From Mumbai to “Slumbai”
When you fly into Mumbai and the plane is landing, the first thing that meets your eyes is a cramped sprawl of corrugated iron–roofed huts. They are right next to the airport runway, quietly yet powerfully reminding you that you are entering a city where nearly half of the population lives in slums. As India’s economic capital and most populous city,
Mumbai has a total population of 12.44 million — 42 percent of whom live in slums. The percentage of slum dwellers in the city is so high that locals joke that Mumbai should be renamed “Slumbai.”
In Mumbai, a highway divides the “formal city” and the “informal city.”
(Photo by Yue Zhang, January 2016.)
The definition of a slum has two dimensions. From a legal perspective, slums are unauthorized and illegal structures, where inhabitants do not have legal title to the land that they occupy. In terms of living conditions, slums are areas that are short of basic amenities and characterized by the prevalence of insanitary, squalid, overcrowded conditions, and hence become a source of danger to their inhabitants’ health, safety, or convenience.
Slum housing alongside the railway in Mumbai.
(Photo by Yue Zhang, January 2016.)
In the first official survey that Mumbai conducted in 1956, 8 percent of the total population lived in slums. Over the years, the population of the city grew at a high speed and so did the number of slum dwellers. Today, nearly 5.2 million people live in slums, and the number is still increasing.
Nearly one million people live in Dharavi, the largest slum in Mumbai as well as in Asia, where the film
Slumdog Millionaire was shot. It is home to a large number of microindustries, including pottery, tanning and leatherworking, and plastic recycling. A walk through Dharavi or any other slum would completely change your mind about what slums mean in Mumbai: they are not clusters of temporary shelters, but complex ecological and economic systems, “a city within a city.” Many slum dwellers in Mumbai are not the official poor who live below the poverty line, but are well-educated, middle-class people who are deprived of adequate housing.
Outside a pottery shop in Dharavi, the largest slum in Mumbai and Asia. There are many microindustries in Dharavi; pottery is among the major ones. A significant proportion of pots in India are made and sold here.
(Photo by Yue Zhang, January 2016.)
Plastic recycling industry in Dharavi.
(Photo by Yue Zhang, January 2016.)
Understanding the Prevalence and Persistence of Slums
Large-scale slum proliferation is a complicated issue relevant to a variety of factors. The scarcity of land, dictated by Mumbai’s peculiar geography and heightened by the competition from other economic activities, is one factor that has made formal housing unaffordable for most Mumbaikars. However, the expansion and persistence of slums in Mumbai is primarily a function of failed housing policies combined with other political factors.
In the past 60 years, a series of policies have restricted the land and housing supply in Mumbai, rather than creating a favorable environment for the construction of large housing stock needed for the growing population.
The percentage of slum dwellers in the city is so high that locals joke that Mumbai should be renamed “Slumbai.”
The Rent Control Act, passed in 1947, led to the freezing of rents, which disincentivized private capital from creating housing stock for rental purposes. In 1973, the Rent Control Act was amended to provide all the tenants’ rights to the licensees, making the rental business even more difficult for the private sector. Further, the passage of the 1976 Urban Land Ceiling and Regulation Act put several tracts of land under litigation and restricted the supply of large tracts of land for the purpose of housing construction.
Even as the rental market has been dismantled and private sector has been disincentivized to create more housing stock, the government has made little effort to increase the supply of affordable housing.
In 2015, Prime Minister Narendra Modi announced the vision of “Housing for All,” in the hope of providing more affordable housing to the poor. This is the first time that the Indian government has brought up housing as a major issue on its agenda, but it is up to each state to formulate its own plans on how to achieve the goal. The Government of Maharashtra (which administers Mumbai) formulated a comprehensive and ambitious New Housing Policy and Action Plan that aims to provide 1.9 million houses, of which 0.8 million will be in Mumbai, for low-and middle-income groups in the state. But whether and how the plan will be implemented is still unknown.
Over the years, slums have become “vote banks.”
Politicians periodically provide services to slum dwellers in exchange for votes. The exchange through electoral politics brings about incremental improvement of the living conditions of slums, but does not solve the long-term problem of housing shortage. On the contrary, the exchange stabilizes existing slums and even provides incentives for the creation of new slums.