“Integrated Community Based Flood Risk Identification and Mitigationin Micro Hotspot Dharavi, Mumbai”
Representative: GCOE-HSE Mumbai Base, Kyoto University, Japan
Date: May 21, 2011
Place: Sir J.J. College of Architecture, 78/3 JJ College, Mumbai G.P.O (Fort), Mumbai, Maharashtra400001, India
Organized by the Global COE Program “Global Center for Education and Research on Human Security
Engineering for Asian Megacities”
Co-organized by School of Planning and Architecture, New Delhi, India, Municipal Corporation of Greater
Mumbai (MCGM), Mumbai, India and Sir J.J. College of Architecture, Mumbai, IndiaNumber of Participants: 25Participants:
GCOE Mumbai TeamB. Misra (Senior Advisor & Coordinator, KU-GCOE Mumbai Project), Subhajyoti Samadda (Post DoctoralResearcher, DPRI, KU, Japan), Roshni Chatterjee (Urban Planner, GCOE-HSE Mumbai Base, KU, Japan).
Municipal Corporation of Greater Mumbai Seema Redkar (Solid Waste Management Department, Municipal Corporation of Greater Mumbai) (MCGM),
Mumbai),School of Planning & Architecture, New Delhi, India Kavas Kapadia (Professor & Dean of Studies), & Sanjukta Bhaduri (Head Urban Planning)
JJ School of ArchitectureRajiv Mishra (Professor and Principle)
NGO Sharad Mahajan (Head, MASHAL, Mumbai, India), Ajay Govale (Program Director, United Way Mumbai,Mumbai, India),
Civil Defense, Civil Society, MumbaiP.V.Suresh, (Chief Warden), H.M. Bhoir, Gazlar M. Azad, Nitin KaleNGO Dayanand Jadhav (NGO-Triratna Prerana Mandal), M. Asif (General Secretary, Trishul)
NGO- Trishul, Mumbai Trishul NGO, Mumbai, India), Krishna B. Jadhav
NGO- Disha, Mumbai ( NGO-Disha), Sneha Krishnan (RedR, india),
Observer Research Foundation, Mumbai, IndiaElizabeth Cheeran
Community Representatives, Parshi Chawl community Sunil Khade (Human Rights Mission), Kailash baburao Kawde

PurposeThe fourth workshop of the Global COE program, “GlobalCenter for Education and Research on Human Security
Engineering for Asian Megacities (GCOE-HSE)”, Mumbai
base was held at Sir J.J. College of Architecture, Mumbai,
India on May 21, 2011. The purpose of this workshop was
to identify the future technical and organizational needs andsupports required for disaster risk mitigation andpreparedness at the hot spot level and to introduce and test
the relevance of elsewhere well accepted community basedrisk assessment and risk reduction tools like „Yonmenkaigi‟,„Self efficiency‟ & „Collective efficiency‟ techniques forparticipatory assessment of hazards, vulnerabilities,capacities to promote public awareness, training and action
plan.
Achievement and Results
In the welcome address Prof. B. Misra, Senior Advisor &Coordinator, GCOE Mumbai Project. thanked thecollaborators, MCGM & SPA, and mentioned gratitude to Sir
J.J. College of Architecture for co-hosting the workshop.
Misra explained the GCOE Mumbai project (2009-2013), its
purpose and objectives related to the implementationstrategies of IDRiM in Asian Hotspot Megacity, Mumbai. The
first phase of the project, „Knowing the Community‟ wasdevoted to understand the community in the selected hot
spots through intensive surveys and use of relevant
secondary data and information. The second phase,„Working with Community” which is to begin now will be
devoted to strengthening network with all stakeholders
including the NGOs and the community representatives. The
aim of the phase is to work together with community, fieldtest and apply participatory technologies and prepare an
integrated disaster risk management plan for a selected hotspot. Also explore methods by which the plan is best
integrated with the local general development plan being
made by MCGM.

Fig 1: A portrait of the GCOE-HSE Mumbai Workshop – 21st May, 2011

The participants in the workshop stressed on thegrowing concern over the increased vulnerability of Mumbaienhancing disaster risks. Community based initiatives foraddressing social vulnerabilities and participatory
approaches were the significant points discussed and it wasnoted that those remain weak and not effectively organized.
Examples of other Asian cities were cited and successful
disaster mitigation techniques were discussed for sharing
views on good practices. Professionals from the field ofCritical Infrastructure and other organizations discussed theirvisions on Risk Perception and different techniques forcommunity driven action plans in their respective fields.
NGOs discussed their roles in the successful
implementation of community based techniques in theidentified hotspots. Almost 25 participants attended theworkshop, bringing together not only university professors,
but also a number of practicing professionals. A verysignificant achievement of the workshop was theparticipation of community members from the Parshi Chawl,
Dharavi, which is one of the selected hotspot in Mumbai
where the GCOE team would work with community. The
participatory techniques namely „yomenkaigi‟, „self efficiency‟& „collective efficiency‟ were explained and discussed. The
community representatives gave their views regarding theirrelevance and applicability to field realities. There wasconsensus that the techniques are useful and should begiven the required field test with close participation ofcommunity people. The participation of the community
people reflected a growing concern for Disaster RiskReduction.
The workshop was mutually beneficial for GCOE-HSE
and the representatives of the various organizations as wellas the community people. It provided a common platform toshare and exchange ideas between practitioners of different
but related fields which eventually proved to be fruitful for thefuture of Mumbai.
The Workshop
The workshop was divided into the following session
topics: Presentation of GCOE–HSE Mumbai Base on
Survey findings Brief Presentations of NGOs and other
Stakeholders on the Importance of Integrated
Disaster Risks Management (IDRiM) in thecommunity Kick-off meeting (Structured Dialogue) on needand support assessment for community driven
action plan in micro hotspots
 Structured dialogue and discussion on - Area

andCommunity selection,
Stakeholder
identification, Tools introduction and selection
including “Yonmenkaigi” System
Session 2
After the welcome speech by Prof. Misra, the second
session was opened by Dr. Subhajyoti Samaddar, Post
Doctoral Researcher, DPRI, KU, Japan. Dr. Samaddar
briefly discussed about the major findings from the first andsecond round surveys which GCOE-HSE had conducted inthe Mumbai micro hotspots. He dealt with the following
major topics: Introduction of sample areas namely
Premnagar, Parshi Chawl and Rajivgandhi Nagar of Dharaviarea, comparative study of social and economic aspects ofthese three communities and the extent of damage of 2005
Mumbai flood on these communities.
Part 2 of the second session was chaired by P.V. Suresh,Chief Warden, Mumbai Civil Defence. In this session there
were brief presentations by NGOs and other Stakeholders
on the importance of Integrated Disaster Risk Management(IDRiM) at community. Mr. P.V. Suresh gave a briefpresentation on the link between local community, NGOs,
voluntary organizations and district Disaster Management
Authority at three stages: before disaster, during disasterand after disaster. Mr. Suresh firmly suggested that adisaster response and management system will be
successful only by effective mobilization and participation ofthe community.
Fig 2: Prof. Rajiv Mishra, Principle of Sir J.J. College of Architecture
explaining to community members in local (Marathi) language

Fig 3 : (From Left to Right) REPRESENTATIVES - Roshni Chatterjee, Urban Planner from GCOE-HSE Program, Prof. B. Misra from
GCOE–HSE Program; Prof. Sanjukta Bhaduri, Head of Urban Planning Department, School of Planning and Architecture and Prof.
Kavas Kapadia, Dean of Studies, School of Planning and Architecture, Elizabeth Cheeran, Observer Research Foundation (ORF),
Mumbai

Session 3
The third session, which was held post-lunch, waschaired by Dr. Rajiv Mishra, Professor and Principle, Sir J.J.
College of Architecture, Mumbai, India. This session was on
the topic “The components of community driven action planfor IDRiM”. The session was opened by the presentation ofMs. Sneha Krishnan of RedR India (Ex-student of Masters in
Disaster Management from Tata Institute of Social science,
Mumbai, India). Ms. Krishnan presented in brief, her major
findings of her thesis which was on “Flood Risk Mapping in
KDMC (Kalyan Development Municipal Corporation) using
GIS and Remote sensing techniques”. She established,through her presentation, the significance of technology forbetter risk reduction.
The second part of the third session was dedicated to
the “Area and Community selection, Stakeholder
identification, Tools introduction and selection, including“Yonmenkaigi” System”. Ms. Roshni Chatterjee, Urban
Planner, GCOE-HSE Mumbai Base, KU, Japan gave apresentation on the same topic where she introduced three“Analytical And Consensus Building Participatory Tools”,
namelySelf-efficacy
andCollective-Efficacy(asResearcher‟s tools) and Yonmenkaigi System Method or
YSM (as Professional‟s Tool). She explained the human
psychology of people at the time of disaster and the aspects
that affect their choice of coping alternatives through selfefficacy and collective efficacy. She explained in details theprocess of Yonmenkaigi System Method (YSM) and citedexamples of its application in Japan and Indonesia. Shesuggested the use of YSM as a possible participatory
disaster risk mitigation technique which is basicallycollaborative action plan.
The third session, which was held post-lunch, waschaired by Dr. Rajiv Mishra, Professor and Principle, Sir J.J.
College of Architecture, Mumbai, India. This session was on
the topic “The components of community driven action planfor IDRiM”. The session was opened by the presentation ofMs. Sneha Krishnan of RedR India (Ex-student of Masters inDisaster Management from Tata Institute of Social science,Mumbai, India). Ms. Krishnan presented in brief, her major
findings of her thesis which was on “Flood Risk Mapping in
KDMC (Kalyan Development Municipal Corporation) using
GIS and Remote sensing techniques”. She established,through her presentation, the significance of technology forbetter risk reduction.
The second part of the third session was dedicated tothe “Area and Community selection, Stakeholder
identification, Tools introduction and selection, including“Yonmenkaigi” System”. Ms. Roshni Chatterjee, Urban
Planner, GCOE-HSE Mumbai Base, KU, Japan gave apresentation on the same topic where she introduced three“Analytical And Consensus Building Participatory Tools”,
namelySelf-efficacyandCollective-Efficacy(asResearcher‟s tools) and Yonmenkaigi System Method orYSM (as Professional‟s Tool). She explained the human
psychology of people at the time of disaster and the aspects
that affect their choice of coping alternatives through selfefficacy and collective efficacy. She explained in details theprocess of Yonmenkaigi System Method (YSM) and cited
examples of its application in Japan and Indonesia. She
suggested the use of YSM as a possible participatory
disaster risk mitigation technique which is basicallycollaborative action plan.
Final Session
The final session was dedicated to a structured dialogue
and discussion on area and community selection,
stakeholder identification and identification of tools andtechniques. In this session the stakeholders and NGOs
discussed the need and support assessment for community
driven action plan in micro hotspots and the possible toolsthat can be applied. Discussions also followed on thepossible role of each NGO and stakeholder agency present
in the workshop, in the implementation of such communitydriven action plans.
In this session the community people from Parshi Chawl
area actively participated and gave their opinions about theFig 4: P. V. Suresh, Chief Warden and other delegates of CivilDefense, Mumbai

Fig 5: Local people giving their opinion

feasibility of YSM or similar participatory action plans in theircommunity.
At the end of the workshop it was decided that YSM
would be conducted by GCOE-HSE in Parshi Chawl area ofDharavi and the two NGOs namely, United Way Mumbai
and YUVA India agreed to help.
Discussions
Sharad Mahajan (MASHAL):
Slums are not expanding but definitely becoming denser.
Houses which were ground storey structures in 2006 havechanged to G+1 in 2010. Illegal constructions also takeplace, e.g., 4 storey slums exist in Bandra East in Mumbai.
Such slums do not follow BMC height restrictions.
Academicians and researchers are not connected toground reality emotionally; hence even after researches
proper implementation does not take place at the grass rootlevel.
More voluntary action is required for slum
rehabilitation programs.
Regarding possible role of MASHAL in YSM in Dharavislums, Sharad Mahajan responded that MASHAL is mainly
a Pune based NGO. It delas with several aspects likelivelihood issues, training, women empowerment, children
education, disasters etc. But MASHAL generally does notwork within Mumbai limits; their work is restricted till Pune tillnow.
Dayanand Jadhav (TPM):
Grass root level action is required for effective Disaster
Risk Management like trainings to local people etc.
All community based organizations (CBOs) should beofficially registered to avoid any communication gap withcommunity or the Government.
Identifying the required facilities after a disaster becomesa critical aspect in reality. E.g., most of the times food andclothes are more required by affected peolpe in comparison
to money or cash.
Distribution of articles from distribution camps often
becomes a practical problem after a disaster, due to which
proper articles do not reach at places where people actuallyneed them. Example, people needing clothes end up getting
food and vice versa.
Kavas Kapadia (SPA):
Academicians often find solutions to problems but
problems arise during actual implementation of thesesolutions at the grass root level.
Common sense should be applied while formulating
strategies for Disaster Risk Management (DRM). Livelihoodloss is a critical aspect of DRM.
Situation may demand both: top-down approach orbottom-up approach, although common people prefer thelatter.
Sanjukta Bhaduri (SPA):
Health loss is a major problem that follows any disaster.
It is a critical aspect to analyze that how the health loss canbe compensated either monetarily or else wise.
In future ward level plans will come up. Recognizing therole of NGOs in such ward level plans will be a very criticalaspect in future.
Seema Redkar (MCGM):
Yonmenkaigi System Method (YSM) will be successful if
applied in micro-level areas. But for macro level problems or
where many stakeholders are involved, YSM may not be thecorrect tool.
Apart from MCGM, community members themselves
should also voluntarily take upon themselves theresponsibility of coping with disasters at a local level.
Rajiv Mishra (Professor and Principle, Sir J.J.
College of Architecture, Mumbai, India)
Planners should intelligently convince politicians so thatthe correct plans are implemented.
Ajay Govale (United Way Mumbai):For effective DRM, a community should identify local keystakeholders and build local-stakeholder partnership.
Social mapping is a critical aspect, e.g., groups having
health-related problems after a disaster should be mapped.
Also, local youth groups should be mapped and brought tocommon forum. They can play a very crucial role in DRM.
United Way Mumbai agreed to help GCOE-HSE in
whatever ways possible in implementing Yonmenkaigi
System Method (YSM) in Dharavi Parhi Chawl.
Bharat Kale (YUVA India):
Yonmenkaigi System Method (YSM) will be successful inDharavi area.
YUVA India is ready to help if GCOE-HSE wants toimplement Yonmenkaigi System Method (YSM) in Dharavi
Parhi Chawl.
Comments made by community members:
Regarding impact of flood and role of Government:
Earlier (before 2008) there used to be 6ft-8ft high water
during flood in Parshi Chawl area (during 2005 flood). Now,
water level during flood has come down considerably. Whenasked about whether Government helped them during timesof such disaster, their general opinion was that Government
people would come very late and by this time local people
themselves found some temporary coping measures.
Moreover, the government representatives would only finishtheir responsibility by giving their phone numbers to the localpeople.
Will YSM be successfully implemented in Dharavi?
According to the community members, YSM will besuccessful if applied within their community (Parshi Chawlarea) instead of an extended area. This is because Parshi

Chawl is comparatively a smaller area and the local leaders
have control over their people. As for the four groups in YSM,community people opined that it would work if the groups
are divided as per wards and not as per other conventional
functions (like management, communication, human andphysical resources).

Fig 6: Representatives from MASHAL , MCGM, CIVIL Defense, YUVA , United Way of MUMBAI , Trishul

Fig 7: Ajaya Govale (middle), United Way of Mumbai, advocating critical contribution of local youth group in IDRiM .
Seema Redkar (left), Municipal Corporation of Greater Mumbai and Prof. Rajiv Misra, Principle of Sir J.J. College ofArchitecture made their critical inputs

Fig 8:Structured dialogue and discussion period