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of Mumbai:
Story of Urban Sprawl
TITHI SANYAL
Master of Architecture 2018
Tithi Sanyal is a student in the Master of Architecture program at the University of
Michigan. She received her Bachelor of Architecture degree from Balwant Sheth
School of Architecture, India in 2015. Shortly after graduation, she joined Anukruti,
an NGO that develops community and play spaces in the slums of Mumbai. The
organization transforms micro-pockets into creative and safe places, adding
considerable value to the “blue-collar” communities of Mumbai. Her interests lie in
understanding children’s behavior and tendencies in order to inform design that
fosters learning through creative play.
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A B ST R ACT
In Mumbai, informal dwellings such as slums and tenement housing, or chawls, are an
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outcome of the exponential increase in the city’s population after the upsurge of mills
and industries during 19th-century British rule in India. Due to insufficient housing for
the migrant working population, slums and pavement dwelling conditions came up at
the doorsteps of factories, mills, and workshops within the city in the 1940s. By looking
at the two distinct time periods, Colonial (1858-1947) and Post-Colonial India (1947-
present), this paper intends to compare the living and housing condition of the
so-called slum neighborhoods to the chawls of the city.
Slums and chawls create unique living and resting scenarios that blur public and
private spaces and are understood as informal and flexible, yet extremely functional
living possibilities. This paper depicts how chawl settlements, as established and
influenced by British colonialism, gave rise to slum settlements and public sleeping,
and inspired different living scenarios in formal, informal, and pavement-dwelling
conditions in post-colonial Mumbai. Further, the paper investigates how the chawl,
through the administration of the state, has not only restructured the overall urban fabric
but has also given way to non-conventional ways of living in both formal and informal
settlements.
AGORA 12 23
The Chawls and Slums of Mumbai
H O U S I N G M U M BAI KARS
24
and economically mixed population,
without a defining political identity. Usually,
“slums provide shelter to the poor, lower
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classes and . . . migrants who come to
the city in search of jobs.”9 However, it
is not uncommon for slum dwellers to
remain in these units even after securing
a steady income. During the colonial rule,
slums were architecturally understood
as temporary squatter housing situated
Figure 2: Int er io r vie w of a room in th e Jam Mill ch awl near places of employment. However, in
sho w ing a three-b y- th re e - foot ope n was h in g area- mori
w it hin the k it chen (Raje s h Vora, Th e Ch awls of Mu mbai- independent India, these settlements have
ga ller ies o f lif e, 20 1 1 ).
gradually shifted to undesirable areas in
and around the city, such as wastelands or
each room contains a three-by-three-foot marshy areas adjacent to railway tracks.
washing area, or mori — a water tap or a
corner space to store water. Today, the Appadurai mentions that the slum also
mori is sometimes converted into a private transitions into pavement-dwelling
washing and bathing area within the unit. conditions via the use of ephemeral
At the ground floor, there are communal materials such as tarpaulins. Theorist
washing areas for utensils and clothes that Madhura Swaminathan (2003) defines
are also equipped with a shared water tap.7 these dwellings as a “small space enclosed
on two sides by gunny sacks or old saris
Like the chawls, slum neighborhoods [women’s attire], and covered on top
also have overcrowded living conditions. by sack cloth, old sheets of plastics or
However, slum settlements are much more occasionally, tarpaulin, and held up by a
diverse in their construction; they range couple of wooden rods. The walls of the
from tent dwellings to mud and thatched buildings adjoining the pavement provide
structures to cement and brick rooms.8 Each a third wall to the pavement dwelling.”10
unit is generally under eight by eight feet These units are generally four-by-five-foot
in size, with no civic amenities. In contrast, shelters sufficient to seat no more than
slums are typically inhabited by a socially five members in each. These pavement
Figures 3 & 4: A narrow alle y s pace be twe e n two lin ear c h awl s s i mi l ar t o t h e n arrow al l eys wi t h i n s l u m s ett l em en t .
AGORA 12 25
The Chawls and Slums of Mumbai
dwellings derive their name from their in present-day central Mumbai in areas
location – insecure spaces throughout the like Tardeo, Lalbag, and West Parel.15 The
city such as on the sidewalks or in front of expansion of industries in Mumbai resulted
gutters.11 in a demand for both commercial space
and housing for the working class.16 Poverty
Overall, the informal living conditions drove lower- and middle-class workers to
in Mumbai can be theorized under the live in the least desirable spaces, which
categories of chawls, slums, and pavement were often near industries. This process led
dwellings. While the clear distinctions to countless migrant mill workers taking
between each category have become more residence in undesirable areas, forming
and more blurred over time, their origins segregated enclaves within the city.17
can all be traced back to colonial rule in
India. In 1863, the British orchestrated the
construction of a robust and affordable
WO R K I NG-CLASS transportation system of local railways. In
HOUSING IN 1872, the addition of trams, trains, and bus
CO LO N I A L M UM BAI routes throughout the city allowed people to
move into the suburbs post-independence.18
The Portuguese bestowed the city of However, during the inception of public
Mumbai on the King of England in 1661,
and in 1668, the East India Company
leased the city for industrial pursuit. At
that time, Mumbai was comprised of three
entities: the main castle on Bombay Island,
the Mahim annexation, and the eight
villages of Mezagaon, Varlu, Parel, Vadadla,
Naigaum, Matunga, Dharavi and Colaba.
With the growth of Bombay Island’s castle
population, a fort wall was constructed in
place of the castle in 1715.12
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transportation, local trains were available
only to the fortunate classes. This led to
further inequity throughout the city; in
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1911, approximately 80% of Mumbai’s
population lived in chawls.19 Continued
industrialization throughout the early 20th
century caused exponential increases
in population and contributed to the
continued growth of chawls and slums
beyond the wall.
AGORA 12 27
The Chawls and Slums of Mumbai
28
70 textile mills in the city, it was estimated
that around one million people slept on
roads or footpaths.30 In the 1940s – with
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the end of World War II and in the midst
of India’s independence and partition –
Mumbai experienced yet another influx
of migrants and refugees who would find
themselves living in slums and pavement
dwellings.31 The census of 1911 shows that
69% of the population lived in one-room
Figure 11: Col on i al c h awl s as ref u rb i s h ed f am i l y
dwellings; by the 1930s, an average of dwel l i n g (Raj es h Vora, Th e C h awl s of M u m b ai - g al l eri es
around four people lived in each tenement, of l i f e, 2011).
WO R K I NG-CLASS
HOUSING IN
P O ST- CO LO N I AL M U M BAI
AGORA 12 29
The Chawls and Slums of Mumbai
30
Some of the possible answers lie in the still persists even today despite families
perceptions of permanence and the types moving into chawls and combining
of rents that are paid for living or sleeping adjoining rooms to create conventional
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space. To understand the boundaries apartments. Common spaces like galleries,
between public and private spaces and stairs, and corridors provide sleeping
the agency of the individual upon his spaces for family members, guests with
dwelling, we need to recognize the concept negotiated rents, or individual migrants.
of “body as home.” There is a culture of Galleries have an unwritten reservation
public sleeping and the spatial construct of for sleeping spaces, as every possible
home and dwelling in present-day Mumbai, inch of the chawl is used to spread out
where “home” is considered to be any sleeping mats at night, including terraces,
place where one can sleep. For the poorest the staircase landings, spaces under the
residents in the city, sleep is the sole form staircases, and the steps of the ground-floor
of security that connects them to their jobs shops.46
and families, a necessity for those who can
be at home only in their own bodies. 44 The notion of spectral housing is not limited
to the urban poor. Rather, it is a lifestyle
This understanding of public sleeping as common to a wide range of people of
a “spectral home” is associated not only different economic standings — anyone
with pavement and slum dwellers but also who cannot afford to buy or rent in a city
with the understanding of the “negotiated where space is a premium. The ideas of
spaces” within the chawl.45 Public sleeping being and dwelling experience “complex
Figure 14: The chawl is on e of th e reas on s for th e fin e line b et ween t h e “ b ody as h om e” an d h om e as a p h ys i c al
co nstr uct , blur r ing bou n darie s be twe e n pu blic an d privat e s p ac es .
AGORA 12 31
The Chawls and Slums of Mumbai
32
normal to families residing within each unit.
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was intended to attract laborers to work
in the textile mills and industries, has
now become an ordinary way of living
in post-independence India. The chawl
is one of the reasons for the fine line
between the “body as home” and home
as a physical construct, further blurring as
it does the boundaries between public
and private spaces. In retrospect, colonial
dominance promoted cramped conditions
for the working class despite the ability
to accommodate more spacious units
when the original chawl design was first
implemented in the city. This compact living
condition may not be acceptable in the
present day, yet it is continuously included
in newer formal and informal developments
to accommodate large populations within a
small footprint.
AGORA 12 33
The Chawls and Slums of Mumbai
2. Arjun Appadurai, “Urban Cleansing: Notes A Brief History of 28. Dwivedi and Mehrotra, Bombay: The Cities Within, 198.
Decosmopolitanization,” Library 12, no. 3 (2000), 627–51, 637.
29. Adarkar, The Chawls of Mumbai: Galleries of Life, 5.
3. Ibid.
30. Ibid., 2.
4. Neera Adarkar, “Salaries and Wages: Girgaon and Girangaon,”
The Chawls of Mumbai: Galleries of Life, (Gurgaon: ImprintOne, 31. Prodipto Roy et al., Urbanization and Slums (New Delhi: Har-
2011), 16. Anand Publications, 1995), 77.
5. Dwivedi and Mehrotra, Bombay: The Cities Within, 211. 32. Ibid.
6. Ibid., 196. 33. Kaiwan Mehta, “The Terrain of Home, and Within Urban
Neighbourhoods (A Case of the Bombay Chawls),” The Chawls of
7. Dwivedi and Mehrotra, Bombay: The Cities Within, 211. Mumbai: Galleries of Life, (Gurgaon: ImprintOne, 2011), 83.
8. Madhura Swaminathan, “Aspects of Poverty and Living 34. Prasad Shetty, “Ganga Building Chronicles,” The Chawls of
Standards,” Bombay and Mumbai: The City in Transition, (New Mumbai: Galleries of Life, (Gurgaon: ImprintOne, 2011), 61.
Delhi: Oxford University Press, 2003), 92-93.
35. Mehta, “The Terrain of Home,” 83.
9. Rajendra Vora and Suhas Palshikar, “Politics of Locality,
Community and Marginalization.” Bombay and Mumbai: The City 36. This act was introduced to prevent exploitation of tenants due
in Transition, (New Delhi: Oxford University Press, 2003), 172. to World War II and partition of colonial India after Independence.
Rents were kept low to provide relief to the city’s migrants and
10. Swaminathan, “Aspects of Poverty and Living Standards,” tenants during these events. The rent control act has gone
92-93. through multiple amendments and still persist in certain form
today.
11. Ibid.
37. P. K. Das, “Slums: The Continuing Struggle for Housing,”
12. Dwivedi and Mehrotra, Bombay: The Cities Within, 44. Bombay and Mumbai: The City in Transition (New Delhi: Oxford
University Press, 2003), 227.
13. Ibid.
38. Appadurai, “Urban Cleansing: Notes A Brief History of
14. Ibid. Decosmopolitanization,” 638.
15. Dwivedi and Mehrotra, Bombay: The Cities Within, 51. 39. Roy et al., Urbanization and Slums, 77.
17. Adarkar, The Chawls of Mumbai: Galleries of Life, 6. 41. Appadurai, “Urban Cleansing: Notes A Brief History of
Decosmopolitanization,” 644.
18. Dwivedi and Mehrotra, Bombay: The Cities Within, 124-125.
42. Ibid., 646.
19. Adarkar, The Chawls of Mumbai: Galleries of Life, 2.
43. Dwivedi and Mehrotra, Bombay: The Cities Within, 44.
20. Ibid., 6.
44. Appadurai, “Urban Cleansing: Notes A Brief History of
21. As most workers didn’t have access to toilets, these specific Decosmopolitanization,”638.
provisions ensured hygienic working conditions and higher
standards of products generated in the mills. 45. Ibid.
22. Ibid. 46. Adarkar, The Chawls of Mumbai: Galleries of Life, 17.
34