Understanding the contribution of the BSUP (JNNURM) to inclusive cities in India

Abstract

The Basic Services for the Urban Poor (BSUP) sub-Mission of the Jawaharlal Nehru National Urban Renewal Mission (JNNURM) sought to address the needs of some of the lowest-income and most vulnerable urban dwellers in 63 Indian cities promising ‘a garland of 7 entitlements’ – secure tenure, affordable housing, water, sanitation, health, education and social security. We researched BSUP outcomes in Bhopal, Bhubaneswar, Patna, Pune and Visakhapatnam, which presented a wide range of socio-economic contexts and economic development, and varied civil society involvement in BSUP programming. The research analysed outcomes of the BSUP interventions; addressed the significance of State capacities, commitments and vision for urban development for these outcomes; and then considered the ‘drivers of capacity, commitment and vision’. The vision of urban development emerged as a significant indicator of outcomes. In practice, the BSUP became a housing programme. The extent to which informal settlement upgrading was preferred over resettlement and site redevelopment made a significant difference to residents’ satisfaction. Also important was willingness to work with civil society organisations, incorporating their expertise and skills. However, these were not present in all cities. Residents in Bhopal and Visakhapatnam may face particular affordability challenges, due to high levels of debt incurred through participation in the BSUP. In summary, BSUP experiences and outcomes provide evidence of the significance of vision capacity and commitment. While these are partly determined by levels of economic and institutional development, they are also influenced by government willingness to collaborate with civil society agencies. This paper is part of the Effective States and Inclusive Development Research Centre programme