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Cities 53 (2016) 98109

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Cities

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City prole: Pune, India


Rashmi Krishnamurthy a,, Rajeev Mishra b, Kevin C. Desouza c
a
School of Public Affairs, Arizona State University, Mail Code 3720, Suite # 400, 411 N. Central Ave., Phoenix, AZ 85004-0687, USA
b
Kolkata Government of West Bengal, 18, Lalbazar Street, Kolkata 700001, West Bengal, India
c
School of Public Affairs, College of Public Service & Community Solutions, Arizona State University, 411 N. Central Ave., Mail Code 3520, Suite #750, Phoenix, AZ 85004-0685, USA

a r t i c l e i n f o a b s t r a c t

Article history: Cities around the globe are urbanizing at a fast rate and are facing the critical challenges of managing economic
Received 2 September 2015 development and inclusive growth. This scenario is particularly troublesome in developing countries where sec-
Received in revised form 16 January 2016 ondary cities are growing at an unprecedented rate but lack the institutional capacity to manage urbanization.
Accepted 28 January 2016
Secondary cities are tier II cities below primary cities in the urban hierarchy. To examine the unique challenges
Available online 21 February 2016
and opportunities facing secondary cities, we trace Pune's urban growth. Pune is the second largest city in the
Keywords:
state of Maharashtra, India and is emerging as an industrial and educational hub. The presence of large industrial
Pune and educational sectors has resulted in massive urban population growth, including a large migrant population
Urban development from rural areas. This massive growth is straining Pune's critical infrastructures. First, we trace Pune's urban his-
Pune Municipal Corporation tory in terms of social, economic, administrative, and environmental planning and development. Second, we ex-
Inclusive growth amine key urban challenges faced by the city. We nd that while the city of Pune is moving towards becoming a
Migration megacity, it still has a chance to change its trajectory to become one that is more sustainable, equitable, and just.
Secondary city However, to evolve into a sustainable and equitable city, Pune's urban planners need to pay careful attention to
several urbanization issues. This prole offers insights regarding the unique challenges faced by secondary cities
in developing countries and discusses policy implications to transform secondary cities into catalysts for econom-
ic growth and development.
2016 Elsevier Ltd. All rights reserved.

1. Introduction urban agglomeration in India (Census of India, 2011). The city is known
for its educational (e.g., research institutions and world class universi-
In 2014, the United Nations (UN) Department of Economic and Social ties) and industrial (e.g., automobile and information technology (IT)
Affairs reported that more than 54% of the world's population lives in cit- companies) sectors that have attracted people from India and other
ies. According to the report, while all regions around the world are urban- parts of the world (Jaybhaye, Mundhe, & Dorik, 2014). According to
izing at a fast rate, cities in Asia and Africa are expected to grow even the Mercer 2015 Quality of Living Ranking (which evaluated living con-
faster. By 2050, countries such as India, China, and Nigeria are projected ditions in 440 cities around the world), Pune ranks 145 for quality living,
to add more than 404 million, 292 million, and 212 million urban higher than Mumbai (152) and New Delhi (154) (PTI, 2015a). The
dwellers, respectively (UN Department of Economic and Social Affairs, growth of Pune as an education hub has resulted in students from all
2014). Given the rapidity of this urbanization, by 2030 cities such as over India and the world coming to the city (Bhailume, 2012), and the
Pune (formerly known as Poona) are expected to grow into megacities growth of industry has contributed to massive migration from rural
with approximately 10 million urban dwellers (Sankhe et al., 2010). areas (Van Kampen & Van Naerssen, 2008).
The massive urbanization of Pune and its suburbs can be attributed To meet the growing demands of its urban dwellers and to manage
to its proximity to Mumbai.1 With a population of 5.4 million, Pune is the strain on the city's physical infrastructures, Pune city administrators
the second largest city in the state of Maharashtra and the eighth largest are implementing measures to redesign the urban sphere. In 2012, the
Pune Municipal Corporation (PMC) (2012) approved a development
draft plan (DP) for 20 years (20072027). The DP included plans to de-
velop metro lines, expand main roads, and build low-income houses
Corresponding author. (TNN, 2013). In addition, the Indian government chose Pune to be
E-mail addresses: Rashmi.Krishnamurthy@asu.edu (R. Krishnamurthy), part of the 100 Smart Cities initiative. According to this initiative, the
rajeevmishra96@hotmail.com (R. Mishra), kev.desouza@gmail.com (K.C. Desouza).
URL: http://www.kevindesouza.net (K.C. Desouza).
Indian central government will invest INR 100 cr ($15.3 million) per
1
Mumbai is the most populous city in India, with a population of 18.4 million (Census of year for 5 years to help cities develop smart infrastructures, such as elec-
India, 2011). tricity, housing, parking, sanitation, and transportation (TNN, 2015b).

http://dx.doi.org/10.1016/j.cities.2016.01.011
0264-2751/ 2016 Elsevier Ltd. All rights reserved.
R. Krishnamurthy et al. / Cities 53 (2016) 98109 99

While Pune city administrators are making efforts to develop the as an IT and automobile hub (Parasnis, Chourey, Tomar, Mahal, &
city's urban sphere, it is critical to understand: (1) the key challenges Kulkarni, 2010).
facing Pune in terms of transforming it into an economic hub that is ef-
cient, livable, healthy, and sustainable and (2) the measures taken by 2.1. Location
the city to manage inclusive growth and development. In this prole,
we discuss the efforts undertaken by the city of Pune to leverage IT to Pune is located at a longitude of 73.856667 east and a latitude of
transform itself into a smart city. We highlight various policy and gover- 18.520278 north and is situated on the Deccan plateau (see Fig. 1). It
nance initiatives undertaken by the city administration in collaboration lies on the side of the Western Ghats and is 560 m above sea level
with businesses, non-governmental organizations (NGOs), and citizens near the conuence of the Mula and Mutha rivers (Nalawade, n.d.).
to manage and develop its critical infrastructures. Specically, we em- Pune has a sub-tropical, semi-arid climate with an average annual tem-
phasize the key challenges faced by the city of Pune to manage uneven perature of 76.5 F (or 24.7 C) (Pune Climate Pune Temperatures Pune
development and ensure inclusive growth. The city also faces several Weather Averages, n.d.). Table 1 shows the average monthly tempera-
challenges in terms of managing the strain on its critical infrastructures ture (normal, warmest, and coldest) and precipitation for the city of
relating to water, land, and energy. Pune. Much of the rainfall occurs between March and June (Pune,
Discussing the efforts undertaken by Pune to transform itself into an India, n.d.). The PMC covers an area of 243.84 km2. The city is located
economic hub is important for several reasons. First, many cities in the 178 km southeast of Mumbai by road (PMC, n.d.). (See Table 2.)
developing world, especially secondary cities,2 are experiencing un-
precedented population growth that includes massive migration from 2.2. Administrative structure
rural areas. Second, many cities are struggling to manage inclusive
growth, as developing countries like India have clusters of low-income The PMC was established on February 15, 1950 and is headed by an
people living in slums. Third, cities are facing the challenge of managing Indian Administration Service ofcer appointed by the Maharashtra
transportation, energy, and water infrastructures due to massive state government. The mayor, who is the publicly elected head, is re-
population growth. Secondary cities are urbanizing at a fast rate but sponsible for managing 48 zones and 152 elected public representa-
lack the capacity to manage urban growth and development (Bolay & tives. There are 17,701 employees working for the PMC. The PMC's
Rabinovich, 2004; Roberts, 2014a). While secondary cities are gaining budget for the scal year 20142015 was INR 3608.03 cr (approximate-
prominence as economic hubs, there has been little systematic research ly $553.6 million) (PMC, n.d.). Based on its urban capacities and re-
about the major obstacles they face, especially cities in developing coun- sources, the Janaagraha Centre for Citizenship and Democracy (2014)
tries (Bolay & Rabinovich, 2004). Thus, it is critical to understand how ranked Pune as the 6th best city in India. In April 2015, the Maharashtra
cities like Pune are leveraging technology, building partnerships, and state government announced the establishment of the Pune Metropoli-
managing inclusive growth to develop into economic hubs that are ef- tan Region Development Authority (PMRDA) to outline and implement
cient, livable, and sustainable. an integrated development plan for Pune district. The PMRDA will cover
The remainder of this paper is organized as follows. The next section Pune, the Pimpri-Chinchwad Municipal Corporation (PCMC), and the
briey discusses the urban history of Pune with respect to its social, eco- Talegeon Dabhade, Lonavla, Alandi municipal councils. In addition, the
nomic, administrative, and environmental context. We then discuss the PMRDA will also include 100 fringe villages (TNN, 2015a). The main
current challenges faced by the city and its habitants. Next, we critically goal of PMRDA is to focus on drafting and implementing one develop-
examine the various efforts undertaken by the city administrators in ment plan for the area that includes growth, especially in the fringe
terms of management and governance to address these urban chal- villages.
lenges. We conclude with a discussion of a way forward to help urban
planners effectively navigate the challenges of managing and governing 2.3. Demographics
secondary cities.
Pune's population grew from 450,000 in 1950 to 3.1 million in 2011
(Census of India, 2011; PMC, 2012). In 2011, the total population of the
2. Background: overview of urban growth
Pune Metropolitan Area was ve million (Census of India, 2011). Several
factors contributed to this growth, including migration due to invest-
Pune has a long history and played a signicant role in India's pre-
ment in multinational companies (MNCs). For example, the migrant
independence era. The earliest mention of the city dates back to
population rose from 370,000 in 2001 to 660,000 in 2011 (PMC,
937 AD. The name of the city derives from the Sanskrit word punyagara,
2012). One of the key reasons for this massive increase was the econom-
which means city of virtue (Education Landscape of Pune, n.d.), and the
ic liberalization policy adopted in 1990 that led to increased investment
city served as the capital of the Maratha Kingdom in the 18th century. In
in the IT, manufacturing, and service industries. Almost 60% of the IT
1817, Pune came under British rule and was used as a summer residence
workers in Pune have migrated from other cities (Mulay, 2009). Further,
for the Bombay3 Presidency. During British rule, the city gained promi-
as the city of Mumbai grew and the cost of living increased, Pune be-
nence as an educational, military, and administrative base. After inde-
came a preferred destination for business. For instance, purchasing
pendence, the city focused its attention on economic growth and
power in Pune is 43.5% higher compared to Mumbai, and the housing
development (Van Kampen & Van Naerssen, 2008). Due to its glorious
rental cost in Bangalore and Mumbai is 13.5% and 55% higher compared
past, Pune is known as the cultural capital of Maharashtra
to that in Pune. In addition, the construction of the MumbaiPune ex-
(maharashtratourism.gov.in, n.d.). After the adoption of an economic
pressway further reduced the travel time between the two cities, mak-
liberalization policy in the 1990s, Pune started making big investments
ing Pune a preferred destination for people looking for houses away
in the IT and manufacturing industries and gradually gained its position
from Mumbai (The Realty Paper, 2015). The growth in the educational
2 sector has also attracted a student population from other parts of India
The concept of secondary cities gained prominence in the 1970s when many develop-
ing countries faced the challenge of managing equitable urban growth and widening the and from foreign countries (Bhailume, 2012).
ruralurban divide. Large cities in developing countries in particular experienced massive The city has also attracted people from rural areas who migrated to
inows of migrants from rural and underdeveloped suburbs, which resulted in deteriorat- the city for employment opportunities and a better quality of life
ing urban areas. To overcome this challenge, many countries adopted regional develop- (Bhailume, 2012). The inux of migrants from rural areas has led to a
ment policies focusing on stimulating growth in secondary cities to promote economic
development in neighboring rural areas and to slow migration to large cities (Otiso,
growing number of slums. The proportion of the population living in
2005; Rondinelli, 1983). slums in the city increased from 15% in 1961 to 40% in 2001 (PMC,
3
Mumbai was ofcially known as Bombay until 1995. 2013). There are 564 slums in the city, of which 353 are ofcially
100 R. Krishnamurthy et al. / Cities 53 (2016) 98109

Fig. 1. City of Pune.

recognized by the PMC (PMC, n.d.). People living in these slums lack ac- under PMC control (B. D. Karve Research and Constancy Cell, n.d.). In
cess to basic amenities, such as water, electricity, and waste removal. A 2014, the Maharashtra state government issued a notication to include
survey in 2008 revealed that only 58% of the people in slums had access 34 fringe villages within the PMC's jurisdiction. This merger will in-
to individual water supplies (B. D. Karve Research and Constancy Cell, crease the geographical area under PMC control from 243 sq. km to
n.d). It is estimated that more than 1.2 million people in the PMC live 500 sq. km (TNN, 2014a).
in slums (PMC, 2012).
The change in the territorial jurisdiction of the Corporation has also 2.4. Education
lead to population growth. The areas within the control of the PMC in-
creased from 129.5 sq. km in 1950 to 145.92 sq. km in 1981. In 1997, Pune is known as the Oxford of the East. The city has always had
23 fringe villages were merged, which further increased the area quality educational institutions and is currently considered a hub for
higher education in elds such as medicine, engineering, biochemistry,
Table 1 biotechnology, and astrophysics. Private educational institutions have
Average monthly temperature and precipitation in the city of Pune. existed in Pune since the early 1800s. For example, institutes such as
Source: http://www.yr.no/place/India/Maharashtra/Pune/statistics.html.
Deccan Education Society, the ShriShivaji Maratha Society, and the Ma-
Months Temperature Precipitation harashtra Education Society were established in the late 1800s and early
Normal Warmest Coldest Normal

January 20.5 C 29.9 C 11.0 C 0 Table 2


February 22.0 C 31.9 C 12.1 C 0 Total and slum population growth in city of Pune.
March 25.6 C 35.4 C 15.8 C 0 Source: PMC Draft Development Plan for Old PMC limit (20072027) & Census of India
April 28.8 C 37.7 C 19.9 C 1 (2011).
May 29.7 C 36.9 C 22.4 C 3
Year Total population Slum population Slum population (% Of total)
June 27.4 C 31.7 C 22.9 C 10
July 25.3 C 28.4 C 22.2 C 17 1961 606,777 92,101 15.18
August 24.5 C 27.4 C 21.6 C 16 1971 856,105 239,701 28
September 25.1 C 29.4 C 20.8 C 10 1981 1,203,363 377,000 31.33
October 25.0 C 31.4 C 18.5 C 5 1991 1,691,430 569,000 33.64
November 22.3 C 30.1 C 14.4 C 2 2001 2,538,473 1,025,000 40.38
December 20.2 C 28.9 C 11.5 C 0 2011 3,100,000 na na
R. Krishnamurthy et al. / Cities 53 (2016) 98109 101

1900s and provided training to people who participated in social reform 20122013, Pune exported INR 295890 million (approximately $4552
movements. In addition, many engineering, medical, and arts colleges million) in software, making it the second largest export in the country
were built during British rule (B. D. Karve Research and Constancy (Express News Service, 2014; Kishrsagar, 2012). To further spur the IT
Cell, n.d). industry in the city, the MIDC is planning to establish Talegaon High-
Currently, Pune has nine major universities, the important ones Tech Park. In addition, the city and its suburbs are home to many auto-
being the University of Pune, Bharati Vidyapeeth, Dyaneshwar mobile companies, such as Bajaj Auto, Tata Motors, Chrysler, Mahindra,
Vidyapeeth, Sinhagad University, and Symbiosis International Universi- Volkswagen, General Motors, and Fiat (PCMC, 2013).
ty. The University of Pune has 811 afliate colleges and is the second The growth of the IT and automobile sectors has led to global con-
largest university in India (Chhapia, 2013). Approximately 300,000 stu- nections and is attracting foreign investments in various elds. For in-
dents attend colleges afliated with Pune University and Pune postgrad- stance, Mars International is set to invest over $106 million (BS
uate departments. Of these students, more than 200,000 come from Reporter, 2015). General Electric is investing over $200 million to man-
other parts of Maharashtra, from other parts of India, and from foreign ufacture products such as jet engine parts and locomotive parts (GE's
countries (Nigavekar, 2009). Some important research institutes are Brilliant Advanced Manufacturing Plant in Pune, India, 2015). The pres-
also located in Pune. For instance, the National Chemical Laboratory ence of the large industrial base led to a 21.5% increase in jobs in the city
(NCL), established in 1950 by the government of India, specializes in (Sawant & Gole, 2011). A recent survey revealed that as of March 2014,
chemistry and related elds. The NCL deals with many areas, such as the insurance, business process outsourcing, telecom, auto, and banking
theoretical chemistry, organic chemistry, biochemistry, polymer engi- and insurance, and marketing industries employ 24%, 14%, 19%, 6%, 16%,
neering, and plant biology (NCL, n.d.). Founded in 1992 by the Universi- an 8% more people than previous year, respectively (dna, 2014b).
ty Grants Commission, the Inter University Centre for Astronomy and The growth of the education, IT, and automobile sectors has led to in-
Astrophysics (IUCAA) promotes the growth of an active astronomy creased demand for services such as banking, restaurants, and hospitals.
and astrophysics research community at Indian universities (IUCAA, Many foreign banks are opening, and the demand for international
n.d.). Founded in 1976, the Centre for Development Studies and Activi- brands is growing fast. For instance, global banks such as Citibank,
ties (CDSA) is a postgraduate and research institute pioneering urban Barclays, Credit Suisse, BNY Mellon, and Deutsche Bank are opening
planning, micro nance, poverty alleviation, and sustainable growth global in-house centers (GICs) in Pune. These GICs are expected to create
and development (CSDA, n.d.). The Symbiosis Institute of International more than 5000 new jobs in the city and are also moving people from
Business is one of the top B schools in India (Top 25 Business B- other branches in Mumbai, Hyderabad, and New Delhi (Bhattacharyya,
Schools In India, 2015). Due to the presence of so many higher educa- 2014). Companies such as Amazon are also opening up customer service
tion and research institutes, approximately 30,000 foreign students centers in Pune. Amazon's India Human Resources Director, Raj
from 80 countries come to Pune every year (Chatterjee, 2013). Raghavan, noted that Pune is a vibrant city that has a great talent pool,
Pune is also home to various military organizations. Military bases good infrastructure, and potential for growth (PTI, 2015c). Due to mas-
were established in Pune during British rule. Since independence, Pune sive growth in the educational and industrial sectors, Pune is emerging
continued as a base for several military organizations. For instance, The as one of the fastest growing cities. With a gross domestic product of
Indian Army Southern Command has its headquarters in Pune (PMC, $48 billion, Pune has the 8th largest metropolitan economy in India
2008). The National Defense Academy (NDA) based in Khadakwasla, (Santosh, 2014). The number of multi-millionaires in Pune increased
Pune provides training to Indian armed forces and of friendly foreign from 60 in 2004 to 250 in 2014. The city experienced the fastest growth
countries (NDA, n.d.). The NDA is the rst tri-service academy in the in multi-millionaires in the country (PTI, 2015b).
world that provides combined training to army, air force, and navy ca- Given the local and international demand, Pune is also becoming a
dets (Defense, n.d.). The Military Intelligence Training School and hub for wine production. Pune is the home of the rst wine institute in
Depot offers diplomas and certicates in security management, intelli- India. In 2008, there was a demand for 10,000 viticulturists, 5000 winery
gence tradecraft, and strategic intelligence (Savitribai Phule Pune operators, 1000 wine makers, 2500 wine marketing executives and 500
University, n.d.). The Institute for Defense Research and Development wine experts over the next 5 years (Pathak & Kaustubh, 2008). To
Organization (DRDO) is also housed in Pune. The DRDO produces meet this demand, the University of Adelaide (leading institute for viticul-
world-class weapon systems to meet the demands of three servicesthe ture and oenology) in Australia and Champagne Indage (India's largest
army, the air force, and the navy (Defense, n.d.). wine maker) signed a memorandum to establish the Indian Institute of
Vine and Wine in Pune (Pathak, 2007). Pune produces nine million liters
2.5. Economy of wine and sells 7.2 million liters of wine every year (Dastane, 2008). In
2014, the Pune-based Rhythm Winery announced the production of kiwi
Given its proximity to Mumbai and good climatic conditions, Pune has wine in India. The company has already introduced fruit-based wines,
attracted the manufacturing and IT industries. A number of large such as strawberry- and pineapple-based wines, in India (Menon,
manufacturing rms, such as Tata Motors, Kinetic Motors, Thermax, Hin- 2014). Given the growing demand for fruit-based wines around the
dustan Antibiotics, and Serum, are located in Pune (The boom is over in world, the Indian Grape Processing Board noted that many of the tropical
Detroit. But now India has its own motor city, 2008). Further, companies fruits grown in the country could be made into wine (Athavale, 2012).
such as Serum plan to invest INR 1000 cr (approximately $151 million) to Thus, the establishment of a wine industry and wine institutes in Pune of-
establish a new manufacturing unit in Pune. Serum established its insti- fers great potential to further boost the city's economy.
tute in India in 1966 and is the largest supplier of vaccines (e.g., tetanus, The occupational structure of Pune's population has been changing.
r-hepatitis B, measles) to more than 140 countries (PTI, 2014). In 1991, 39.01% of the population worked in the secondary sector and
Traditionally, the city of Pune was known as a pensioner's paradise. 58.96% worked in the tertiary sector. In 2001, 2.5% of the population
However, in 1960, the Maharashtra Industrial Development Corpora- worked in the primary sector, 45.3% worked in the secondary sector,
tion (MIDC) established an industrial complex, covering an area of and 55.2% worked in the tertiary sector (PMC, 2013). In 20112012,
4000 acres in the Pimpri-Chinchwad industrial area in Bhosari. The es- 49.7% of the population was employed in the manufacturing sector
tablishment of the industrial complex led to economic growth and de- (Education Landscape of Pune, n.d.).
velopment in the district of Pune (Damle, 2011). Further, the adoption
of economic liberalization policy in 1990s spurred the establishment 2.6. Urban infrastructure
of software and manufacturing industries in Pune. For instance, the es-
tablishment of Hinjewadi Info-Tech Park in 1999, Pune has attracted The PMC and PCMC are responsible for providing public services
several MNCs and is growing into a prominent IT hub. In the year such as housing, water, waste management, and sewage management
102 R. Krishnamurthy et al. / Cities 53 (2016) 98109

in their jurisdictions. Due to the increase in the number of professionals owned vehicles. There were 0.16 million registered vehicles in Pune in
and students, new townships around Pune are catering to the housing 1985, which increased to 0.59 million in 2000 and almost doubled to
requirements of the middle and upper segments of the population (B. 1.15 million in 2009 (Patil, 2013). Due to the poor public transportation
D. Karve Research and Constancy Cell, n.d). Due to the increased de- system, two wheelers are the preferred mode of transportation. In 2013,
mand for housing, unauthorized construction is taking place in the the city had three million privately owned registered vehicles, two mil-
city, and many of agricultural areas and wetlands are being illegally con- lion of which were two wheelers. Moreover, 20,000 new vehicles are
verted to real estate. Additionally, the growth of the migrant population registered per month (Bende, 2013). The increase in the number of pri-
has led to an increase in the number of slums (PMC, 2013). vately owned vehicles has resulted in massive trafc congestion and re-
The Mula and Mutha rivers are the primary sources of water for the duced driving speeds ranging from 15 km/h to 35 km/h (Kamble,
city. Dams, lakes, and wells are used to supplement these two sources Mathew, & Sharma, 2009). The public transportation system is unable
(B. D. Karve Research and Constancy Cell, n.d). There are nine water to keep pace with the increasing demand, which has resulted in an in-
treatment plants under the PMC and their treatment capacity was crease in the number of private vehicles and thus increased trafc
1318 MLD of water in 2012. In 2000, the PMC introduced water charges congestion.
to increase city administration revenue and to manage water usage. The In addition, cycling and walking comprise about 3335% of the total
PMC installed water meters to collect information about water con- trips in Pune (PMC, 2013.). However, current transportation infrastruc-
sumption. By 2012, 30% of the domestic water supply in the PMC area ture is not suitable for pedestrians and cyclists. Only 47 km of 1922 km
was metered (PMC, 2012). of roads in the city have cycle tracks (PMC, 2012). The lack of adequate
Pune has a total sewage generation of 744 MLD (million liters per transportation infrastructure has led to an increase in the number of ac-
day), with nine treatment plants providing sewage network coverage cidents involving pedestrians and cyclists (Wang, Fang, & Shi, 2011). To
of 97% of the PMC. The collection efciency of sewage in the city is divert motorized vehicle trafc and reduce congestion, the Maharashtra
73.35% and the treatment capacity is 527 MLD, which leaves 29% of State Road Development Corporation (MSRDC) has proposed the con-
the city's sewage untreated. The PMC has started treating and recycling struction of a ring road around Pune and Pimpri-Chinchwad. The
5.38% of the wastewater in the city (PMC, 2011). The PMC has the re- MSRDC presented a proposal to PMC ofcers that details the construc-
sponsibility of waste collection, storage, segregation, transportation, tion of a six-lane ring road covering an area of 161.73 km at a cost of
treatment, and disposal. Pune has a daily waste generation of 1300 INR 10,408 cr (approximately $1571.7 million) (Nambiar, 2013). It is
1400 metric tons, with 69% of the waste coming from households anticipated that the construction of the ring road will result in reducing
(TERI, 2014). The PMC gave a deadline of July 2005 for ensuring segre- the outbound trafc owing through Pune and Pimpri-Chinchwad. Fig.
gation of waste at the source and thus 50% of the waste is segregated 3 depicts the transportation network in Pune.
at the source. The PMC is following a decentralized system of waste pro- Over the years, several initiatives have been proposed to improve
cessing, and 100% of the waste generated is treated at biotech plants or public transportation in Pune. For example, the rst bus rapid transit
composting facilities. Sanitation conditions in the city are not good, as system (BRTS) in India was started in Pune in 2006 as a pilot project
only 730,000 out of 910,000 households have individual toilet facilities. with the objective of motivating private vehicle users to use public
This is a major concern for the city as much of the untreated sewage is transportation instead. The BRTS comprises GPS-enabled buses and au-
contaminating the local water bodies (TERI, 2012). tomatic and synchronized signalization in the designated bus lanes and
The PMC is also responsible for managing land use in Pune. However, stations, leading to faster, more efcient, safer, and user friendly intelli-
due to the massive growth in population and industrialization, the PMC gent automatic bus location systems and passenger information sys-
is struggling to meet the growing demand for residential and industrial tems. The rst phase has been completed and consists of dedicated
space (PMC, 2012). To meet the growing housing demand, more than and non-dedicated lanes (PMC, 2012). A proposal to introduce a mass
230 housing projects were approved in 2014. Mid- and small-sized transit metro system with high carrying capacity in Pune and the Pune
housing projects (less than 500 units) made up 90% of all housing pro- Metropolitan area was approved by the Maharashtra government in
jects. Further, in partnership with Panchashil Realtors, the US-based June 2012 (Fig. 4: Metro Rail First Phase) (Chitransh, 2012).
Trump Tower Company launched a super luxury housing project cover- In addition to roads and railways, air travel provides domestic and
ing an area of 6000 ft2, with each unit priced at INR 14 cr (approximately international connectivity for the city of Pune. There are two main rail-
$2.1 million). While much of the real estate sector experienced a slow- way stations in Pune, Pune Junction and Shivaji Nagar Station. Approx-
down in major Indian cities, the city of Pune experienced a continued imately 100 trains connect Pune to other big cities in India. Further, the
demand for housing in 2014 due to the increasing number of IT profes- Lohegaon International Airport operates domestic and international
sionals (Joshi, 2014). ights (B. D. Karve Research and Constancy Cell, n.d). In 2014, 50 do-
Additionally, the inux of migrants from rural areas further strained mestic ights connected Pune and other major cities in India. To im-
the city's land use, resulting in an increase in the number of slums. The prove connectivity, the Pune airport authority announced the addition
lack of effective land use management has resulted in the unauthorized of 14 domestic ights (dna, 2014a). In 2015, four more new domestic
construction of buildings. Fig. 2 depicts land use in the city of Pune from ights were added (4 new ights to y out of Pune airport, 2015).
1973 to 2011. To address the problem of growing slums in the city, the To increase global connectivity, the Maharashtra government proposed
PMC has adopted the vision of creating a slum-free city with inclusive building a new international airport in Pune. However, due to land ac-
and affordable housing for all (PMC, 2012, p. 8). The demand for afford- quisition issues, the government is unable to move forward with this
able housing in seven citiesDelhi-NCR, Mumbai (MMR), Bengaluru, plan. The delay in construction has resulted in an increase in the cost
Chennai, Hyderabad, Kolkata, and Punehas resulted in opportunities of the project from INR 7000 cr (approximately $1059.8 million) in
for builders worth $11.8 billion (PTI, 2015d). 2012 to INR 9000 cr (approximately $1362.6 million) in 2014
(Nambiar, 2014).
2.7. Urban transportation
2.8. Environment
Transportation and trafc congestion is a major challenge in Pune.
The increase in the number of privately owned vehicles, the unpaved Rapid population growth has adversely affected Pune's environment
and narrow roads, the lack of parking spaces, and inefcient and limited and increased pollution and noise levels. In 20092010, due to the in-
public transportation systems characterize Pune's urban infrastructure crease in the number of vehicles, air pollution levelsdetermined by
(Wang, Fang, & Shi, 2011). The increased population and urbanization measuring suspended particulate matter (SPM) and respirable
have substantially increased demand for transport and privately suspended particulate matter (RSPM)in Pune were higher than
R. Krishnamurthy et al. / Cities 53 (2016) 98109 103

Fig. 2. Pune Land use 19732011.

national standards. The increase in the population has led to increased such as providing adequate supply of water and managing planned de-
vehicular trafc, increased usage of diesel generators, increased con- velopment become major concern (Montgomery, 2008). Put simply,
struction activities, increased road dust, and increased use of rewood massive inow of migrant population and rapid urbanization has (1) ex-
and biomass fuel in the slums, all of which contribute to air pollution acerbated urban sprawl, (2) increased social fragmentation, and
(Parasnis et al., 2010). In 2013, Pune's carbon footprint was approxi- (3) hampered institutional capacity, and (4) strained urban infrastruc-
mately 4.7 million tons (dna, 2013). tures (Cohen, 2006; Montgomery, 2008; Roy, 2009).
The PMC is undertaking a number of initiatives for sustainable devel- In this section, we discuss how massive population growth has
opment of the city, ranging from tracking trees to managing waste. The caused concerns in terms increase in environmental degradation, social
PMC has started a mobile platform developed by SAP called the Mobile segregation, and erosion of institutional capacity to manage and govern
Tree Census, which keeps track of the number of trees in the city. The urban growth for Pune city. While the city of Pune is investing signi-
mobile app collects information about the trees and superimposes it cant resources and developing master plans and guidelines for address-
on the city's GIS map (Express News Service, 2014). In cooperation ing key urban challenges, the city faces several challenges in realizing its
with the PMC, an NGO called Shelter Associates has been working on efforts. As a rst step, it is important to diagnose the critical challenges
slum rehabilitation in the Dattawadi area. Shelter Associates created a facing the city that require urgent attention on the part of urban plan-
database of people living in slums and their skills. Using this data, the ners: addressing environmental challenges, managing inclusive growth,
NGO is working with the PMC to renew 29 slum settlements in the and developing institutional and managerial capacity.
Sangli area and relocate 3800 families (Johnson, 2011). Further, the
PMC has adopted a number of adaptive measures to improve waste 3.1. Addressing environmental challenges
management. Pune aims to become a zero landll city by 2015 by
using biogas plants to decompose organic waste and convert it into bio- Given the strain on critical infrastructures such as water, land, and
gas. These plants can process 5 tons of waste in a day and generate energy, cities need to develop strategies to effectively balance economic
375 units of electricity, which is enough for 250 streetlights (Lessons growth and sustainable development. For instance, the issue of trafc
from two cities, 2014). congestion is a severe problem in the city of Pune. A study conducted
by Rahane and Saharkar (2014) highlighted that six reasons contribute
3. Critical evalution to trafc congestion in Talegaon Dabhade, Pune: (1) inadequate number
of trafc police, (2) illegal encroachment of streets leading to narrow
The urban transformation in cities in developing countries such as roads, (3) increasing population, (4) higher purchasing power, (5) ille-
Pune presents several challenges. Scholars have long argued that as cit- gal parking on streets, and (6) improper city planning, development,
ies grow, managing resources and infrastructures become complex and management.
(Cohen, 2006; Roy, 2009). Massive urbanization creates stress on the To address the problem of trafc congestion, the city of Pune is
environment, basic amenities, and social cohesion (Cohen, 2006). Issues changing routes, including banning the use of certain streets or allowing
104 R. Krishnamurthy et al. / Cities 53 (2016) 98109

Fig. 3. Pune transportation network.

the use of certain roads only at certain times. For example, more than (Cohen, 2006). For instance, the PMC reported that out of 3683 tubercu-
350,000 vehicles passed through Hinjewadi IT Park in Pune, causing losis (TB) cases in 2014, the slums in the city accounted for 80% of the
trafc congestion and an increased number of accidents. To address cases. However, several health experts noted that these numbers do
these issues, the trafc police banned right turns at the junction from not reveal the full picture of the situation in the slums, as hundreds of
all four sides. Because of this ban, people traveling to the IT Park have cases are not reported and the unhygienic conditions contribute to the
to spend 20 more minutes to reach their destination. Many people easy spread of TB in the slums (Jadhav, 2014).
were inconvenienced by this change (Ismail, 2014). While the police The Pune city administrators are facing obstacles in trying to eradi-
took steps to curb trafc congestion, commuters felt that the change cate slums in the city. For instance, the PMC noted that 88,000 people
not only increased their travel time but wasted fuel. migrated to Pune in 2006, 45,000 of which settled in slums (Jadhav,
In addition to trafc congestion, the city of Pune faces challenges in 2007). In 2011, a study conducted by Marshall NGOs revealed that
terms of increase in water, air, and noise pollution levels. For instance, 32.5% of the total population lived in slums covering 2.34% of the total
to control air pollution, buses, and auto rickshaws should use com- PMC land area. The NGO developed a slum atlas of Pune and presented
pressed natural gas (CNG). In 2009, only 85 of the 1466 PMPML buses it to PMC ofcials. Marshall's director noted that the PMC's Environment
used CNG and only 2719 vehicles, such as auto rickshaws and light Status Report estimated that 40% of the total population lives in the
motor vehicles, used CNG (Parasnis et al., 2010). Emissions from these slums and that it had no detailed study to back up the number (TNN,
vehicles have led to an increase in SPM, which has resulted in the in- 2011). The lack of data is a major challenge when it comes to eradicating
creased incidence of respiratory diseases. The level of RSPM in Pune is slums and providing basic amenities to slum dwellers. Having access to
1.5 times higher compared to national standards (TERI, 2011). When extensive data is critical to develop strategies to deal with slums (City-
the level of emission of suspended matters exceeds World Health Orga- wide slum sanitation project, Pune (20132016), n.d.).
nization guidelines and is found to impact learning disability in children
and causes health issues in population (Cohen, 2006). 3.3. Developing institutional and managerial capacity

3.2. Managing inclusive growth and development Rapid phase of urbanization has hampered the capacity of local gov-
ernment authorities to effectively plan, implement, and manage urban
One of the critical challenges facing cities around the world, espe- growth (Cohen, 2006; Montgomery, 2008). As cities experience growth,
cially in developing countries, is managing, promoting, and developing the process of urban management becomes complex (Cohen, 2006) and
inclusive growth (Roy, 2009). The residents living in poor neighbor- local governments often lack managerial and technical expertise to ef-
hoods in the developing countries have insufcient access to basic ame- fectively govern urban development (Montgomery, 2008). Oftentimes,
nities such as drinking water, sanitation, and electricity. Consequently, the local authorities are unable to effectively predict population growth
the bad quality of life results in spread of diseases and health challenges and manage resources for governing its diverse population (Roy, 2009).
R. Krishnamurthy et al. / Cities 53 (2016) 98109 105

Fig. 4. Metro rail plan.

Local authorities lack knowledge and expertise to take-on new respon- growing urban challenges (e.g., trafc congestion, inclusive growth),
sibilities and accommodate growing needs of its growing population. To the city still faces obstacles. To effectively navigate pressing urban chal-
effectively manage these challenges, local authorities need to develop lenges, we identify policy areas that require the attention of urban plan-
quality land management practices to govern the growth of urban ners. We argue that while Pune is moving towards becoming a
neighborhood (Cohen, 2006). However, many cities do not have region- megacity, it still has a chance to change its trajectory to become a city
al development authorities for managing the urban growth. For in- that is more sustainable, equitable, and just. However, to evolve into a
stance, in 2015, the Maharashtra State government announced in the sustainable and equitable city, urban planners need to address key ur-
formation of PMRDA for designing and managing integrated develop- banization issues.
ment for the region of Pune. The formation of PMRDA was announced In the last few years, urban planners and international organizations
in 1997, however due to technical difculties it took more than have shown renewed interest in promoting economic development in
18 years to establish PMRDA (TNN, 2015a). secondary cities (Roberts, 2014a). The concept of secondary cities
While establishing a regional agency is critical, one report noted that emerged in the 1970s, when many developing countries faced the chal-
unreasonable tenure coupled with a lack of power bestowed on the lenge of managing large cities that were deteriorating due to massive in-
mayor and the council presents a critical challenge for the city of Pune. ows of migrants, which strained the infrastructure (Otiso, 2005;
This form of governance and institutional design limits the power given Rondinelli, 1983, 1991). The Brundtland Commission report (1987)
to the mayor and the council. For example, in the city of Pimpri- urged countries to develop explicit strategies to promote urban devel-
Chinchwad, the mayor is elected for a term of 15 months (TNN, 2014b), opment in small and mid-sized cities. According to the report, countries
which is not enough time to design and implement signicant plans for should pay attention to developing small and mid-sized cities because
urban development and growth (Janaagraha Centre for Citizenship and they hold tremendous resources and potential for fostering sustainable
Democracy, 2014). The lack of power and authority often hinder local urban growth. The rationale for developing secondary cities emanate
government from implementing and sustaining urban development from both theoretical and practical perspectives.
(Otiso, 2005). As the task of governing cities are becoming increasingly Secondary cities have populations between 150,000 and 5 million
complex, it is critical for urban planners to evaluate the institutional and and perform vital governance functions within sub-national or sub-
managerial capacity of local government for promoting integrated devel- metropolitan regions (Roberts, 2014b). Due to their size, secondary cit-
opment. Without adequate knowledge and expertise, city governments ies constitute more balanced and sustainable systems that hold promise
will be ill equipped to manage their diverse population (Cohen, 2006). for economic growth and development (Ciudades, 1997; Klaufus, 2010).
If leveraged effectively, secondary cities can play critical roles in foster-
4. A way forward: policy implications for the future ing localized production and supply chain, a network of trade, transpor-
tation, people, and services for diversied economic bases within a
In this paper, we have highlighted the administrative, infrastructure, hierarchy of cities (Roberts, 2014a, 2014b). Worldwide, more than
environmental, and urban challenges faced by the city of Pune. While 2400 cities can be classied as secondary cities; two-thirds of these
Pune's urban planners have proposed several policy measures to tackle are in Africa and Asia (Roberts, 2014b).
106 R. Krishnamurthy et al. / Cities 53 (2016) 98109

Developing and promoting secondary cities has several benets. First, growth and sustainable development. Pune city administrators are well
secondary cities provide jobs for rural populations and offer better quality aware of these challenges and are undertaking measures to develop
of living (Bolay & Rabinovich, 2004). Second, they help reduce massive the city's urban space into a sustainable environment. Kunal Kumar,
migration to large metropolitan cities (Rondinelli, 1983). Third, they pro- the PMC Commissioner, noted that the city administration is keen on de-
mote inclusive and regional growth (Otiso, 2005; Rondinelli, 1983). For veloping green and sustainable buildings. To achieve this goal, the city is
instance, the Asian Development Bank (ADB) initiated the Secondary Cit- planning to work with the Indian Green Building Council (Shinde, 2015).
ies Development Project II (Green Cities) in Vietnam. The main goal of this In addition to green buildings, the PMC has also taken measures to
project is to develop and implement integrated urban growth and envi- address the problem of waste management and trafc congestion. On
ronmental improvement in three secondary cities in Vietnam. This project average, each day Pune generates 12001300 tons of garbage. To ad-
will nance several programs to improve disaster response, environment dress this problem, the PMC introduced the Garbage-Free Katraj Project.
quality, and urban infrastructure to promote economic development and The main purpose is to dispose of garbage locally and reduce the strain
inclusive growth in these cities (ADB, 2014). on dumping sites and to reduce transportation costs (Umbrajkar, 2011).
Previous studies argue that developing integrated system of second- For this project, Mailhem Engineers developed a technology that helps
ary cities facilitate economic growth (Bolay & Rabinovich, 2004; Deng, convert wet waste into biogas. The biogas produced is used to electrify
2013; Johnson, 1970; Otiso, 2005; Rondinelli & Ruddle, 1978). The inte- streetlights in Katraj (Dahitule, 2012).
grated system of cities performs different functions and become essen- To address the problem of trafc congestion, Pune city administrators
tial nodes of diversied trade and commerce in a larger network of are undertaking several measures. The PMC conducted several studies to
market centers that provide diversied higher order goods and ser- assess the level of trafc and to develop a sustainable urban transporta-
vices (Rondinelli, 1983, p. 380). Put simply, these cities act as a link be- tion system. These studies evaluated various transportation options,
tween larger urban centers and rural areas. such as a metro rail, bus rapid transit, trams, and non-motorized trans-
The absence of an integrated system of cities hampers balanced eco- port. The main goal of these studies was to assess trafc mobility and
nomic growth. Johnson (1970) found that countries that designed and propose efcient and sustainable trafc systems. In addition, the PMC
implemented integrated system of cities experience balanced pattern of also partnered with IIT-Bombay to develop a transportation-planning
growth and reduced disparities between rural and urban areas. The de- model for the Pune and Pimpri-Chinchwad areas. The main goal was to
velopment of integrated system of secondary cities helps serve people develop a model to forecast passenger demands for the proposed
living rural areas, who can access variety of services for experiencing a metro rail project (Rao, Kumar, & Venil, 2012).
good quality of life (Rondinelli & Ruddle, 1978). Put simply, the integrat-
ed systems of cities facilitate balanced pattern of growth (Johnson, 1970) 4.3. Developing institutional and management capacity
and stimulating rural development (Rondinelli & Ruddle, 1978).
However, developing an integrated system of secondary cities is not In 2006, the PMC in partnership with Intel Corporation announced
easy (Otiso, 2005). To develop an integrated system of cities, urban the Unwiring Pune initiative. The goal of this initiative was to provide
planners need to: (1) promote public-private partnerships for providing Internet access everywhere in Pune (Brajeshwar, 2007). However, the
services, (2) improve critical infrastructures, (3) develop institutional lack of infrastructure and concerns about data security derailed this ini-
and management capacities, and (4) reducing social fragmentation, tiative. In 2015, the PMC attempted to revitalize this initiative. It an-
and (4) develop cities as growth nodes (Cohen, 2006; Otiso, 2005; nounced that several IT industries are working on this project. Once
Roberts, 2014a, 2014b). In this following section, we discuss how the implemented, users will get 50 min of free Internet service (PMC
city of Pune is taking steps towards addressing the aforementioned pilot project: Get free WiFi for 50 minutes at two locations, 2015). In
dimensions. addition to providing WiFi, the PMC has also announced an e-
governance project. As a part of this initiative, all departments will be
4.1. Promoting publicprivate partnerships for service delivery computerized and more local government services will be offered on-
line. For example, the GIS mapping of properties helped the PMC collect
The lack of data about urban infrastructure is a critical challenge for more tax revenue (Umbrajkar, 2015). The use of GIS mapping will help
secondary cities. Many secondary cities have inadequate information the PMC determine cases of land encroachment and illegal construction.
and data about urban structure, land use, and poverty etc., which hinders Further, the digitalization of land area will help in developing a rich da-
their ability to effectively develop urban policies (Roberts, 2014b). For in- tabase for urban planning and development (TNN, 2015c).
stance, as noted earlier, the PMC did not have adequate data about the In addition to digitalizing local government records, Pune also
slums in the city. However, an NGO conducted an in-depth survey and launched a mobile-based app for disseminating trafc information.
collected accurate data on the number and locations of slums. They The Pune Police Department launched this app that allows people to
used this data to create a slum atlas for the city of Pune and presented it get information about trafc jams, take pictures of violators, and le
to PMC ofcials. Thus, developing partnerships with NGOs and businesses complaints. The app provides users with tools to communicate with
will become a critical component of service delivery for secondary cities. trafc police and get trafc information in real time (Pune gets its
Due to the massive growth in population, providing services is be- android based trafc app from the city trafc police department,
yond the scope of one agency or sector. Moreover, city administrators 2014). While the city of Pune is undertaking several initiatives to im-
need to develop partnerships with businesses and NGOs to leverage prove online service delivery, it needs to consider the issue of access.
limited resources (Otiso, 2005). For instance, the PMC announced a Given the number of slum dwellers and the lack of infrastructure, the
plan to achieve 100% municipal solid waste segregation by 2017. Ac- city administration needs to implement online services to avoid the
cording to the plan, the PMC will strengthen its partnership with challenges of inclusiveness. Despite good intentions and desires, the
NGOs working on garbage issues (Jadhav, 2015). By developing partner- lack of access to technology can widen the gap in society.
ships with NGOs that are already working on social issues such as pov-
erty, slums, and sanitation, the city administrators can develop insights 4.4. Reducing social fragmentation
about grassroots situations.
One of the critical challenges facing cities around the world, especial-
4.2. Improving critical infrastructures ly in developing countries, is reducing social fragmentation and promot-
ing inclusive growth. The PMC's vision is to have a slum-free City by
Given the strain on critical infrastructures such as water, land, and bringing the slums into the formal system and providing them with
energy, cities need to develop strategies to effectively balance economic basic amenities (PMC, 2013). Integrating this poor population into the
R. Krishnamurthy et al. / Cities 53 (2016) 98109 107

rest of the population is the biggest challenge for Pune to evolve into a governing and managing urban complexities. Fifth, urban planners
global city (Sen, Hobson, & Joshi, 2003). Unaffordable housing owing to should plan, design, and implement an integrated system of cities as
high land values and exorbitant construction costs led to the growth of nodes for promoting economic growth. By leveraging resources
slums. The government has to ensure the provision of affordable housing (e.g., physical and human), cities can move towards becoming sustain-
to this segment of the population in order to maintain the city's quality of able and equitable while maintaining its competitive edge.
life. A Slum Rehabilitation Authority has been established to work out a Source: http://www.puneprime.com/City_Guides/Maps.htm
sustainable model to create housing for slum dwellers by giving incen- Source: Mundhe & Jaybhaye (http://www.slideshare.net/
tives to private builders in the form of Sale Floor Space Index or Transfer- mundhenitin8/nitin-mundhe-change-detection-analysis).
able Development Rights (PMC, 2013). Source: http://www.mapsondia.com/maps/maharashtra/districts/
pune.htm
4.5. Developing cities as integrated growth nodes Source: http://constro2014.blogspot.com/2013/11/pune-metro-
railway-dream-project.html.
A critical rst step towards planning and designing secondary cities
as growth nodes is developing a holistic approach to urban growth.
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