India has the world’s largest number of slum dwellers living in vulnerable settlements in floodplains with most of them concentrated in the naturally flood-prone delta of the Ganga river, according to Moody’s 2024 report.

Key Findings of the Study

• Global Vulnerability: Flooding affects over 2.3 billion people annually. 
  • In the Global South, 33% of informal settlements (445 million people, 908,077 households, 67,568 clusters) are in floodplains.
• India’s Vulnerability:
  • India has the highest number of slum dwellers in flood-prone areas globally: 158 million (more than Russia’s population).
  • Most are concentrated in the Ganga river delta, a naturally flood-prone region.
  • Slum dwellers are 32% more likely to settle in floodplains than non-slum residents due to cheaper land and housing.
• Regional Hotspots: South Asian countries (India, Indonesia, Bangladesh, Pakistan) lead in slum populations in floodplains. Other hotspots include Rwanda, northern Morocco, and coastal Rio de Janeiro.
• Urbanization Patterns:
  • Latin America and Caribbean: 80% urbanization, 60% of informal settlements in urban areas.
  • Sub-Saharan Africa: Lowest urbanization, 63% of informal settlements are rural.
  • India: 40% of slum dwellers in urban/suburban areas.

Slums in India

• UN-HABITAT defines a slum household as a group of individuals living under the same roof in an urban area who lack one or more of the following: 
  • Durable housing of a permanent nature that protects against extreme climate conditions. 
  • Sufficient living space which means not more than three people sharing the same room. 
  • Easy access to safe water in sufficient amounts at an affordable price. 
  • Access to adequate sanitation in the form of a private or public toilet shared by a reasonable number of people. 
  • Security of tenure that prevents forced evictions.
• Under the Slum Areas (Improvement and Clearance) Act, 1956, a “slum area” is defined as a residential area where buildings are considered unfit for human habitation due to dilapidation, overcrowding, or lack of essential amenities like light, ventilation, and sanitation.
• Scale: 
  • As per Census 2011, 65.5 million people (17% of urban population) live in slums across 2,543 towns.
  • Mumbai: 41% of India’s slum population; Kolkata: 32% of urban population in slums.
• Urbanization: India’s urbanization rate was 31% in 2011, projected to reach 40% by 2030, driving slum proliferation due to unplanned urban expansion.

Factors Responsible for the Growth of Slums in India

• Rapid Urbanization: Urbanization leads to overcrowding in cities, resulting in slums.
  • In 2011, 34.5% of India’s population lived in urban areas, contributing to slum growth in cities like Mumbai and Delhi.
• High Population Growth: Population explosion increases pressure on housing, leading to slum formation.
  • India’s population grew at 1.2% annually, with 65.5 million people living in slums by 2011.
• Insufficient Affordable Housing: Lack of affordable housing forces low-income people to settle in informal areas.
  • The Pradhan Mantri Awas Yojana targets 2 crore houses, yet demand remains unmet.
• Poverty and Socioeconomic Vulnerability: Low-income groups are forced to live in slums due to economic constraints.
  • Around 90% of construction workers in cities live in slums due to low wages.
• Inadequate Urban Planning and Governance: Poor urban planning leads to unregulated growth of informal settlements.
  • Cities like Bangalore and Kolkata have slums due to outdated and inefficient planning.
• Migration for Livelihood Opportunities: Rural migration to cities in search of work leads to slum formation.
  • Migrants from states like Uttar Pradesh and Bihar contribute to slum growth in cities like Mumbai.
• Land Market and Real Estate Dynamics: Rising land prices push low-income groups into flood-prone areas.
  • Dharavi, Mumbai’s largest slum, faces real estate pressures despite redevelopment efforts.

Challenges Faced by Slum Dwellers in India

• Lack of Access to Basic Amenities: Slum dwellers often lack access to essential services like clean water, sanitation, and electricity.
  • In many slums, only 40-50% of households have access to piped water and proper sanitation, leading to significant health risks.
• Poor Housing and Overcrowding: Slum housing is typically temporary and substandard, such as tin sheds or plastic tents, which are vulnerable to natural disasters.
  • Overcrowding is common, with 3-4 people per room, leading to poor living conditions and increased spread of diseases like tuberculosis.
• Inadequate Sanitation and Waste Management: Many slums lack proper sewage systems, forcing residents to resort to open defecation and unmanaged waste disposal.
  • In areas like Dharavi, there is one toilet per 1,440 people, exacerbating sanitation problems.
  • Poor drainage and encroachment on wetlands exacerbate flood risks in cities like Kolkata.
• Limited Access to Healthcare: Healthcare facilities in slums are often insufficient, leaving residents with limited access to medical services.
  • Reports show that 50% of slum dwellers lack easy access to health services, contributing to high maternal and infant mortality rates.
• Precarious Employment and Livelihoods: Most slum residents work in the informal sector with low wages, job insecurity, and poor working conditions.
  • They are primarily employed in construction, domestic work, or street vending, facing exploitation and lack of social security.
• Social Exclusion and Discrimination: Slum dwellers face social stigma and are often excluded from mainstream society due to their economic and living conditions.
  • Marginalized groups, particularly Dalits and women, face additional discrimination based on caste and gender.
• Vulnerability to Natural Disasters and Evictions: Slums are often located in flood-prone or earthquake-prone areas, making them vulnerable to natural disasters.
  • Additionally, many slum dwellers live without security of tenure, leaving them at risk of forced evictions by authorities, as they often lack legal land titles.
  • Climate Change Impact: Projected flood flow increases in the Ganga-Brahmaputra-Meghna rivers: 8% (1.5°C), 24% (2°C), 63% (4°C) compared to 1986–2005.

Government Initiatives and Policies for Slum Development in India

• Slum Areas (Improvement and Clearance) Act, 1956: This foundational legislation shifted the approach from slum eradication to improvement, recognizing slums as areas needing development. It aimed to provide legal frameworks for improving living conditions and protecting tenants from eviction.
• Pradhan Mantri Awas Yojana (PMAY): Launched in 2015, PMAY aims to provide affordable housing for all, including slum dwellers, by 2022.
  • The scheme targets the construction of 2 crore houses for the urban poor, with a focus on slum rehabilitation and providing basic amenities.
• National Slum Development Programme (NSDP): Launched in 1996, the NSDP aims to provide basic services such as water supply, sanitation, and drainage to slum areas.
  • It also supports the improvement of shelter and community infrastructure in slum settlements across India.
• Valmiki Ambedkar Malin Basti Awas Yojana (VAMBAY): Initiated in 2001, VAMBAY focused on providing housing for slum dwellers, especially for marginalized communities.
  • The scheme provides subsidies for the construction of houses and infrastructure in urban slums.
• Atal Mission for Rejuvenation and Urban Transformation (AMRUT): Launched in 2015, AMRUT focuses on urban infrastructure development like water supply, sewerage, and urban transport, particularly in slum areas. 
  • It aims to improve the quality of life in cities by providing basic services to all citizens, including slum dwellers.
• Smart Cities Mission: Launched in 2015, the Smart Cities Mission aims to make cities more sustainable and inclusive.
  • Slum redevelopment is a key component, as it seeks to improve basic infrastructure and provide quality housing in slum areas as part of the urban renewal process.

Way Forward for Slum Development and Flood Vulnerability in India

• Enhanced Slum Redevelopment Policies: Implement more targeted slum redevelopment policies focused on improving housing, infrastructure, and resilience to floods. 
  • This includes using sustainable urban planning techniques and making slum rehabilitation a priority.
• Affordable Housing Initiatives: Expand schemes like Pradhan Mantri Awas Yojana (PMAY) to provide more affordable housing and infrastructure in flood-prone areas, ensuring that these homes are climate-resilient.
• Flood Adaptation and Resilience Strategies: Focus on flood mitigation strategies by improving drainage systems, levees, and stormwater management to protect vulnerable slum areas from natural disasters.
• Comprehensive Data and Mapping of Vulnerabilities:  Use satellite data and advanced mapping tools to identify high-risk slum areas prone to flooding, enabling targeted interventions and preparedness measures.
• Increased Community Participation in Planning: Engage slum communities in urban planning and flood resilience strategies, ensuring their needs and perspectives are incorporated in decision-making, especially in redevelopment projects.
• Promotion of Sustainable Livelihoods: Create better livelihood opportunities for slum dwellers, focusing on formal employment, skill development, and access to financial support to reduce their vulnerability to poverty and socio-economic disparities.
• Strengthening Legal Framework for Land Tenure: Provide legal land titles to slum dwellers to ensure security of tenure, protecting them from forced evictions and enabling them to access government schemes and protections.

Conclusion

India’s 158 million slum dwellers in flood-prone areas, particularly in the Ganga-Brahmaputra delta, face severe vulnerabilities due to rapid urbanization, poverty, and climate change. Comprehensive policies integrating resilient infrastructure, affordable housing, and community participation are critical for sustainable urban development.

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