City Development Plan, Raipur City City Development Framework and Process

1 CITY DEVELOPMENT FRAMEWORK AND PROCESS

1.1 RAIPUR- A PROFILE

Raipur became the capital of the State of Chhattisgarh on Ist November 2000 when
Chhattisgarh was carved out of the south-eastern parts of undivided Madhya Pradesh. Uttar
Pradesh and Jharkhand in the north, Orissa in the east, Andhra Pradesh in the south and
by Madhya Pradesh and Maharashtra in the west, bound the state.

Raipur is the capital city of the recently formed state of

Chhattisgarh, carved out of the erstwhile state of
Madhya Pradesh. The city is also the head quarter of
Raipur District. Raipur District is situated between
21o14'N to 22o33'N latitude and 81o38'E to 82o6'E
longitude. The district is administratively divided into 13
Tehsils and 15 revenue blocks.

Chhattisgarh is the richest Stat, in the union of India, in

terms of mineral wealth, with 28 varieties of major
minerals, including diamonds. All the tin ore in India, a
fifth of iron ore in the country and one of the best quality
iron ore deposits in the world are found in the Bailadila
Raipur District Map
mines in south Chattisgarh. Rich deposits of Bauxite,
Limestone, Dolomite and Corundum are found in the State. The State has large deposits of
coal, iron ore and limestone in close proximity, making it the ideal location for the lowest
cost of production. Raipur, being the capital of Chattisgarh, is positioned to support the
mineral based industries.

Chhattisgarh is a land of opportunities and is endowed with huge mineral deposits and
forest resources. By virtue of its coal reserves, the state is poised to become the power hub
of the nation. Identified as one of the richest bio-diversity habitats, Chhattisgarh has the
densest forests in India, and above all, over 200 non-timber forest produces, with
tremendous potential for value addition. There are mega industries in steel, aluminium and
cement already functioning in the near vicinity of Raipur even before Chhatisgarh was
declared a separate state. After the new state was formed, the city is also gradually
emerging as an educational hub.

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City Development Plan, Raipur City City Development Framework and Process

Chhattisgarh has the largest concentration of schedule tribes (STs) in the country. As a
result, the city of Raipur has a fair share of its population belonging to schedule tribes.
Besides the native population, the city has a significant number of migrants from other parts
of the country owing to its multi disciplinary functional characteristics.

The major issue of Raipur’s future growth pertains to the growth of the city as the state
capital. The state government is in the process of establishing the capitol functions in a
greenfield area and its integration with Raipur, the primate city of the state. The state
government has initiated activities on an area of about one thousand hectares near village
Kotarabhata, Kuhera and Rakhi in Mandir Hansad Assembly constituency for locating the
capitol functions. The new capital township is envisaged to develop as a satellite town of
Raipur. Apart from the capitol functions, Raipur’s regional primacy as a commercial,
industrial and educational centre needs to be addressed from a future perspective of the
regional development.

The city is located in the fertile plains of Chhattisgarh Region. The major constituents of the
soil are silt, clay and sand. The general slope of the land is towards north. Mahanadi is the
primary river of the region. Water supply to the city is from the Kharun River, a tributary of
Mahanadi that has been dammed at Mahadeo Ghat. The climate of Raipur is warm. The
mean maximum temperature in May is 46.4 0C. Relative Humidity is generally over 75%.
Rainfall observations indicate that annual rainfall in the area is around 1400 mm.

The foremost issue of urban growth in Raipur pertains to its growth as the state capital with
appropriate city cynosures. Apart from the state capitol functions, of late the city has also
emerged as a major commercial, educational and industrial centre in the region. Integration
of Durg city (head quarter of Durg district) with Raipur has been a concern for long. The
market forces and urbanization trend has already vested dense ribbon development along
Raipur-Durg corridor (NH-6) posing traffic bottlenecks. With the added importance of capitol
functions in Raipur, the trend is likely to intensify and pose further problems in this corridor.

1.2 CITY DVELOPMENT STRATEGY

Mission Statement: The aim is to
The urban agglomeration, with growth in encourage reforms and fast track
planned development of identified cities.
population is putting heavy pressure on services Focous is to be on efficiency in urban
and the urban local bodies are not been able to infrastructure and service delivery
mechanisms, community participation,
meet the demands and expectations. To address and accountability of urban local bodies/
parastatal agencies towards citizens.
the present and emerging infrastructure needs

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 City Development Plan, Raipur City City Development Framework and Process

and services delivery gaps in Raipur urban agglomeration area the city development
strategy need to be prepared. The key objective of the strategy will be to formulate a
development strategy for meeting the emerging challenges of infrastructure, address the
problems of urban poverty and create enabling environment for the growth of economy.

Cities and towns matter:

• Firstly, because of the sheer and increasing weight of people located in urban areas
• Secondly, because of the economic, social and cultural activities that continues to
cluster in cities and which increasingly drive national development processes; and ·
• Thirdly, because of the apparent intractability of urban poverty, which threatens
national development. Urban poverty is a most degrading and pernicious problem,
and one that is not diminishing; quite the opposite in many countries.

Figure: 1.1 The Growing Importance of Cities

URBAN POPULATION AND ECONOMIC CHANGES

• Rapid urban population increase

• Urban populations soon numerically dominant
• Urban economic activity driving national economics

GLOBAL ECONOMIC TRENDS GLOBAL POLITICAL TRENDS

• Globalization • Decentralization
Increasing Economic
• Market liberalization • Devolution
and Political
• Rapid technological Importance of Cities • Rise of Governance-
change moving beyond
• Localization, a new government
competitive factor • Rise of municipal civic
leadership

The CDP Initiative

An Economic and Governance
Strategic Response to the Increasing
Importance of Cities

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City Development Plan, Raipur City City Development Framework and Process

1.3 THE CDP INITIATIVE: A PROPOSED NORMATIVE FRAMEWORK

In order to assess the success or otherwise of the CDP initiatives, it is necessary to clarify
the expected outcomes of the initiative. In other words, a normative framework for the CDP
must be established. Based on the above review of the economic potential of cities and
current thinking on development, it is appropriate that the

Outputs of a CDP should focus on:

• The city as an engine of economic growth;
• The city as the locus of good governance; and
• The city as an arena of social inclusion and poverty reduction.

The key expected process characteristics and outputs of a CDP are as follows:

Stakeholder Participation: A CDP is to be seen as an instrument whereby trust and relations

of mutual benefit between stakeholder groups are built, managed and nurtured. A CDP is a
mechanism of social inclusion. In addressing issues involved in the recreation of civil
society through inclusion a CDP is often a political process.

Building Civic Capacities and Capabilities: Most importantly, a CDP should be a process
through which the capacities and capabilities of the stakeholder group are considerably
improved. For government a CDP should be an instrument to be used to build and ensure
good governance, to change institutional behavior, and thereby to build the internal
institutional ability to direct the economy and manage civil society and for the community a
CDP should be an instrument to build “freedoms of development”.

Changing the Nature of Thinking about Development: A CDP involves people thinking about
the development of their city in a different way than that which characterized the past.
Getting a critical mass of people thinking strategically should be one of the defining
successes of a CDP.

Addressing the Complexity of Development: Experience demonstrates the complex

development agenda associated with the new economic realities demands a coordinated
strategic approach by all the main stakeholders in the public, private, and community
sectors. A CDP should be seen as an instrument, which can be used to achieve a

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City Development Plan, Raipur City City Development Framework and Process

coordinated strategic approach. Other important products associated with a CDP can be
summarized as follows:

A Collective Vision and Strategy: A CDP should generate a collective vision, lay the
foundation for a more collaborative economy, and bring both strategic intent and realism to
city development planning. Indeed, development experience clearly demonstrates that
strategies are more likely to fail when they are not grounded in a collective vision to which
the stakeholders are committed, and a consensus, which the stakeholders are committed to
maintain.

Defined Priorities and Action Plans: A CDP should focus on the fundamental drivers of
economic change and assists stakeholders determine development priorities, sort out
specific inter -sectoral priorities and investment sequencing, and thereby formulate and
implement practical actions plans.

Defined Roles and Responsibilities for Stakeholders: Role definition (including the provision
of enabling resources) is part of the process of empowerment. Assigning responsibilities to
various stakeholders enhances performance. Both processes are related to the building of
civic consciousness. A CDP should involve, engender and empower reciprocal
responsibilities amongst stakeholder groups, and precipitate a change in dependency
attitudes and behavior.

Poverty Alleviation Focus: Stakeholder participation and participatory democracy are more
than likely to place poverty firmly on the agenda. A CDP initiative should focus on
formulating development strategies that address poverty reduction.

Reduced Lending Risks, and Improved Investment Climate: A clear and achievable strategy,
and associated action plans, backed with the commitment and participation of key
stakeholder groups reduces investment risks, demonstrates progress and sends a very
positive message to investors, small and large. The very process of the CDP, furthermore,
should demonstrate the confluence of societal and shareholder added value and draw the
private sector into a constructive partnership role in the development of the city.

Table 1.1 is a summary of the package of process and product outputs and associated
attributes that, define a CDP, and differentiate the CDP initiative from past development
plans.

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City Development Plan, Raipur City City Development Framework and Process

Table 1.1: Summary of the proposed Defining Outputs of a CDP

CDP PROCESS FOCUS
Stakeholder (civic society; business;
Defining Outputs municipal corporation) Participation
and Ownership
• Building Trust and Relations of
Mutual Benefit amongst
Stakeholders
• Building a Collective Vision and a
New “ Social Contract”
• Building capacity and Capabilities
in the stakeholders groups-
Associated Government, the Private Sector
Attributes
and the Community
• Making Connections between
Policies and Investments, and
Outcomes
• Changing the Nature of thinking
about Development
• Changing Institutional Behaviour
CDP PRODUCT FOCUS
• City Economic Development
Strategy
• City Governance Strategy
• Prioritized and Sequenced Policy
and Investment Interventions
• Annual Development Plans
• Action Plans and Budgets
• Assigned Responsibilities to
Stakeholders
• Partnerships (Public-Private;
Private-Private; Public / Private-
community)
• Pro-Poor Approaches to Policy
and Investment Interventions
• Reduction in Borrowing and
Lending Risks

1.4 CITY DEVELOPMENT PLAN – OBJCTIVES

The CDP aims at achieving equitable growth by addressing the issues of economic growth,
poverty, good governance and service delivery to the poor through a consultative process of
strategizing and visioning. A collective city vision and action plan aimed at improving urban
governance and management, increasing investment to expand employment and services,
and systematic and sustained reduction in urban poverty.

The CDP makes basic policy choice and provides a flexible framework for adapting to real
conditions over time. It emphasizes on issues of priority local concerns for livability, and the
implied requirements in terms of enhancing city productivity, reducing poverty, improving
urban governance and enhancing financial sustainability.

Enhancing City Productivity

Reducing Poverty

Improving Urban Governance and

Enhancing Financial Sustainability

The CDP comprises of sectoral plans for the identified sectors for a time horizon of 20 years
outlining the policy framework and investment interventions to achieve the vision. The
objectives of CDP are:

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City Development Plan, Raipur City City Development Framework and Process

• To develop a city development framework for Raipur Urban Agglomeration

• To formulate the Strategic Action Plan and the City Assistance Programme based on the city
development framework

• Prioritization of sectors and identification of short, medium and long-term goals; and

• Preparations of implementation arrangements

1.5 SCOPE OF CDP

The CDP outlines the strategic policy and investment interventions to achieve the vision of
Raipur including formulation of sectoral plans for the identified sectors. The scope of work is
to:

• Assess the current situation in respect of demographic and economic growth, infrastructure
services, municipal finances, etc;

• Identify the gaps in service delivery;

• Outline the issues faced by the city’s poor;

• Prepare a vision and sectoral strategic framework outline the goals, strategies, interventions
and projects to achieve the vision;

• Formulate a city investment plan with appropriate financing strategies and an implementation
action plan; and

• Focus on the reforms to be carried out at the state and local levels in consonance with the
vision and strategic plan outlined to sustain the planned interventions.

1.6 THE PROCESS

The ethos around which a City Development Plan is built is the notion of participatory
planning so as to ensure buy-in of the plan from a cross-section of stakeholders. The
planning process therefore needs to be a consultative one, with stakeholders representing a
wide spectrum of interests taking part in the discussions and dialogue leading to the
formulation of a vision and development objectives, identification of priority sectors and
projects. The Planning Process followed for preparing the CDP for Raipur has remained
faithful to this ethos. Exhaustive consultations were carried out with key stakeholders, both
institutional and individual. These stakeholders included key representatives (both elected
and administrative) of Raipur Municipal Corporation, the Urban Development Authority, line
departments of the state government such as PHED, PWD, Irrigation, Transport, Railways,

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City Development Plan, Raipur City City Development Framework and Process

Tourism et al, prominent citizens of Raipur, representatives from trade and commerce,
NGOs, slum inhabitants, representatives of education institutes.

In addition to one-on-one interactions, a Preliminary Stakeholders workshop was held on

10th February 2006 and 8 April 2006 in Raipur. A Rapid City assessment was presented in
each of these workshops and consensus was sought on the key issues facing each of these
cities. A draft “vision” was also finalized in these workshops.

1. 1st Field Visit: 16th to 21st December 2005

2. 2nd Field Visit and Meetings with officials of different organizations: 3rd to 6th
January 2006
3. 3rd fiend visit and 1st Stakeholders consultancy: 10th to 16th February 2006
4. 4th Field visit and 2nd Stakeholders consultancy: 8th to 10th April 2006

The CDP outlines the critical issues of city development, undertakes a deficiency analysis
and formulates a management framework outlining strategies and guidelines for future
growth. The plan provides a distinctive thrust for introducing enabling rather than restrictive
regulatory mechanisms through realistic planning and management interventions with the
overall regulatory and instructional framework. A development implementation action plan
comprising of implementation schedule, role of stakeholders, regulations and institutional
strengthening mechanisms are formulated. It also aims at institutionalizing through
monitoring mechanisms.

The CDP, considered as an inter-sectoral exercise, took into account the existing situation
including assessing the current status of municipal services, its fiscal status, operational
and management procedures. The CDP also took into consideration the works and plans of
other government and quasi government agencies contributing towards the growth and
development of the city and was prepared by undertaking the following tasks:

• Vision exercise;

• Situation analysis;

• Formulation of goals and strategies;

• Capital investment plans and project scheduling;

• Stakeholder workshop;

• Action and operating plan indicating the policy and reforms measures for improved service
provision and delivery.

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City Development Plan, Raipur City City Development Framework and Process

The entire exercise was carried out through robust stakeholder participation through various
stages. The data has been captured on various dimensions of municipal functions, including
governance, finances, infrastructure, civil societies and poverty alleviation initiatives, etc.

Stakeholder analysis: The following stakeholders were identified:

• The city district level agencies like RMC, Raipur Urban Development Authority

• Officials of the department of urban development and municipal Administration, Government

of Chhattisgarh

• Representatives of live departments like education, health, welfare, electricity, housing and
others responsible for delivery of public services

• Representatives of business trade industry and other private sector agencies

• Non-governmental and community based organizations

• Representatives of the poor communities- NHGs, NHCs, SHGs, etc.

• Representatives of the civil societies, including media, academic institutions, etc.

A key feature of Consultations is inclusion of the representatives from poor community

Development Societies and Self-Help Groups in the entire process including the
working groups

Orientation To The Key Stakeholders

The key stakeholders such as Corporators, Officials from various other convergent
departments, and representatives of community based organizations and civil society
organization etc. were familiarized with the purpose, process and expected outcomes of the
CDP. An important feature of preparation of CDP was consistituation of working groups with
sector specialists. The following working groups were constituted:

• Governance

• Poverty Alleviation and Slum Improvement

• Land-use planning and environment

• Economic Development

• Environmental Improvement

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City Development Plan, Raipur City City Development Framework and Process

• Traffic and Transportation

• Water supply and Underground drainage

• Sanitation and Solid waste management

• Health

• Education

• Municipal Finance

These working groups identified indicators for sustainable development in the respective
areas and reviewed the current situation, projected the requirements over a period of two
decades and made valuable suggestions and recommendations to improve governance in
all its aspects including infrastructure provision and poverty alleviation. The RMC
constituted the Municipal Reforms Committee and three Working Groups on governance
reforms, Infrastructure and Poverty Alleviation, as per the guidelines of Chhattisgarh Urban
Reforms and Municipal Services project (CURMSP). These Groups also made valuable
recommendations.

The Government of India has launched a major programme, entitled “Jawaharlal Nehru
National Urban Renewal Mission (JNNURM)”, for promoting reforms and investments in
select 63 cities in the country. Raipur is one of the eligible cities under the scheme. Under
JNNURM, it is mandatory to prepare City Development Plan through consultative process.
Accordingly, the Raipur Municipal Corporation (RMC) has prepared a CDP based on the
City Development Strategy formulated earlier. The insights of the workshop groups and
their recommendations were reviewed and the CDP finalized through consultations. The
CDP process is given in Figure 1.2.

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City Development Plan, Raipur City City Development Framework and Process

Figure 1.2 City Development Strategy Process

City Assessment Parameters

Opportunities, strengths, weaknesses, • Demography
unmet demand or gap
• Economic Base
• Financial Profile
• Infrastructure
Future Perspective and Vision
• Environment
Direction of change and
• Institutions
Projections/expectations
• Urban Poor

Strategies for Development Parameters

• Options and Strategies • Environmental

services
• Social Infrastructure
• Reforms • Urban Renewal
• Slum Improvement
• Transportation
• Criteria for prioritization • Services to the urban
poor

City Investment Plan & Financial Alternatives

1.7 CONSULTATIVE PROCESS IN RAIPUR

The ethos around which a City Development Plan is built is the notion of participatory
planning. The planning process therefore needs to be a consultative one, with stakeholders
representing a wide spectrum of interests taking part in the discussions and dialogue
reading to the formulation of a vision and development objectives, identification of priority
sectors and projects.

This City Development Plan has been prepared for the city of Raipur, as part of the initiative
of the Government of Chhattisgarh to access funds from the Jawaharlal Nehru National
Urban Renewal Mission (JNNURM).

The City Development plan process for Raipur is given in Figure 1.3

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 City Development Plan, Raipur City City Development Framework and Process

FIGURE 1.3 THE PLANNING PROCESS

Task 1: Initial Consultation and Reconnaissance Task 2: Analysis of Data

• Initial Meeting with officials of Municipal Analysis of data, (Published / Unpublished viz.
Corporation and other key parastatal census, municipal records etc.) maps, drawings,
agencies (eg. PHED, UDA). existing project reports.
• Data needs and requirements.
• Reconnaissance visit of project area. • Demographic & Socio-Economic
• ULB financial and organization Information,
• Rapid review of relevant Acts.

FIELD LEVEL SITUATION ASSESSMENT

Task 3: Rapid Assessment of
Land Use, Infrastructure &
Environment
Rapid field assessments with
ULB/ PHED, and other
Stakeholders.
Task 4: Rapid Assessment of Socio- Economic Task 5: Rapid Assessment of
Issues Financial and Institutional
Capacity
Rapid assessments of local economy, income • Organization mechanisms
profile, key occupations, primary health and of ULB
education services. ULB performance in poverty • Correlation of ULB with
schemes. other parastatal agencies

Stakeholders Consultations:
Consultations with ULB councilors, parastatal officials, NGOs, prominent local citizens, etc.

VISION / PRELIMINARY CONCEPT

Task 6: Demand Analysis Task 7: Supply Analysis

Taking citizen priorities into account to assess Coordination mechanisms between all city level
Infrastructure & service delivery gap agencies. Projection of ULB finances, organizational
capacity

Task 8: Priority Project Identification and Preparation Task 9: Reform Measures and Institutional
of City Investment Plan (CIP) Strengthening Plan

Consolidation of Vision, Development Objectives/ Goals, Strategy and Plans for all sectors into draft CDP

Task 10: Workshop - Prioritization of Project proposals and Consensus on draft CDP
Participation by all key stakeholders

Task 11: FINALIZATION OF THE CDP

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City Development Plan, Raipur City City Development Framework and Process

1.8 CITY DEVELOPMENT PLAN UNDER JNNURM

The City Development Plan is an essential element of

Although CDPs are a mandatory
State Government’s overall application for funds under requirement to access large
investible funds from GoI, they
the JNNURM. CDPs provide cities the opportunity to should be seen by State
achieve convergence of opinion and ideas across Governments and ULBs as an
initiative to usher in a new era of
various infrastructure, service delivery and institutional urban local self-governance
reforms agenda. Prepared through a participatory
process with various urban stakeholder groups, The CDP and will set a “vision” for the
future development of the city, a set of objectives and goals which the city aims to achieve
and identifies thrust areas in various sectors which need to be addressed on a priority basis
in order to achieve the objectives and the vision. It thus provides the overall framework
within which projects will be identified and put forward in a City Investment Plan. Seen in
this light, the City Development Plan differs from a traditional Master Plan which focuses on
development trends based on land use and related controls.

The Government of India has launched “Jawaharlal Nehru National Urban Renewal
Mission” in the current year 2005-2006. To access the funds under JNNURM, the city is
required to prepare City Development Plans (CDPs) and implement a set of reforms at the
state and the city levels by entering into a tripartite agreement. The CDP also took the
inputs from studies viz., the Master Plan for preparation under the Town and Country
Planning Department under UDA. This document is result of extensive consultations with
stakeholders in RMC as per the guidelines of Jawaharlal Nehru National Urban Renewal
Mission.

Features of a City Development Plan

A City Development Plan should have the following features:

• Prepared for a 5-10 year horizon, such plans are based on past trends, existing strengths
and limitations

• The planning horizon is set to be foreseeable and achievable

• The plans seek to integrate infrastructure requirements and environmental concerns together
with land-use patterns and regulation of the same

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City Development Plan, Raipur City City Development Framework and Process

• The plans derive the vision, objectives and targets from socio-economic needs and quality of
life needs as articulated by their citizens, their representatives and other stakeholders from
civil society

• Poverty alleviation and needs of urban poor are important elements of such plan with
commensurate allocation of resources

• The plans focus on resources available, seek to balance needs and priorities with available
resources

• Multiple stakeholder agencies are involved in such planning to ensure a shared and
commonly owned vision, development objective and plan of action

• Private sector role in preparation of such plans, financing and implementation is ingrained
Institutional reforms and capacity enhancement measures of urban local bodies and / or
other civic agencies are integral to such plans

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