 

technical, administrative and 

financial capacities, networking 

and regular interactions between 

municipalities and closer 

networking with media and their 

engagement in creating public 

awareness and creating demand 

for good governance. 

3.0. Recent Developments 

in Urban Governance 

in India 

3.1. 74th Constitutional 

Amendment act, 1992 : 74th 

Constitutional Amendment act 

which was passed by parliament 

in 1992 came into effect on I June 

1992. It has given constitutional 

status to local self government. 

The salient points are the 

participation of stakeholders 

and beneficiaries, notion of 

alternative development and 

new role of local bodies as a 

facilitator and enabler rather than 

a service provider and regulator. 

Model municipal legislation 

introduced by Government of 

India, introduced a concept of 

participatory governance. 

3.2. Model Nagaraj Bill 

circulated by Ministry of Urban 

Development, Government 

of India has been conceived 

to institutionalize citizen’s 

participation in municipal 

functions, e.g. setting priorities, 

budgeting provisions etc by 

setting Area sabhas. It has given 

further impetus to the idea of 

participation by constituting 

Area sabha which is a body of 

all the persons registered in the 

electoral rolls pertaining to every 

polling booth in the Area, in a 

Municipality. Thus every citizen 

will be a party to the decisions 

which will finally affect them. The 

respective state governments will 

issue guidelines about the areas 

into which each ward may be 

divided and the territorial extent 

of each area. There shall be area 

sabha representative for each 

31

area / slum who shall be elected 

in elections to be conducted by 

the state election commission. 

4.0. Policy Propositions 

for Effective Slum 

Governance and 

Convergence 

Cities must cope with great 

numbers of people, plan to 

provide those services, find 

resources to meet needs of 

maintaining and augmenting 

infrastructure, respond to the 

urbanization and poverty, 

preserve their environment and 

retain their competitive edge. 

Enmeshed in the web of rigid, 

inflexible working cultures and 

erosion of all round capacity they 

must re-engineer themselves to 

face these enormously complex 

challenges. This re-engineering 

is precisely the goal of good 

urban governance. It envisages 

improving the quality of life in 

cities through improved local 

governance by reinventing a city 

as an inclusive city. Such a city 

provides space and voice to all its 

stakeholders through inclusive 

decision-making, since decisionmaking 

is the heart of good 

governance. 

4.1. Promotion of Slum 

Development Association: 

Though different formal and 

informal institutions are at slums 

namely self help groups, non 

governmental organisation, 

residential welfare associations, 

they lack an integrated approach 

to alleviate their problems. Few of 

the slum dwellers are also left out. 

This calls for the institutions not 

only to serve their clients but also 

to come under a single platform 

for the slum development. 

Towards this, Slum Development 

Association/ Community 

Development Network can be 

formed to pursue common goals 

32 

which affect all the communities 

in a slum. 

Slum 

Development 

Associations establish linkages 

with ward agencies / municipal 

corporations to enhance the 

lives of urban poor. It helps 

fostering practicing and vibrant 

democracy at the local level 

and enhances the choices of 

urban poor. Slum Development 

Associations provides support to 

local schools and primary health 

organisations to improve their 

services and reaching urban poor 

effectively. It creates safety net 

for urban poor by closely working 

with insurance companies. Slum 

Development Associations 

promotes sustainable linkages 

with these organisations due to 

the availability of professional 

resources, institutional systems, 

low delivery costs and the 

visibility and power it acquires 

from its scale of operations. 

4.2. Micro Planning: This calls 

for diagnosing the inadequacies 

in the slum and create working 

groups to work on the issues. 

The areas may be water supply 

and drainage, roads, street light, 

storm water drainage, solid waste 

management, community toilets, 

community halls and health care 

Centre, construction of houses 

etc. This will result in identification 

of problems; resources required 

for managing the problems and 

evolve strategies to generate 

resources for implementation of 

projects. 

4.3. Promotion of User 

Groups: User Groups can be 

formed based on the uses of 

infrastructure services availed to 

monitor and enhance the status 

of services like community toilet, 

health care centre, drinking water 

etc. Under promotion of temporary 

groups for basic services, Slum 

Development Association will 

promote working groups for 

ensuring their legitimate needs 

and to relate with mainstream 

institutions especially for housing, 

solid waste management, health 

education etc. These groups will 

have a primary agenda to go into 

the specifics of each issue and get 

dwellers organized, participate, 

involve and contribute for their 

well being. 

4.3.1. Water Supply User 

Group : Effectiveness of water 

supply to the households in 

the slums is crucial for survival. 

The performance of water 

supply connections, per capita 

production of water, extent of 

metering water connections, 

continuity of water supply, 

efficiency in addressing the 

grievances, quality of water 

supply etc will be the agenda 

for this group to work on. They 

will relate with the mainstream 

to ensure regular water supply 

through SDA with mainstream. 

4.3.2. Waste water 

management (Sewerage and 

Sanitation) User Group: In slums 

during the rainy seasons, the 

situation has been worse and their 

quality of life is affected due to 

unhygienic conditions resulting 

in increase in health expenditure. 

For waste water management, 

performance related to reach 

and access of the service, 

effectiveness of the network 

and environmental sustainability 

has to be emphasized, apart 

from financial sustainability of 

operations. Space for waste water 

collection, collection efficiency 

and the extent of reuse etc will 

be the agenda for this group. 

Incidence of water logging and 

flooding during rainy periods 

should be taken into account for 

keeping the slums in hygienic 

conditions.

4.3.3. Solid Waste 

Management User Group : The 

collection of waste i.e. in terms 

of bio degradable and non 

degradable waste is to be ensured. 

The possibilities of segregation at 

the collection spot and ensuring 

scientific disposal either through 

composting methods at the 

slum or at collection spot is to be 

looked into. This group will work 

ensure proper disposal of waste. 

4.4. Community based 

health care initiatives : Despite 

access to health services in urban 

situation, quality of life at the 

slum is urban poor. This calls for 

community based health care 

initiatives to bring awareness and 

also to know the consequences 

of the urban poor environment. 

This also facilitates to alleviate 

the suffering of deprived sections 

namely HIV/ AIDS people. 

4.5. Creation of Community 

Infrastructure: Slum Dwellers 

need space for engaging 

themselves in livelihood activities 

Promotion of Slum Development Association at Bharat Nagar 

and for organizing common 

events. The space constraint 

demands to explore community 

halls which can be the platform 

for their livelihood and also a 

meeting place. 

4.6. Establishing Slum 

Information Resource centre: 

This centre aims to link the 

slum communities to the 

government and mainstream 

institutions for getting better 

services to enhance their quality 

of life. It eliminates unnecessary 

middlemen, expenditure, and 

energy for accessing the services 

required for their sustenance 

and livelihood. It also builds the 

capacities of slum dwellers to 

access and use the IT for their 

socio economic betterment. 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

Action Plan for 

July to December 2008 

Promotion of Heritage Council. 

Capacity building of Corporates and Executive System on Project 

Management. 

Round Table on Policy influence for housing the urban poor tenant. 

Setting up of Information Centres. 

Promotion of Area sabhas. 

Promotion of livelihood for urban poor 

Promotion of Slum Development Associations. 

Toolkit for community empowerment Plan 

Micro studies on JnNURM implementation. 

Setting up of CTAG secretariat in corporation office. 

33

Jawaharlal Nehru National Urban Renewal Mission (JnNURM) - 

Sanctioned Projects 


As on 30.06.08 

Sl. 

No 

Name of the 

Project 

Est. Amt. 

(Rs. In 

Crores) 

Date of 

Sanction 

by Admn. 

San. and 

CS & MC 

Apprd. 

Amount 

(Rs. In 

Crores) 

Work 

Order 

Date 

Status of Works 

1 2 3 4 5 6 7 

1 Second Vaigai Water 

Supply Scheme to 


- Water Supply 

Improvement & System 

Improvement 

a) Package I : 

48.87 08.05.06 

& 

18.08.06 

59.316 12.03.07 Work Order issued on 

28.02.07, Work Commenced 

on 06.03.07 

1) BP Tank Completed & 

Head Work Completed. 

2) Raw Water Main 

8.60 Km. laid out of 

16.60 Km 

3) Clear Water Main - 

29.60 Km laid out of 

48.80 Km. 

4) Feeder Main - 

7.30 Km laid out of 

16.00 Km. 

b) Package II : 

Augmenting Existing 

Water Treatment 

Plant at Pannaipatty 

from 71.60 MLD to 

118.60 MLD. 

c) Package III : 

Construction of SR’s 

(5 Nos.) and Laying 

of Distribution 

System (139 Km) 

5.10 -- do -- -- do -- 10.10.07 Work Order issued to 

M/s. P & C Construction (P) 

Ltd., Erode on 19.07.07. 

Work Commenced 

on 10.10.07. 

* Base Slab red fabrication 

is Under Progress Earthwork 

for Flash mixer is Under 

Progress; Chlorinator 

received and errection 

is under Progress; laying 

of filter media is Under 

Progress for one bed; 

Chemical House 65% 

Completed. 

13.57 -- do -- -- do -- 10.10.07 Work Commenced on 

10.10.07. 

* H.M.S. Colony - 3rd Brace 

Completed. 

* P & T Colony - 4th Brace 

is Under Progress. 

* Sundarajapuram, 

Villapuram & TWAD 

Colony - Footing 

Completed and other 

work is Under Progress. 

* 'D' System - Supply 

123 Km Completed 

out of 139.00 Km. 

& 49.00 Km Laid. 

Expenditure as on 

30.06.08 - Rs. 3455.00 

Lakhs. 

34

2 Construction of Check 

Dam at Bed Level to 

improve the Ground 

Water in the Melakkal, 

Kochadai and Manaloor 

Head Works 

11.44 -- -- -- * Addressed to PWD Dept. 

to take up the work. 

(30.04.07). 

* PWD, Madurai Revised 

the DPR for Rs. 114.00 

Crores and awaiting for 

approval. 

3 Solid Waste 

Management: 

Waste Management 

Schemes, Manures from 

garbage and purchasing 

vehicles & accessories. 

4 Construction of Storm 

Water Drainage 

5 Sewerage: UGSS Scheme 

for Newly Developed 

and Omitted Area - 

Revamping Existing 

MPS, SPS and Treatment 

System. 

74.29 02.02.07 

& 

17.04.07 

256.87 20.04.07 

& 

02.05.07 

231.07 20.07.07 

& 

24.10.07 

74.29 14.02.08 * Package I, II - Partly 

Equipments Received. 

Package III - Mini Loader 

4 Nos. Received. 

* Package IV - Dumper Bin 

24 Nos. Received. 

* Package VI - Dumper 

Placer 10 Nos. Received. 

* Package VII – Work 

Order Issued on 29.03.08 

and all packages are 

completd as on 31.08.08. 

251.81 02.05.08 * Package I to VI - 

Work Order issued on 

02.05.08 and Works are 

Under Progress. 

* Package VII - 90% 

Works Completed. 

229.34 12.05.08 * Package I & II 

(Treatment Plant) - 

Work Order Issued & 

Work to be Started. 

* Package III 

(Collection System) - 

Collection System tender 

(Third Call) Called on 

16.07.08. 

6 Basic Services to 

Urban Poor Phase I : 

Construction of New 

Houses and Providing 

Infrastructure Facilities. 

(21 Slums) 


Urban Poor Phase II : 




(58 Slums) 


Urban Poor Phase III : 




(52 Slums) 

26.85 

103.57 

02.02.07 

22.02.07 

26.85 

103.57 

05.09.07 Work Commenced in 

Phase I & II Slums. 

2618 Houses 

Work Order Issued & 

205 Houses Works are 

Completed and 

1472 Houses Under 

Progress. 

176.75 29.10.07 176.75 -- Approved by 

Fund Allotment Stage & 

Work to be Started. 

TOTAL 948.38 

35

CTAG and CVTC Events at a glance 

S.No Date Meeting Focus Participants 

1 22.3.08 CTAG meeting • Progress of JnNURM 

2 2.05.08 Foundation 

Programme for 

Anchor NGOs to 

promote CTAG and 

CVTC by NTAG 

• 

• 

Concept of Information center 

Induction of CVTC members 

• Placement of staff for CTAG and CVTC 

operation 

• Concrete deliverables for the CTAG and CVTC 

• Heritage Plan and Submission 

Sharing success model of CTAG and CVTC in 

Madurai city at New Delhi by CTAG Chair person, 

Municipal Commissioner and Anchor NGO 

3 17.05.08 CVTC meeting • Sharing of Interim report of heritage 21 

development play by Thiagarajar College of 

Engineering 

• Sharing of sanction of CPF proposal and action 

plan for implementation 

4 25.06.08 CVTC Urban Poverty CVTC members field visit to slums 10 

5 28.06.08 CVTC Urban Engineering CVTC members field visit to 

construction of overhead tanks 

4 28.06.08 CVTC meeting • Sharing of field visit by Urban Engineering and 26 

• 

Urban Poverty. 

Presentation on Socio Economic Survey 

• Presentation on Heritage Development Plan 

5 4.07.08 CTAG meeting Presentation on Heritage Development Plan 7 

6 10.07.08 Special CTAG 

meeting 

7 28.7.08 Steering committee 

meeting 

Presentation on Heritage Development Plan to 

Madurai Commissioner 

• 

• 

• 

• 

• 

Presentation on Madurai Urban Region. 

Presentation on Collaboration with 

Corporation 

Reflections by Commissioner and Corporation 

officials. 

Proposals for Community Participation Fund 

to be forwarded for SLNA. 

Promotion of Slum Development Association 

8 28.7.08 CTAG meeting • Special Purpose Vehicle for BSUP 

• Detailed Project Report on Sanitation 

• Community Toilets at Public places. 

• Houses for rented households in objectionable 

and non objectionable area 

6 

40 

5 

23 

43 

16 

36

List of CTAG & 

CVTC Members 

About CTAG 

City Technical Advisory Group (CTAG) is envisaged as an integral part 

of programme implementation at city level with autonomy in offering 

advice to Jawaharlal Nehru National Urban Renewal Mission (JNNURM) 

related activities in Madurai City. CTAG is constituted by Madurai 

Corporation as a formal structure with the guidance of National Technical 

Advisory Group. CTAG will advise city governance and management team 

on enlisting community participation in service delivery, governance 

and poverty reduction programme. CTAG will guide the cities in their 

renewable process with concrete technical and development inputs by involving all the stakeholders in 

the development process of the city, making City Development Plan (CDP) a Living Document to guide 

programme implementation. 

About CVTC 

City Volunteer Technical Corps (CVTC) is being constituted by City Corporation to enable people 

participation in JNNURM implementation and to ensure accountability and transparency. It would be 

guided by City Technical Advisory Group (CTAG). CVTC comprises of five Cells namely Urban Governance, 

Urban Infrastructure and Engineering, Urban Planning, Urban Poverty and Financial and legal Services. 

CVTC will trigger the development process by sensitizing the different stakeholders of their rights roles and 

responsibilities and be the watchdogs of the development processes. CVTC would facilitate exchange of 

information and be a conduit for reaching the common person about the information flow on schemes, 

Detailed Project Reports (DPR’s) of JNNURM and mobilize their involvement in planning, implementation, 

monitoring and evaluation of the projects conceived in City Development Plan. 

CTAG 

S.No. Name Designation E-mail 

1 

Mr. B.T. Bangera 

Managing Director, 

Hi Tech Arai Limited 

Chairperson 

btbangera@gmail.com 

btbars@hotmawil.com 

2 

Dr V.Abhya Kumar 

Principal, Thiagarajar College of 

Engineering 

Member 

principal@tce.edu 

3 

Dr Anandavalli Mahadevan 

HOD, Department of Future Studies, 

Madurai Kamaraj University 

Member 

anandhavallim@gmail.com 

4 

Ms V.K. Padmavathy 

Chief Executive, Kalanjiam Foundation 

Member 

kalanjiamfoundation@yahoo.com 

kalanjiamfoundation@sancharnet.in 

5 

Dr.A.Selvaraj 

President, CONSSIA 

(Confederation of Southern States Small 

Industries Association) 

Member 

jeyarekha@eth.net 

37


S.No. Name Designation E-Mail 

Technical Field – Urban Governance 

1 Dr. M.R.G. Apparao* Director, Thiagarajar School of apparao@apparao.com 

Management 

2 Dr V. Narayanaswamy Vickram Hospital veersun@sify.com 

3 Dr.V.Samuel Peter Habitat for Humanity India samuelp@hfhisa.net 

4 Ms. Jessi Jayagaran Retd Teacher jessiejey@rediffmail.com 

5 Mr. S. Singan Press Trust of India 

Technical Field – Urban Planning 

1 Dr. P. Mohan Larbeer* Principal, Tamilnadu Theological principal_tts@airtelbroadband.in 

Seminary 

2 Ar G. Balaji, M.arch (Cons) Lecturer, Department of Architecture, gbarch@tce.edu 

TCE 

3 Dr A. Sundaram Department of Future Studies, MKU sunmdfs@yahoo.com 

4 Sr Fatima Antony Principal, Fatima College fatimacollege@eth.net 

5 Dr T.Badrinarayanan Govt. Rajaji Hospital badrit@vsnl.com 

Technical Field – Urban Poverty 

1 A.Ramesh Regional Coordinator, Madurai 

Urban Region, DHAN Foundation 

2 Dr.T.Ravichandran Programme Officer, Gandhi dr.t.ravichandran@lycos.com 

Museum 

3 Dr Nirmala Jayaraj Principal, Lady Doak College ladydoak@md3.vsnl.net.in 

4 Mr. B.Thirumalai Kumudam , Weekly Magazine thirugeetha@gmail.com 

5 Mr N. Chidambaram Project Coordinator, Madurai Green dhan@md3.vsnl.net.in 

Technical Field - Engineering 

1 Er.R. Venkataswamy Programme Officer, Vayalagam venkatasamy_r@yahoo.co.in 

Foundation 

2 Dr R.M. Umayal Principal, Tamilnadu Polytechnic tnpcec@sify.com 

College 

3 Er.A.C. Kamraj Chairman: NAWAD Council, ackamaraj@hotmail.com 

Expert Committee Member, On 

Interlinking of Rivers 

4 Dr. S. Raja mohan Associate Professor, 

rajamohan_s@yahoo.com 

Civil Engineering, TCE 

5 Mr S.Chandran Lecturer in Civil Engineering, TCE schandran@tce.edu 

38 

Technical Field – Finance & Accounting 

1 Mr N.Charles Fernando* Chartered Accountant fernandofca@gmail.com 

2 Mr. Veera Jeeva Prabhakar Dinamani , Daily Newspaper 

3 Dr S.Rajakumar Immanuel Department of Botany, American rajimme@yahoo.com 

College 

4 Mr. M.Jayachandran Headmaster, ( Retd) 

5 Mr. S. Raju NSS Coordinator pconssmku@rediffmail.com

Chariot moving towards 

"SLUM FREE CITY" 

39

SOLID WASTE MANAGEMENT 

1. Madurai will be garbage free city. 

2. Solid Waste will be disposed scientifically. 

3. A healthy and wealthy environment 

is assured after achieving 100 % 

implementation of this project on the light of 

MSW rules 2000. 

BASIC SERVICES to URBAN POOR 

1. Madurai City will become slum 

free city after implementation of this scheme. 

2. 24686 Concrete houses for urban poor. 

3. Basic infrastructure like Road, Street Light, Storm 

Water Drainage will be provided for all slums. 

4. Drainage connection & Water supply connection 

will be given to all urban poor at free of cost. 

STORM WATER 

DRAINAGE 

1. Bituminus road surface will be 

saved from rain water. 

2. Stagnation of Storm Water and 

Sullage in the channel will be 

prevented there by mosquito 

menace will be reduced . 

SECOND VAIGAI 

WATER SUPPLY SCHEME 

1) Per capita water supply will be increased from 

65 LPCD to 115 LPCD. 

2) 10.45 Lakhs people of Madurai City will get 

115 LPCD. 

UNDER GROUND 

SEWERAGE SYSTEM 

1. 100 % Under Ground Sewage 

System coverage 

2. Sewage treated and re-cycled 

40

Link - JnNURM

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