CHENNAI’S URBAN MOBILITY TRANSFORMATION EDITED BY GERALD OLLIVIER & SHYAM SRINIVASAN 2025 Chennai’s Urban Mobility Transformation TOC A COMPENDIUM EDITED BY GERALD OLLIVIER & SHYAM SRINIVASAN i © 2024 The World Bank 1818 H Street NW, Washington DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some rights reserved This work is a product of The World Bank. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy, completeness, or currency of the data included in this work and does not assume responsibility for any errors, omissions, or discrepancies in the information, or liability with respect to the use of or failure to use the information, methods, processes, or conclusions set forth. 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Cover and internal design: Colorcom Advertising © 2024 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington, DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some rights reserved CONTENTS Summary notes - List of figures iv Summary notes - List of tables iv Technical notes - List of figures iv Technical notes - List of tables vi Technical notes – List of Boxes vii Foreword by Auguste Tano Kouamé, Country Director for India, World Bank ix Foreward by Mr. T. Udhayachandran, IAS, Principal Secretary to Government -Finance, xi Government of Tamil Nadu Acknowledgments xii Abbreviations xiv Introduction: Chennai’s Urban Mobility Transformation 1 Section 1: Summary notes on Chennai’s Urban Mobility Transformation 1. Integrated land use and transport planning 8 2 Augmenting bus service delivery 13 3 Fostering multimodal integration 16 TOC 4 Designing sustainable, complete streets in Indian cities 19 5 Achieving urban mobility resilience 24 6 Developing gender responsive urban mobility systems in Chennai  29 7 Developing a metropolitan road safety action plan: Case study from Chennai 33 8 Strengthening the metropolitan transport governance 38 9 Data-driven urban futures: Preparedness for leveraging data in Indian urban planning 43 10 Practical use cases of leveraging data for urban mobility planning 46 Section 2: Technical notes on Chennai’s urban mobility transformation 1 Integrated land use and transport planning 52 2 Augmenting bus service delivery 67 3 Fostering multimodal integration 79 4 Designing sustainable complete streets in Indian cities 91 5 Achieving urban mobility resilience 107 6 Developing gender responsive urban mobility ecosystems in Chennai 125 7 Developing a metropolitan road safety action plan: Case study from Chennai 139 8 Strengthening metropolitan transport governance 158 9 Data-driven urban futures: Preparedness for leveraging data in indian urban planning 167 10 Practical use cases of leveraging data for urban mobility planning 176 Concluding remarks 189 iii CHENNAI’S URBAN MOBILITY TRANSFORMATION SUMMARY NOTES - LIST OF FIGURES Figure 1.1 Various studies and plans in the ILUTP framework for Chennai Figure 3.1 Mode share trends of Chennai since 1992 Figure 5.1 Timeline of extreme weather events in Chennai  Figure 5.2 Disaster risk at the intersection of hazard, exposure, and vulnerability Figure 6.1 GPL’s activities organized under the four-pillar framework  Figure 6.2 GPL’s key achievements in year one Figure 7.1 The Safe System approach Figure 7.2 Road fatalities in the top 11 cities of India in 2022 Figure 7.3 Chennai road crash statistics - 2013 -2022 Figure 7.4 Road fatalities by user type in CMA - 2019 Figure 7.5 Chennai road fatalities - key contributing factors Figure 7.6 CRSAP safety performance targets Figure 8.1 Functions to be performed in the provision of urban transport Figure 8.2 Key steps towards operationalizing CUMTA Figure 8.3 CUMTA’s functions in the steady state TOC SUMMARY NOTES - LIST OF TABLES Table 1.1 Differences across predominant master planning, mobility planning approaches and ILUTP application in India Table 5.1 Overall risk assessment of urban transport elements TECHNICAL NOTES - LIST OF FIGURES Figure 1.1 The Avoid-Shift-Improve model for moving towards sustainable urban transport Figure 1.2 Five dimensions of integration in ILUTP Figure 1.3 Roadmap and ILUTP’s current workflow of adoption in Chennai Figure 1.4 The multi-sectoral analytical framework for ILUTP in CMA Figure 2.1 Overview of the business plan prepared for MTC, Chennai Figure 2.2 Population and jobs accessible within 500m of MTC bus stops in CMA Figure 3.1 Total jobs accessible in 60 minutes by different modes Figure 3.2 Mode share trends of Chennai since 1992 Figure 3.3 Conceptual design of interchange facilities at Kilambakkam Figure 4.1 Sustainable mobility pyramid Figure 4.2 Typical Complete Street cross-section iv Figure 4.3 A street in Amsterdam Figure 4.4 A street in Japan Figure 4.5 A street in CA, USA Figure 4.6 Map of routes with footpath upgrades, Chennai Figure 4.7 Illustration of Khader Nawaz Khan road Figure 4.8 Transformation envisioned along other Mega Streets under SUSP Figure 4.9 Expected impact of 50 km of Mega Streets Figure 5.1 Chennai’s topography Figure 5.2 Timeline of extreme weather events in Chennai Figure 5.3 Integrated Command and Control Center (ICCC) established by GCC Figure 5.4 Disaster risk at the intersection of hazard, exposure, and vulnerability Figure 5.5 Accessibility of administrative buildings and the airport during normal day and during disaster event Figure 5.6 Overall risk assessment of urban transport elements Figure 5.7 Dr Radha Krishnan Salai- before and after Figure 5.8 Proposed institutional arrangement for flood management workflow in Chennai Figure 6.1 Gender specific barriers across the public transport journey Figure 6.2 Launch event of the GPL - April 2022 Figure 6.3 Key roles and organizational structure of the GPL team TOC Figure 6.4 Four pillar framework – key elements of the gender responsive program Figure 6.5 GPL’s activities organized under the four-pillar framework Figure 6.6 Key recommendation areas for bus shelters and stops Figure 6.7 GPL’s key achievements in year one Figure 7.1 United Nations' Sustainable Development Goals related to safety Figure 7.2 The Safe System approach Figure 7.3 Motorization vis-a-vis road fatalities in India 1970-2020 Figure 7.4 Road fatalities in the top 11 cities of India in 2022 Figure 7.5 Chennai road crash statistics - 2013-2022 Figure 7.6 Road fatalities by user type in CMA - 2019 Figure 7.7 Chennai road fatalities - key contributing factors Figure 7.8 Efforts and initiatives by GoI and GoTN in road safety Figure 7.9 Setting of speed limits in Chennai Figure 7.10 Fragility of the human body to crash speeds Figure 7.11 Key elements of best practice road safety action plans Figure 7.12 Analysis of crash data in Chennai Figure 7.13 Methodology for prioritizing roads for safety improvements in Chennai Figure 7.14 Prioritized corridors for 2-wheelers Figure 7.15 Prioritized corridors for pedestrians Figure 7.16 Critical intersections for improvement v CHENNAI’S URBAN MOBILITY TRANSFORMATION Figure 7.17 CRSAP safety performance targets Figure 7.18 CMA - Road safety management arrangements Figure 7.19 Process of speed limit setting in Chennai Figure 7.20 CUMTA - envisaged full-fledged road safety management unit Figure 7.21 Existing situation and recommendations for pedestrians on GNT road Figure 7.22 Current situation and safety recommendations for pedestrians on Velachery Bypass Road Figure 7.23 Current situation on GNT road, along with recommendations for shared street with traffic calming Figure 7.24 Template for a shared street with traffic calming Figure 7.25 Road safety reporting arrangements in Chennai Figure 8.1 Functions to be performed in the provision of urban transport Figure 8.2 Split of urban transport functions in Chennai across different levels of government pre- CUMTA Figure 8.3 Functions assumed by lead transport agencies across cities internationally Figure 8.4 CUMTA’s functions in the steady state Figure 8.5 CUMTA’s structure Figure 10.1 Snapshot of the city dashboard in London Figure 10.2 Accessibility analysis for women in Chennai Figure 10.3 Hourly congestion index difference from October 2021 versus March 2022 at 11:00 am TOC Figure 10.4 CUMTA’s in-house model used for calculating pedestrian count (left) and vehicle count (right) from CCTV images Figure 10.5 Visualization of transit TAZ-based OD flows TECHNICAL NOTES - LIST OF TABLES Table 1.1 Differences across predominant master planning, mobility planning approaches and ILUTP application in India Table 1.2 Case review of selected Indian examples on ILUTP’s application Table 2.1 Overview of strategic priorities, outcomes, and KPIs and their types defined under the business plan Table 4.1 Design KPIs for Mega Streets under SUSP Table 5.1 Detailed physical vulnerability assessment Table 5.2 Summary of proposed resilient measures per urban transport element Table 5.3 Performance matrix for various reconstruction solutions Table 7.1 Typical safe speeds for road and section types Table 7.2 Action plan for speed management Table 10.1 Categorization of the typical dataset used in urban mobility planning Table 10.2 Addis Ababa: Using image data for monitoring road safety vi TECHNICAL NOTES – LIST OF BOXES Box 1.1 The ILUTP approach applied by cities around the world Box 1.2 Modeling techniques and tools, and useful ILUTP tools Box 2.1 Vision setting and business planning Box 3.1 Singapore’s Yishun Integrated Transport Hub Box 3.2 Moves to re-orient bus networks in response to changing demand patterns Box 3.3 Integrating informal transit services - international examples Box 3.4 Finland’s MaaS implementation Box 3.5 London’s MaaS implementation Box 4.1 International experience with Complete Streets policies and guidelines Box 4.2 Integrated blue-green-grey solutions undertaken as part of green streets programs Box 4.3 City-wide strategies to mitigate urban floods through nature-based stormwater management Box 5.1 Cyclone Nivar (2020) and its impact on Chennai Box 5.2 Initiatives by Chennai Smart City Limited (CSCL) Box 5.3 Robustness in building codes in Canada Box 5.4 Integrating Informal Transit Services: International examples Box 5.5 Neighborhood greenways - Portland, Oregon TOC Box 5.6 Integrated multimodal transport systems in Zurich Box 5.7 RMIS Project, Delaware Box 5.8 Traffic control centers in Beijing Box 5.9 Full virtual traffic management center, Oklahoma Box 6.1 Gender mainstreaming in urban planning, City of Vienna Box 7.1 Key Features of the Motor Vehicles (Amendment) Act (MVAA), 2019 Box 7.2 Road safety action plan 2022-2025, Swedish Transport Administration Box 7.3 Pedestrian head starts and turn calming at intersection in NYC Box 7.4 Low speed zone in Paris Box 8.1 Functions assumed by lead agencies internationally Box 9.1 Integration of big data for urban planning: Lessons from Global Cities Box 9.2 International examples of partnerships with third-party private players Box 10.1 Dashboard implementation in the United Kingdom Box 10.2 Bogota’s experience with data driven traffic management Box 10.3 Addis Ababa: Using image data for monitoring road safety Box 10.4 SIGMA - Revolutionizing São Paulo's transport landscape Box 10.5 Singapore’s FASTER240 system for incident management Box 10.6 Seoul’s TOPIS system for traffic oversight and management vii CHENNAI’S URBAN MOBILITY TRANSFORMATION TOC Photo credit: CUMTA viii Foreword by Auguste Tano Kouamé, Country Director for India, World Bank India’s cities are rapidly evolving, and with that evolution inclusive future. The Green, Resilient, Inclusive, and comes both major opportunities and complex challenges. Safe (GRIDS) framework featured in this compendium Chennai, one of the country’s most vibrant metropolitan provides a thoughtful and comprehensive approach that areas, exemplifies this transformation. It is my pleasure to I believe will resonate far beyond Chennai’s borders. introduce this Compendium on Chennai’s Urban Mobility The lessons from Chennai’s experience are profound. Transformation, which captures the significant progress This city’s commitment to rethinking its urban mobility that Chennai has started making in reshaping its urban systems serves as an example of how cities can turn mobility system. Chennai offers valuable lessons not just complex challenges into opportunities for innovation for Indian cities but for urban centers worldwide. and progress. The Chennai City Partnership, a collaboration between I extend my sincere gratitude to the Government of Tamil the Government of Tamil Nadu and the World Bank, with Nadu and the many partners who have contributed to co-financing from the Asian Infrastructure Investment this ambitious work. The World Bank is proud to be Bank (AIIB), reflects what can be achieved through part of Chennai’s journey, and it is my hope that this dedicated partnerships and a shared vision. The first compendium will inspire other cities around the world phase of the partnership, the Sustainable Urban Services to pursue similar paths towards a more sustainable and Program (SUSP), has driven innovative reforms in inclusive urban future. institutions and service delivery across multiple sectors, TOC including urban mobility. A broad range of analytical Sincerely, studies on urban mobility and spatial development Auguste Tano Kouamé have also been undertaken in support of ongoing Country Director for India, planning exercises such as the Comprehensive Mobility The World Bank Plan and the Third Master Plan. These efforts represent a foundational phase and a commitment to making Chennai a city where mobility is not just easier, but safer, more inclusive, and environmentally sustainable. Strengthening urban mobility is crucial for the future of cities like Chennai. Mobility connects people to opportunities—jobs, education, healthcare, and social connections—and how we move through our cities directly affects the quality of life for millions. By enhancing public transport and making streets safer for pedestrians and cyclists, Chennai is taking important steps to tackle challenges like emissions, traffic congestion, and road accident fatalities, while also promoting social equity and economic growth. The journey detailed in this compendium is a testament to the criticality of collaboration. It illustrates how integrated land use and transport planning, gender- responsive initiatives, and data-driven insights can help cities like Chennai navigate the pressures of rapid urbanization while building a more sustainable and ix CHENNAI’S URBAN MOBILITY TRANSFORMATION TOC Photo credit: CUMTA x Foreward by Mr. T.Udhayachandran, IAS, Principal Secretary to Government - Finance, Government of Tamil Nadu Chennai is at a crucial juncture in its urban development. These reforms are aimed not only at improving service As one of India’s largest and most rapidly growing cities, delivery but also aligning Chennai’s urban mobility with we are undertaking multiple actions to ensure that our broader goals of sustainability and climate resilience. Our urban mobility systems evolve to meet the needs of work to future-proof the city against climate risks, such our citizens. This compendium captures the extensive as floods and extreme weather events, is embedded in work undertaken by the Government of Tamil Nadu every aspect of our planning and implementation. and its partners under the Chennai City Partnership for The Government of Tamil Nadu has collaborated with modernizing and strengthening Chennai’s transportation infrastructure, laying the groundwork for a future where many stakeholders, including the World Bank and the Institute for Transportation and Development Policy, to mobility is more inclusive, sustainable, and efficient. achieve these milestones. I extend my sincere gratitude The Government of Tamil Nadu has been committed to to all the teams and partners who have contributed to a transformative vision for Chennai’s mobility. Over the this monumental effort. last few years, we have established new institutions such While we have started laying strong new foundations, as the Chennai Unified Metropolitan Transport Authority the journey is far from over. Chennai is in the process TOC (CUMTA) and the Gender and Policy Lab under the of charting the future of urban mobility and spatial Greater Chennai Corporation (GCC). Together with the development through the ongoing development of the Chennai Metropolitan Development Authority (CMDA), Third Master Plan and the Comprehensive Mobility Plan. and the Metropolitan Transport Corporation (MTC), the The lessons from this compendium will be incorporated government has driven forward a range of ambitious into these efforts. With a clear vision and sustained reforms. These include the reinvention of bus service efforts, Chennai is poised to lead the way in urban delivery through the introduction of a Public Transport mobility innovation, creating a city where movement is Service Contract (PTSC) between the government and safe, efficient, and sustainable for all. MTC, efforts to improve multimodal integration to ensure seamless connectivity, and the redesigning of several of Sincerely, our streets under the Mega Streets initiative to make T.Udhayachandran, IAS them safer and more accessible for all road users. Principal Secretary to Government - Finance, Government of Tamil Nadu We are also acutely aware of the challenges posed by rapid motorization and the increasing reliance on private vehicles. To address these, we are working on expanding public transport with the ongoing construction of Chennai Metro Phase 2, and augmentation of MTC’s bus services, thus expanding non-motorized transport options and ensuring better first and last- mile connectivity. Enhancing road safety and making our transport systems more inclusive—particularly for women and vulnerable groups—are central to our efforts. xi CHENNAI’S URBAN MOBILITY TRANSFORMATION Acknowledgments This compendium was developed as part of the World authors as indicated in the notes. The team would like Bank’s India: Urban Mobility Programmatic Advisory to thank the co-authors from the Greater Chennai Services and Analytics activity led by Gerald Ollivier Corporation, the Gender and Policy Lab, the Chennai (Lead Transport Specialist). The team would like to Metropolitan Development Authority, and CUMTA for thank Jen Jungeun Oh (Practice Manager, Transport, their co-authorship of selected articles. Rashi Grover South Asia) for her strategic advice and direction in the (Consultant) was instrumental in coordinating with preparation of this compendium and Pooja Kulkarni, IAS, the wide range of authors and peer reviewers for this CEO, Tamil Nadu Infrastructure Development Board, and compendium. her team, Jayanth Raghavan and Venkatesh Kumar, for The team would also like to thank internal and external coordinating the Chennai City Partnership and providing reviewers for providing valuable feedback and comments comprehensive feedback from the various departments on the compendium. The list of reviewers is given in the to this compendium. table below. The compendium was edited by Gerald Ollivier and The report was copy edited and designed by Colorcom, Shyam Srinivasan (Transport Specialist). Individual under the guidance of Sarah Natasha (Consultant). technical and summary notes were written by respective No. Topic Authors WB reviewer External reviewer 1 Integrated Land Use and Qingyun Shen, Fuad Malkawi (Senior Urban Dr Sanjeev Kumar Transport Planning Abhijit Sankar Ray, Specialist, SAWU4) Lohia (Consultant, TOC Seetha Raghupathy The World Bank) (the World Bank), and Anshul Mishra, IAS, (CMDA) 2 Augmenting Bus Service Ravi Gadepalli, Gerald Fatima Arroyo (Senior Urban Dr OP Agarwal (CEO, Delivery Ollivier, and Shyam Transport Specialist, Program World Resources Srinivasan Leader, ILCDR) Institute) 3 Fostering multimodal Ravi Gadepalli, Georges Bianco Darido (Lead Dr OP Agarwal (CEO, integration Jai Malik, Shyam Urban Transport Specialist, World Resources Srinivasan, and ITRGK) Institute) Gerald Ollivier 4 Designing sustainable Jaishree Jindel (the Wei Winnie Wang (Lead Aswathy Dilip complete streets and World Bank), Dr GS Infrastructure Specialist, (Managing Director, roads (including life cycle Sameeran, IAS, BV Program Leader, IECDR) ITDP, India) approach-alternatively Babu (GCC), Kasinath AV Venugopal separate topic) Anbu, Shyam (Program Manager - Srinivasan, and Healthy Streets and Gerald Ollivier (the Partnerships, ITDP, World Bank) India) Varsha Vasuhe (Associate - Urban Development, ITDP, India) xii No. Topic Authors WB reviewer External reviewer 5 Achieving Urban Mobility Rashi Grover, Shyam - Kiran Gowda Resilience Srinivasan, and (Advisor-Transport Gerald Ollivier Sector, CDRI) 6 Developing Gender Mitali Nikore, Kaliat Ammu Sanyal, Kalpana Viswanath Responsive Urban Sarah Natasha, and Extended Term Consultant, (Co-founder of Mobility Systems in Gerald Ollivier (the Social Development, SAR Safetipin) Chennai World Bank), Meera Sundararajan and C. Vaishnavi (Gender and Policy Lab, Chennai) 7 Developing A Krishnan Srinivasan, Said Dahdah (Lead Transport Pawan Mulukutla Metropolitan Road Safety Sudeshna Mitra, Specialist, ITRGK) (Executive Director, Plan Shyam Srinivasan, WRI) Dipan Bose (Senior Transport and Gerald Ollivier Specialist, ISAT2) Marisela Ponce De Leon Valdes (Transport Specialist, ITRGK) 8 Strengthening Shyam Srinivasan Daniel Alberto Benitez Dr OP Agarwal TOC Metropolitan Transport (the World Bank), (Senior Transport Economist, (CEO, World Governance Jeyakumar ITRGK) Resources Institute) Iyamperumal (CUMTA), and Gerald Ollivier (the World Bank) 9 Data-Driven Urban Jai Kishan Malik, Aiga Stokenberga (Senior - Futures: Preparedness for Shyam Srinivasan and Transport Economist, ILCT1) Leveraging Data in Indian Gerald Ollivier Urban Planning 10 Practical Use Cases of Jai Kishan Malik, Aiga Stokenberga (Senior - Leveraging Data for Shyam Srinivasan and Transport Economist, ILCT1) Urban Mobility Planning Gerald Ollivier xiii CHENNAI’S URBAN MOBILITY TRANSFORMATION Abbreviations AFC Automatic fare collection GCTP Greater Chennai Traffic Police AI Artificial Intelligence GDP Gross Domestic Product AIIB Asian Infrastructure Investment Bank GFDRR Global Facility for Disaster Reduction and Recovery AMS Asset Monitoring System GHG Greenhouse Gas ANPR Automatic Number Plate Recognition GIS Geographic Information System AVLS Automatic Vehicle Location System GoI Government of India BRT Bus Rapid Transit GoTN Government of Tamil Nadu CBA Cost-benefit analysis GPL Gender and Policy Lab CCP Chennai City Partnership GPP Green Public Procurement CDRI Coalition for Disaster Resilient Infrastructure GPS Global Positioning System CEO Chief Executive Officer GRSF Global Road Safety Facility CMA Chennai Metropolitan Area GTFS General Transit Feed Specifications CMDA Chennai Metropolitan Development ICCC Integrated command and control center Authority IFM Integrated Flood Management CMP Comprehensive Mobility Plan IIT Indian Institute of Technology TOC CMRL Chennai Metro Rail Limited ILUTP Integrated land use and transport CMWSSB Chennai Metropolitan Water Supply and planning Sewerage Board INR Indian Rupee CNN Convolutional neural networks IPT Intermediate public transport CPL City Planning Labs initiative iRAP International Road Assessment Program CRSAP Chennai Road Safety Action Plan IRC Indian Roads Congress CSCL Chennai Smart City Limited IRS Institute of Remote Sensing CUMTA Chennai Unified Metropolitan Transport ITDP Institute for Transportation and Authority Development Policy DCR Development Control Regulations IUDP Integrated Urban Development Platform DPR Detailed Project Report IUDX Integrated Urban Data Exchange DSC DataSmart Cities Strategy IUO India Urban Observatory ERP Enterprise Resource Planning JICA Japan International Cooperation Agency FAME Faster Adoption and Manufacturing of JnNURM Jawaharlal Nehru National Urban Electric Vehicles Scheme renewal Mission FASTER Fusion Analytics for Public Transport KPI Key Performance Indicator Event Response LCA Lifecycle Cost Assessment FGD Focus Group Discussions LTA Land Transport Authority Singapore FSI Floor Space Index LTOC Land Transport Operations Center GCC Gross Cost Contract Singapore GCP Greater Chennai Police LVC Land Value Capture xiv MCIC Major Capital Infrastructure SIGMA Georeferenced Information System for Coordination Office Mobility and Accessibility MLD Mobile Phone Location Data SMART Specific, Measurable, Achievable, MMI Multimodal integration Relevant, and Time-bound MoHUA Ministry of Housing and Urban Affairs SMP Second Master Plan MORTH Ministry of Road Transport and SOP Standard Operating Protocol Highways SPT Safety Performance Targets MPD Master Plan Delhi STU State Transport Undertaking MRTS Mass Rapid Transit System SUSP Sustainable Urban Services Program MTC Metropolitan Transport Corporation SUTP Scheme for Urban Transport Planning MTU Municipal Transport Undertaking SWWE Social Welfare & Women’s Empowerment NACTO National Association of City TANGEDCO Tamil Nadu Generation and Distribution Transportation Officials Corporation Limited NAPCC National Action Plan on Climate Change TAZ Transportation analysis zone NCMC National Common Mobility Card TMP Third Master Plan NDSAP National Data Sharing and Accessibility TN Tamil Nadu Policy TNeGA Tamil Nadu e-Governance Agency NEBP National Electric Bus Program TNGIS Tamil Nadu Geographical Information NMSH National Mission on Sustainable Habitat System NMT Non-Motorized Transport TOD Transit-Oriented Development TOC NULP National Urban Learning Platform TOZ Transit Oriented Zone NUTP National Urban Transport Policy TRANSIP Transport Systems Improvement Project NYC New York City ULB Urban Local Body OCC Operations Control Center UNDRR United Nations Office for Disaster Risk ODP Open Data Platform Reduction PCMC Pimpri Chinchwad Municipal UPPM Urban Project Planning and Corporation Management PM Prime Minister URDPFI Urban and Regional Development Plans Formulation and Implementation PTSC Public Transport Service Contract USD United States Dollar PUVMP Public Utility Vehicle Modernization Program UTF Urban Transport Fund RSAP Road Safety Action Plan VGF Viability Gap Funding RSC Road Safety Cell VRU Vulnerable road user RWA Resident Welfare Association WB World Bank SDG Sustainable Development Goal WRI World Resources Institute xv CHENNAI’S URBAN MOBILITY TRANSFORMATION TOC Photo credit: CUMTA xvi INTRODUCTION: CHENNAI’S URBAN MOBILITY TRANSFORMATION Gerald Ollivier1 and Shyam Srinivasan2 INTRODUCTION Chennai is rapidly urbanizing, which is placing increasing demands on its urban mobility Everyone needs to go places. Cities around the world infrastructure and services. The population of are grappling with the challenges of moving people efficiently, safely, and sustainably. This compendium pre-2022 CMA has grown steadily over the last explores how cities can address complex urban mobility two decades, from 7.1 million in 2001 to 11.2 challenges using the city of Chennai, India as an example. million in 2021, with further increases expected The compendium showcases Chennai’s achievements in over the coming decades. Nearly 75 percent of laying the foundation for improved mobility while also these residents are in the densely populated discussing existing and emerging challenges. In doing so, the compendium aims to stimulate dialogue and urban core of Chennai. offer insights that policymakers and practitioners can use for tackling similar challenges in their cities. such as the Indian Ocean tsunami in 2004 that inundated coastal communities along the Tamil Nadu coast, and led TOC BACKGROUND to 206 fatalities in Chennai;4 (v) heatwaves, with studies5 of Indian cities that include Chennai, observing strong Chennai, the capital of Tamil Nadu, is the fourth effects of heatwaves on mortality; and (vii) earthquakes largest city in India and a hub for commerce, culture, to a lesser degree, as Chennai lies in the high-risk seismic and education. The ‘pre-2022’ Chennai Metropolitan zone III, but is not as seismically active as the northern Area (CMA) is the fourth most populous region in India, and northeastern parts of India. covering 1,189 sq km with a population of nearly 11 Chennai is rapidly urbanizing, which is placing million. Chennai is also the country’s fourth-largest increasing demands on its urban mobility urban economy driven by electronics, manufacturing, infrastructure and services. The population of pre-2022 automobiles, and information technology. As the city is CMA has grown steadily over the last two decades, from growing rapidly, the Government of Tamil Nadu (GoTN) 7.1 million in 2001 to 11.2 million in 2021, with further officially notified an ‘expanded CMA’ boundary in 2022, increases expected over the coming decades.6 Nearly 75 with an area of 5,904 sq km including important satellite percent of these residents are in the densely populated towns. urban core of Chennai. Similar to coastal cities across the world, Chennai is increasingly vulnerable to natural disasters and Chennai has a relatively extensive urban mobility climate change. CMA has faced several extreme weather system but is facing an increasing reliance on private events recently: (i) floods primarily from heavy rainfall vehicles. While the city has expanded, major economic during the monsoon months or from cyclonic activity in activities have remained close to the city center. An the Bay of Bengal, such as the floods of 2015, which caused origin-destination analysis using mobile phone data 422 deaths, economic losses of around US$3 billion,3 and showed high inflows into the core city during morning significant damage to infrastructure; (ii) post-monsoon peak hours and high outflows during evening peak cyclones and storm surges which increase flood risks; hours. Limited affordable housing and inadequate (iii) sea-level rise due to climate change which could public transport coverage have increased trip lengths exacerbate the effects of urban floods; (iv) tsunamis, and motorized trips. The median trip length in the 1 CHENNAI’S URBAN MOBILITY TRANSFORMATION pre-2022 CMA has increased from a range of 2 to 4 km in 2008 to 4 to 6km in 2023.7 Buses have traditionally The compendium starts by exploring the green formed the backbone of public transport in the CMA, but their mode share has decreased from nearly 50 dimension of the GRIDS framework. The first percent in the 1980s to 16.1 percent in 2023.8 Despite four topics discuss approaches for reducing significant rail investments, including the MRTS and the greenhouse gases and air pollutant emissions in Chennai Metro, the rail mode’s share has remained low at around 5 percent. The combined share of non-motorized line with the ASI framework, by reducing travel transport (NMT) and walking has fallen from a high of demand, fostering modal shifts to public and around 40 percent in 1984 to 28 percent in 2023.9 Use of non-motorized transport, and accelerating the personal motorized vehicles has risen sharply and formed around 41 percent of the mode share in 2023 with two- transition to electric mobility for bus transport. wheelers alone accounting for 34 percent of all trips.10 Lack of multimodal integration and first and last mile connectivity to mass transit systems have contributed to Gender and Policy Lab, introduced reforms for enhancing the declining public transport mode share. bus service delivery and financed a pilot program for transforming streets and neighborhoods in the city. A There is scope for improvement to enhance safety series of analytical studies were conducted to inform for women and vulnerable road users in the city. the city’s transformation and ongoing preparations for Chennai is widely recognized as one of the safest Indian the Third Master Plan (TMP) and the Comprehensive cities for women, with several initiatives and policies in Mobility Plan (CMP). Key analyses and conclusions from place to enhance safety and accessibility. However, there these studies are presented in this compendium. is still scope for improvement, particularly in addressing safety concerns for women and vulnerable road users. TOC According to a 2023 Gender Safety Perception Survey conducted by Gender Lab, 16 percent of women KEY THEMES surveyed in public places and transit points reported The compendium uses Green, Resilient, Inclusive, experiencing some form of harassment over the Development-focused and Safe principles (GRIDS) as preceding three months, including on public buses. This an organizing framework for effectively diagnosing highlights the importance of continuous efforts to ensure and addressing the urban mobility and spatial a safer environment while also acknowledging the city’s development challenges confronting cities. In ongoing strides toward creating a more inclusive and articulating the response and recovery approach to the secure public space for women. Road safety is a city-wide COVID-19 pandemic, the GRID framework was coined issue with high road crashes and fatalities, and despite by the World Bank in 2021.13 Green refers to solutions several successful state level road safety initiatives, CMA11 that sustain natural capital, including climate, to ensure witnessed 1,385 road deaths in 2022.12 that today’s decisions do not undermine future growth. The Chennai City Partnership (CCP) between the Resilient refers to investments in risk management to Government of Tamil Nadu and the World Bank, prepare for shocks such as climate change, pandemics, with co-financing support from AIIB, has fostered natural hazards, and socioeconomic and financial shocks. meaningful progress on urban mobility. The first Inclusive refers to providing equal access to opportunities phase of the partnership, the Sustainable Urban Services and resources for people who may otherwise be Program (SUSP) started in February 2022, focusing on excluded or marginalized, including women, children, institutional and financing changes for driving service and the differently abled. Development-focused refers to delivery improvements in multiple sectors. The Tamil generating economic opportunities through accessibility Nadu Infrastructure Development Board in its role as and making efficient use of resources. To contextualize the nodal agency for the CCP, has effectively stewarded the framework in the transport sector and to emphasize implementing agencies to achieve significant reforms the importance of road safety, the authors added ‘Safe’ in their respective sectors. In urban mobility, SUSP has as the last dimension, yielding the GRIDS framework. supported the establishment of the Chennai Unified Mobilizing Private Sector Capital at Scale and creating Metropolitan Transport Authority (CUMTA) and the Strong and Coordinated Institutions are identified as 2 cross-cutting enablers. systematically for creating an environment that fosters concentrated development in areas of high public Individual GRIDS dimensions could have their own transport accessibility and leveraging private sector organizing frameworks, which are cited under investments. respective chapters in the compendium. For instance, the Avoid-Shift-Improve (ASI) framework is commonly • Quality, accessible, and well-integrated public used when discussing transport sector decarbonization transport systems are the backbone of urban and efficient use of resources. Separate frameworks such mobility in any city. Buses have traditionally been as the Safe Systems approach for road safety and distinct the workhorses of public transport in Chennai pillars of interventions on gender issues have also been but have been on the decline in terms of capacity, introduced in the respective chapters. service quality, and mode share. The second note on Augmenting Bus Service Delivery describes the This compendium discusses ten critical urban structural reforms introduced under SUSP in the mobility challenges faced by cities in India and form of a Public Transport Service Contract between around the world that are being addressed through the government and the state transport undertaking the CCP. Structurally, the document is divided into responsible for bus operations. Such an approach aims two main sections: (i) summary notes, which distill key to strengthen accountability in exchange for greater messages from the technical notes and are targeted at certainty of government support and facilitates the policymakers and (ii) technical notes, which detail the adoption of e-buses. Besides buses, Chennai also has approaches adopted in Chennai and international best an expanding network of metro and suburban rail, but practices under each topic. The notes are all illustrated these systems are currently operating below capacity. with real-world data and experiences from Chennai. This The third note discusses the importance of Fostering compendium only covers challenges that are directly Multimodal Integration for strengthening intermodal part of the ongoing CCP while excluding some other linkages for promoting public transport usage in the relevant topics for the GRIDs agenda like travel demand TOC city. management. • A livable city is also a walkable city with vibrant The compendium starts by exploring the green neighborhoods. Cities around the world that are dimension of the GRIDS framework. The first four topics well known for their quality urban environments discuss approaches for reducing greenhouse gases and have prioritized transforming their streets, putting air pollutant emissions in line with the ASI framework, pedestrians and cyclists first, and deprioritizing by reducing travel demand, fostering modal shifts to personal vehicles. The fourth note on Designing public and non-motorized transport, and accelerating Sustainable Complete Streets describes the structured the transition to electric mobility for bus transport. approach that Chennai is following for improving its • Chennai is currently developing its Third Master streetscape. The approach combines above ground Plan and Comprehensive Mobility Plan (CMP), improvements for improving road safety, organizing which will set the direction for urban mobility parking, and reducing encroachments with below and spatial development in the city over the ground improvements for improving stormwater next two to three decades. The contemporaneous drainage and streamlining the management of development of these plans presents unique utilities. opportunities for pursuing Integrated Land Use The compendium then looks at the second GRIDS and Transport Planning, which is the subject of the dimension of resilience. The above efforts will come to first note. The note describes the comprehensive nought if Chennai does not future proof urban mobility approach that Chennai is adopting across different by enhancing climate resilience. Chennai’s increasing geographical scales going from the metropolitan vulnerability to floods has been described earlier. The fifth region and new townships earmarked for intensive note looks at Strengthening Urban Mobility Resilience development, to corridors along which the metro lines and presents a structured approach for identifying and are being developed, to the core city and selected safeguarding infrastructure and systems against the neighborhoods. The note also discusses how Transit devastating effects of climate change. Oriented Development principles14 can be applied 3 CHENNAI’S URBAN MOBILITY TRANSFORMATION The compendium then delves into the dimension of improving the planning and delivery of urban mobility inclusion. Sustainable transport needs to be inclusive. infrastructure and services via the Digital Chennai Frequently and unfortunately, urban mobility systems initiative. The last two notes on Leveraging Data for around the world have fallen short of catering to Planning and Operations cover international best the needs of women and vulnerable groups such as practices for leveraging big data for urban mobility and the elderly and differently abled. Chennai has acted the groundwork being laid in Chennai to extend such decisively in this regard. The sixth note on Enabling efforts to the city. Gender Informed Mobility gives the details of the Gender and Policy Lab, a new institution which is already having an impact on improving the safety and inclusivity of CONCLUSION Chennai’s public spaces and public transport systems. The lab is leading efforts along four pillars: (i) assessing Chennai’s challenges and experiences are by no the ground situation, (ii) strengthening planning and means unique. About 400 million people who live policies, (iii) building capacity and raising awareness, and in growing cities in India, and those elsewhere in the (iv) improving infrastructure and services. developing world, are also facing challenges related to rapid urbanization, declining quality and modal share The all-important dimension of safety which involves of public transport, as well as increasing climate risks. reducing road crashes and saving lives is dealt with What we propose here in this book as a green, resilient, next. The alarming number of road traffic fatalities inclusive, and safe development pathway for Chennai is in Chennai calls for a comprehensive approach for therefore equally relevant to other cities. improving road safety in the city. The seventh note on Developing a Metropolitan Road Safety Plan describes The compendium paves the way for continued the approach taken in Chennai for tackling the road safety interventions that will make lasting impacts on the issue from multiple angles: institutions, infrastructure, ground. Chennai is seeking to bring its urban mobility system on par with best international practices by laying TOC and enforcement. new foundations. The approaches discussed in this The compendium concludes with three notes compendium, if well implemented and scaled, can help that explore the cross-cutting enabler of strong Chennai achieve its sustainable development potentials. and coordinated institutions in greater detail. The Beyond Chennai, with open dialogue and knowledge common feature in every world class city is governance. exchange, cities around the world can transform their A city of the scale and complexity of Chennai needs urban mobility landscapes together. It is our hope strong and coordinated institutions. The eighth note on that the takeaways from Chennai presented in this Strengthening Metropolitan Transport Governance compendium will inspire and guide other cities facing shares the story of CUMTA, which is one of a handful of similar challenges. We also encourage readers to share unified metropolitan transport authorities in India. The their experiences in Chennai as it continues its journey. note presents CUMTA emerging role as a nodal agency Together, we can reimagine urban spaces and create for ensuring a coherent approach for enhancing urban transport systems that are not only functional but also mobility in the city. As one of its key mandates, CUMTA is foster healthier, more sustainable cities for all. spearheading the use of big data and analytical tools for 4 Endnotes 1 Gerald Ollivier is a Lead Transport Specialist at the World Bank. 2 Shyam Srinivasan is a Transport Specialist at the World Bank. 3 Bandyopadhyay, C., Bindal, M.K., and Manna, M. (2021). Chennai Floods 2015. New Delhi-110042: National Institute of Disaster Management (NIDM), Ministry of Home Affairs. 4 G, Gopinath & Løvholt, Finn & Kaiser, G. & Harbitz, Carl & Kolanuvada, Srinivasa Raju & Murugaiya, Ramalingam & Singh, Bhoop. (2014). Impact of the 2004 Indian Ocean tsunami along the Tamil Nadu coastline: Field survey review and numerical simulations. Natural Hazards. 72. 743. 10.1007/s11069-014-1034-6. 5 de Bont J, Nori-Sarma A, Stafoggia M, Banerjee T, Ingole V, Jaganathan S, Mandal S, Rajiva A, Krishna B, Kloog I, Lane K, Mall RK, Tiwari A, Wei Y, Wellenius GA, Prabhakaran D, Schwartz J, Prabhakaran P, Ljungman P. Impact of heatwaves on all-cause mortality in India: A comprehensive multi-city study. Environ Int. 2024 Feb;184:108461. doi: 10.1016/j.envint.2024.108461. Epub 2024 Jan 26. PMID: 38340402. 6 Primary Census Abstract of Chennai District, Tiruvallur, and Kancheepuram districts. Census of India 2001, 2011. Estimated population for 2021 based on CAGR for the last decade. 7 Interim Report II for the Comprehensive Mobility Plan of Chennai, SYSTRA for CUMTA (2024). 8 Interim Report II for the Comprehensive Mobility Plan of Chennai, SYSTRA for CUMTA (2024). 9 Interim Report II for the Comprehensive Mobility Plan of Chennai, SYSTRA for CUMTA (2024). 10 Interim Report II for the Comprehensive Mobility Plan of Chennai, SYSTRA for CUMTA (2024). 11 Comprising Chennai City, Avadi, and Tambaram. 12 As per 2022 crash data from the State Crime Records Bureau for Chennai city and the Commissionerates of Tambaram and Avadi. 13 The World Bank (2021). From COVID-19 Crisis Response to Resilient Recovery - Saving Lives and Livelihoods while Supporting Green, Resilient and Inclusive Development (GRID).C14 14 Ollivier, Gerald; Ghate, Ashish; Bankim, Kaira; Mehta, Prerna. 2021. Transit-Oriented Development Implementation Resources and Tools, 2nd Edition. © World Bank, Washington, DC. http://hdl.handle.net/10986/34870 License: CC BY 3.0 IGO. TOC 5 CHENNAI’S URBAN MOBILITY TRANSFORMATION TOC Photo credit: CUMTA 6 Section 1: Summary Notes On Chennai’s Urban Mobility Transformation TOC Photo credit: CUMTA 7 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: CUMTA 1. INTEGRATED LAND USE AND TRANSPORT PLANNING Qingyun Shen,1 Abhijit Sankar Ray,2 Seetha Raghupathy,3 and Anshul Mishra4 for integrated approaches. Integrated Land Use and INTRODUCTION Transport Planning (ILUTP) strategically links land use growth patterns with transport planning. It reduces travel India’s rapid urbanization necessitates effective needs by promoting sustainable transport modes (for urban planning for ensuring a sustainable, resilient, example, public transport and non-motorized transport and inclusive growth path for the country. The (NMT)) through mixed land use patterns. ILUTP adoption TOC traditional model of following a master plan in most pioneers such as Singapore, Portland, and the State of Indian cities focuses primarily on physical land use Victoria in Australia, have demonstrated ILUTP’s role in separation and zoning, which lacks integration of promoting sustainable urban growth patterns. In India, multi-sectoral strategies and investment coordination ILUTP has been tested in a few cities, with a focus on across sectors such as transport, housing, economy transit-oriented development (TOD). Effective adoption and utilities. This siloed planning approach has led of ILUTP requires policy, institutional, physical, and to inefficient investments and leapfrogging urban data integration, along with a clear and coordinated expansion, with a negative impact on infrastructure, vision and strategic objectives. The differences between climate resilience and compact growth. predominant master planning and mobility planning Chennai’s planning history reflects an evolving approaches and ILUTP application in India are listed in relationship between land use and transport Table 1.1. planning, highlighting past challenges and the need TABLE 1.1: DIFFERENCES BETWEEN PREDOMINANT PLANNING APPROACHES AND ILUTP APPLICATION IN INDIA Predominant Master Planning Predominant Mobility Planning Integrated Land Use and Transport (MP) Approach Approach Planning (ILUTP) • Vision focused on spatial • Vision focused on transport • Coordinated vision factoring in planning outcomes, lack of planning outcomes with spatial and transport planning and strategic directives limited influence on MP aligning transport capacity and demand stemming from MP • Clear goals, objectives, and strategic directives requiring such alignment 8 Predominant Master Planning Predominant Mobility Planning Integrated Land Use and Transport (MP) Approach Approach Planning (ILUTP) • Focus on land use planning • Focus on transport infras­ • Cross-sectoral – across jurisdictions and zoning tructure and interventions, at all scales including traditional modes • Siloed approach – inadequate • Integrated spatial and transport and NMT focus on aligning multi- plan, with supporting Development sectoral inputs • Lack of alignment with Control Regulations (DCRs) the statutory master plan preparation timelines • Top-down citizen • Lack of a feedback loop with MP • An enhanced and holistic engagement (typically) regarding job and population stakeholder engagement process distribution with rapid iterations • Lack of robust • Clear implementation strategy with implementation mechanisms performance metrics • Performance focused on • Performance focus on outcomes outputs This note summarizes the rationale, challenges, economic and spatial planning and aligning the city’s and solutions related to the adoption of an ILUTP economic growth aspiration were only partially achieved approach in Indian cities using Chennai as an due to certain challenges in implementation. While example. It emphasizes the importance of coordinating there have been efforts to encourage mixed use and planning efforts of the urban development, transport avoid segregated land use patterns across metropolitan TOC management, and infrastructure investment agencies areas in India, it is still worth noting that as the urban for creating sustainable, efficient, and livable urban development expands, there is an increasing trend environments. It also highlights the success factors of potential spatial mismatch if traditional Euclidean and recommendations that are critical for effective Zoning approaches are followed. This could result in preparation and implementation of ILUTP, including high- urban sprawl, create a negative impact on average level government direction for institutional coordination labor productivity as well as negative environmental and capacity building, technical interventions to inform consequences. Other compounding factors include evidence-based planning strategies, commitment, and inadequate regulatory mechanisms, capacity and human agreement on sufficient and innovative funding sources, resource challenges, and the lack of evidence-based as well as public accountability, stakeholder engagement, urban planning. In response, the Government of Tamil and monitoring and evaluation mechanisms. Nadu (GoTN) and its key planning institutions turned to ILUTP to address these challenges in a holistic way and steer urban development towards a more green, APPROACH IN CHENNAI resilient, inclusive, and sustainable growth path. Chennai’s 60-year planning history has also observed The ILUTP Work Plan and Road Map in an evolving relationship between land use planning Chennai and transport planning, from being disconnected As the fourth largest metropolitan area and among and siloed to becoming coordinated and integrated. the top five fastest growing cities in India, Chennai The First Master Plan (1976-1996)5 and the Second Master faces multiple challenges including climate change, Plan (2008-2026)6 both recognized the role of transport, coastal erosion, rise in informal settlements, housing but spatial and transport planning were prepared in deficit, urban sprawl, inadequate public transport and sectoral siloes. One of the critiques of the First Master resultant congestion and air pollution, as well as pressure Plan was that it was divorced from economic planning to sustain economic growth and job creation. One key and infrastructure coordination. The Second Master issue was that the earlier plan’s attempts to integrate Plan (SMP) had three major issues across formulation 9 CHENNAI’S URBAN MOBILITY TRANSFORMATION (absence of a well-defined institutional coordination (TMP) for a CMA of 1,189 sq km led by the Chennai mechanism, staffing shortages, and delays due to legal Metropolitan Development Authority (CMDA). proceedings), implementation (lack of specific action CMP and TMP (the Plans) will be prepared in a and a phased implementation strategy), and monitoring coordinated manner following the ILUTP model for (lack of a robust monitoring framework). The SMP itself developing an evidence-based, resilience-informed faced a disconnect between transport and land use implementable plans that are effective for sustainable planning with no mobility plan in place at the time of its growth over the next two decades. CMP is expected preparation. Consequently, transportation projects have to feed into the TMP seamlessly to enable true land use often been conceived outside statutory master plans. and transport planning integration. Meanwhile, CMDA Realizing the drawbacks and weaknesses in the previous and CUMTA have commissioned intensive technical two master plans, two major planning efforts have been studies on key topics (Figure 1.1). These studies and taken up in sequence: the Comprehensive Mobility Plan planning instruments cover a full spatial scale from the (CMP) for the expanded Chennai Metropolitan Area of regional level to the metropolitan/city and sub-city level 5,904 sq km led by the Chennai Unified Metropolitan to ensure a consistent application of ILUTP for guiding Transport Authority (CUMTA) and the Third Master Plan development. FIGURE 1.1: VARIOUS STUDIES AND PLANS IN THE ILUTP FRAMEWORK FOR CHENNAI. REGIO NAL S TRAT EGY le l Sca na CITY MASTER P LAN* io NEW Reg TOW TOC le NP Sca LAN DEVEL DETAILE y S EMP INCOOYMEN Cit cale (DDP) / OPMENT D L ty S L P M E S T AN D PLANSOCAL AR LANS Ci (LAP EA b- TUDY ) Su L AN D US E CITY ECO ING DEVELOPMENT CLIMA CRO CONTROL REGULATIONS INTEGRATED NO PLAN MIC PLAN TE ACTION LAND USE AND S S C U T TIN G VISION TRANSPORT STRENGTHEN PLANNING FOR CHENNAI STUDIES CLIMAT E.G. URBA DY CLIMATE FLOOD CO T OR ISLAN E R ES N H TRANSP (M M L I) E.G. IO N D A D ST AT - M O ILIEN EAT RESIL LT U TR M U EG R I CE D E V A N SIT IENC TROL EL O RI INT T S TA O P M E N T E N TE D Y M EN E ST P L A TI O N A R (T O D ) N TEG GE N S (S E A Y U DI RA ANA OLIC T A P) G OS DE RANS M K I N ST GP V CO ELOP IT ORIE P AR K IN RR ME NT IDO NT ED PAR R P (TOD L AN ) : S TRANSFER DEVELO ABLE PMENT RIGHTS ND (TDR) / L D A LI CY A N D VA L U E CAPTURE (L VC) I E NTE D) PO R T O (T O C OM NSI NT D PR E TRA LOPME D FUN HEN DEVE AN S IVE M OBILIT Y PLAN (CMP) * Vision Study | Strategic Institutions | Strengthening Assessment and Action Plan for CMDA | Comprehensive Shoreline Development Project | Study on Land Value and Density Distribution | Review and Recommendations for Strengthening of TNCDBR (20190 | Study on Urban Heat Island Effect in Chennai | Demand and Supply Pattern of Housing | Integrating Blue-Green Infrastructure (BGI) for Blood Disaster and Risk Reduction | Special Distribution of Employment and Income Categories and Agglomeration Economies | Development of Sustainable Economic Growth Strategic Plan | Mainstreaming Climate Action in Chennai Third Master Plan | GHG Emissions Inventory and Building In-house Inventory Capacity | Open Space Strategy for CMA | Mainstreaming of Integrated Flood Control | Social Facilities Plan | Neighbourhood Planning Guidelines | Urban Design Guidelines | Gender Inclusive for CMA Source: Authors’ compilation in collaboration with CMDA. 10 Challenges and Solutions The Chennai experience brought forth challenges and These studies and planning instruments cover potential solutions for addressing them: a full spatial scale from the regional level to the i. Institutional Coordination and Capacity Building metropolitan/city and sub-city level to ensure of Government Institutions a consistent application of ILUTP for guiding As different agencies are responsible for preparing development. their respective plans with their own preparation and implementation cycles, establishing a framework for coordination with oversight at the highest through surveys and stakeholder meetings for administrative level is necessary for an effective preparing CMP and TMP. For understanding travel adoption of ILUTP. Key actions include: (i) establishing demand and behavior in the expanded CMA, a high-level committee comprising of executive and CUMTA has hired a consultant to conduct a primary political representatives from key departments and survey of 50,000 households. Similarly, CMDA has agencies for ensuring effective coordination and engaged citizens through online platforms, in- sectoral stakeholder buy-in; (ii) setting up a technical person interviews, and zonal meetings for collecting advisory committee with subject experts on both inputs from a wide range of citizens’ groups for the Plans for providing quality assurances and technical exercise. Nearly, 45,044 citizens were engaged in this advice; (iii) empowering the leadership of land-use visioning exercise across CMA. and transport planning agencies and identifying iv. Funding and Implementation Strategies champions as nodal persons for coordination for For ILUTP to become a reality, planning agencies both Plans; and (iv) establishing regular reviews/ need to include feasible implementation and updates of the plans during the implementation for funding strategies at various levels with high-level course correction as needed. buy-in. At the preparation stage, the planning and TOC ii. Technical Interventions and Quality of Data transportation authorities need sufficient funds Collection and Analysis for developing an information base and agreeing Having credible, updated data for informing to the city-level ILUTP model which may include evidence-based planning decisions is a fundamental updating/preparing a statutory land use plan and building block for ILUTP. In Chennai, a Digital Chennai preparing the CMP. Financing for these activities platform is being designed and established in can be through state government budgetary coordination with key government agencies which allocations or by tapping into national schemes will be able to work on a common digital platform for and missions. During execution, CMP and TMP ensuring that the baseline data used for both Plans should include appropriate investment plans and is consistent. Interactive models can be applied for innovative financing strategies for key investment providing real-time inputs in different scenarios, projects. Public-private partnerships and land-value thereby serving as significant data points for policy capture measures can be applied where feasible for decisions. As more technological innovations leveraging the private sector to co-finance specific emerge, cities can choose the most applicable and infrastructure investments envisioned under ILUTP. feasible ILUTP techniques and tools that are easy Such engagements can also be through an off to access and understand and are cost-effective for balance-sheet model (for example, a revolving fund) informing planning for decision-making. where additional revenue is captured for improving the sustainability of investment projects. iii. Public Accountability and Trust Building Uncertainty in public acceptance is one of the key v. Monitoring and Results Review impediments in the adoption of ILUTP. For achieving Short, medium and long-term strategies with a effective public participation and citizen buy-in, corresponding budget and roadmap of action should extensive and effective stakeholder engagement be prepared for implementing ILUTP. Both CMP throughout the life cycle of the planning preparation and TMP will set up a clear results framework with is critical. In Chennai, both CUMTA and CMDA have key performance indicators (KPIs) for monitoring conducted intensive citizen engagement activities implementation progress. These KPIs should be 11 CHENNAI’S URBAN MOBILITY TRANSFORMATION SMART (Specific, Measurable, Achievable, Relevant, • Institutional coordination: Synergized and Time-bound) and will align with the planning interventions, establishment of a technical advisory vision for the city. The results framework and KPIs committee, and identification of focal persons/ must be selected through stakeholder consultations champions for coordination by lead agencies for as the monitoring and achievement of these KPIs spatial planning (CMDA) and transport planning will need collaboration with multiple sectoral (CUMTA) provides a foundation for developing departments. During the conceptualization of the synchronized plans.  results framework and KPIs, the planning agencies • GIS based digital platform: The Digital Chennai also need to identify data sources for measuring platform being contemplated by GoTN would progress, the designated agencies with roles and provide a common data platform for ensuring that responsibilities for data collection, reporting and the baseline data used for spatial and transport plans validation, and an independent evaluation process is consistent.  for monitoring the performance of each agency that • Public participation: Extensive citizen engagement is responsible for a task. activities undertaken through surveys by CUMTA and CMDA for plan preparation has enabled understanding EXPECTED IMPACT citizen’s aspirations, travel demands and behavior which will be used for informing the Plans.  ILUTP’s efforts in CMA are expected to transform • Leveraging external assistance: Chennai has urban planning, leading to sustainable, resilient, effectively co-opted development partners, civil and inclusive development. ILUTP efforts in CMA society, academia, private sector, and citizens which represent a paradigm shift in planning from traditional has helped provide valuable inputs to the CMP and zoning and land use mapping towards a more integrated TMP. and strategic approach that aims to bring about green, TOC resilient, inclusive development and more productive spatial growth in the long run. While CMP and TMP are CONCLUSION still being prepared, the active participation of both Global experiences have shown that ILUTP can CMDA and CUMTA in the preparation is expected to lead promote resilient, inclusive, and sustainable urban to two highly intertwined and consistent documents growth by reducing travel demand, thereby addressing supported by prioritized investment projects that congestion, carbon and air pollutant emissions, energy will translate planning into an urban development consumption, and infrastructure investment costs. reality on the ground. To resolve the bottlenecks in Despite the challenges with such an integration, the institutional capacities and inter-agency coordination, window of opportunity is now open for Chennai given CUMTA and CMDA are pursuing continuous on-the-job the simultaneous development of its CMP and TMP.  A training with World Bank support. Application of new new paradigm shift can not only set the future growth technologies, data, and analytical methods has also of this metropolis on the right path that is resilient and been an instrumental part of the uplifting in planning sustainable, but it will also become a lighthouse for other performance in these two institutions.   large fast-growing cities in India and other countries. Please click here to access the technical note on this TAKEAWAYS FOR OTHER CITIES chapter. The Chennai experience can offer lessons for other cities. The salient takeaways include:  Endnotes 1 Qingyun Shen is a Senior Urban Specialist at the World • Ecosystem approach to ILUTP adoption: Effective Bank. planning interventions across the regional, 2 Abhijit Ray is a Senior Urban Specialist at the World Bank. metropolitan/city, and sub-city/neighborhood level.  3 Seetha Raghupathy is a Senior Urban Planning Consultant for the World Bank. • Aligned plan preparation timelines: Development 4 Anshul Mishra is the Member Secretary of Chennai of the CMP and TMP concurrently enables the Metropolitan Development Authority (CMDA). synchronization of land use and transport planning.  5 G.O. (Ms) No.2395, dated 04.12.1976. 6 G.O. (Ms). No. 190 & 191, dated 02.09.2008. 12 Photo credit: CUMTA 2: AUGMENTING BUS SERVICE DELIVERY Ravi Gadepalli,1 Gerald Ollivier, and Shyam Srinivasan More recently, India made significant strides in INTRODUCTION transitioning from ICE to electric buses (e-buses) through programs like the Faster Adoption and Manufacturing of Bus based public transport is critical for addressing Electric (and Hybrid) Vehicles (FAME), the National Electric the mobility challenges faced by cities in developing Bus Program (NEBP), and the PM e-Bus Sewa program.2 countries. Buses offer a cost effective, agile, space, and A combination of aggregated and standardized energy efficient means of public transport, which can procurement has resulted in significant cost reduction cater to the increasing travel demands of growing urban through bankable contracts which partially address populations. Despite their obvious benefits, bus services TOC earlier challenges. in developing countries have often fallen short of meeting travel demand and users’ quality expectations. However, despite these policy, regulatory, and institutional enablers, bus services for urban and Across India, increasing the share of buses is key to rural mobility needs have often fallen short of reducing traffic congestion and improving air quality meeting increasing travel demands and users’ and road safety. Many states have a public transport quality expectations. A key barrier in scaling up bus authority (PTA), that is, a state transport undertaking services has been financial constraints faced by PTAs (STU), a municipal transport undertaking (MTU) or a due to a continuous growth in operating costs caused special purpose vehicle (SPV) exclusively created for by staff and fuel cost increases not being matched by ensuring bus service delivery. PTAs exhibit varying the growth in revenue as the fares are set based on degrees of involvement across India. Some PTAs only affordability considerations. Government support for focus on planning, contracting, and managing bus bus services is limited to discretionary funding for capital services while the operation of services is contracted to and operational expenditure via the annual budget private operators. Several PTAs also own a part or the process. Without certainty of long-term government whole of their fleets and operate them through in-house support, many public bus agencies are unable to staff. Improving buses has also been prioritized as a part undertake long-term fleet expansion and improvements of successive national-level funding programs such as in service quality. This has also been the case in Chennai, the Jawaharlal Nehru National Urban Renewal Mission which faced a steady decline in the quantity and quality (JNURM) for internal combustion engine (ICE) buses of public bus services. (2007-2014). Recognizing the urgent need for change, GoTN with support from the World Bank prioritized the transformation of bus services as a critical pillar of CCP. The program aims to make MTC bus services world- class through a comprehensive strategy which combines a multi-year business plan with a PTSC. 13 CHENNAI’S URBAN MOBILITY TRANSFORMATION This note explains key institutional reforms for improving have been identified under the Business Plan. The plan the quality of bus services as part of the Chennai City seeks to bring the bus network to financial sustainability, Partnership (CCP) between the Government of Tamil backed by improved performance and improvements in Nadu and the World Bank with AIIB co-financing. The efficiency, supported by predictable viability gap funding Chennai example offers several takeaways of value for from the government. This seeks to unlock a higher other cities looking to reinvigorate their bus services. level of service through a change in the service mix This note can also inform decision makers about the key and improving fleet utilization (to 87 percent), fostering bus reforms undertaken in Chennai. seamless integration with other modes. It will build on guidance from a diverse representation of commuters of different genders. APPROACH IN CHENNAI The Public Transport Service Contract (PTSC). The Chennai model of transforming bus services. To formalize the commitment towards service Addressing the financial sustainability of PTAs through transformation, a PTSC was signed between the assured viability gap funding (VGF) by the government Government of Tamil Nadu and MTC starting in 2023 while also improving their cost efficiency and customer which will gradually cover the entire fleet. PTSC ensures centricity are essential for transforming bus services in VGF for capital and operational expenses over a five-year India. Chennai has institutionalized a public transport period, subject to MTC meeting its performance targets. service contract (PTSC) which provides a replicable It has established clear roles and responsibilities for example for other cities. concerned agencies, regular reporting of performance, timely disbursement of funds, and an annual review of The Metropolitan Transport Corporation (MTC), an STU targets and the Business Plan. owned by GoTN, is the sole public bus service provider in Shift from operations to service delivery through Chennai. While MTC has consistently performed well on gross cost contracts (GCC) to private operators. For TOC efficiency indicators such as fuel efficiency and ridership fleet augmentation, MTC will introduce alternative per bus, fleet and service levels have not kept pace with business models such as deploying 1,000 electric buses users’ travel needs and expectations. on a GCC basis under the Chennai City Partnership. Under Recognizing the urgent need for change, GoTN this arrangement, MTC will sign contracts with private with support from the World Bank prioritized the operators who will be responsible for fleet provision and transformation of bus services as a critical pillar of CCP. operations. This will allow MTC to streamline operations The program aims to make MTC bus services world-class and focus on service planning and delivery management, through a comprehensive strategy which combines a instead of owning and operating the e-buses. In parallel, multi-year business plan with a PTSC. MTC will renew its fleet under in-house operations, leveraging support from various other sources such as Business plan. In July 2023, GoTN approved a long-term KfW. (10 year) vision and a medium-term (5 year) business plan for guiding the transformation of MTC’s services. The vision is for MTC to be an integral part of Chennai citizens’ daily lives by providing world class, customer- centric, and sustainable public bus services. Under the EXPECTED IMPACT vision, the average daily bus ridership seeks to increase Bus service reforms in Chennai are well underway and from 2.8 million in 2023 to 5.3 million by 2032, with an are expected to improve bus service delivery in the increase in fleet size to 7,578. Key performance indicators city. The Business Plan was approved by the Government have been defined for monitoring MTC’s performance of Tamil Nadu in July 2023. PTSC was subsequently efficiency and customer satisfaction. approved and operationalized in September 2023 and Specific timelines for targets such as adoption of electric MTC had initially received the necessary budgetary buses, improving fuel efficiency, network coverage, allocation for year 1 covering 10 percent of its fleet. passenger information systems, digital ticketing systems, Building on the results achieved in the first year, GoTN customer satisfaction levels, and safety and security advanced the PTSC timeline by a year and has now 14 decided to reach 100% VGF support in four years instead and KPI-based monitoring provides an interesting of the five originally planned. Accordingly, GoTN will blueprint for consideration by other cities. now cover 50 percent of MTC’s VGF requirements in • Building consensus on KPIs and targets: The year 2, 70 percent in year 3 and 100 percent by year 4. Chennai experience underscores the importance Additionally, a program management unit (PMU) has of a collaborative, iterative process for selecting now been set up for implementing PTSC effectively over achievable KPIs and targets to ensure stakeholder its five-year tenure, including tracking and reporting on commitment and durability. key performance indicators, updating the Business Plan annually, and advancing efficiency improvement goals • Transformation with timelines: Chennai’s phased set for MTC. Other cities and states could accelerate bus PTSC implementation allows adaptation over five service reforms by adopting the business plan linked years, but other cities may opt for full coverage PTSC approach with minor modifications suiting the initially with moderate KPI targets based on fleet local context. MTC also concluded the procurement of capacity. 500 e-buses using gross cost contracts in November 2024, to be followed by a second phase of 500 e-buses, • High care with high expectations: The successful with the bus deployment expected to be carried out in implementation of PTSC requires strong oversight, phases through 2025 and 2026. The prices quoted for re-skilling, and capacity augmentation, supported GCC (INR 77.16 per km for Non-AC and INR 80.86 per km by a contract management committee for annual for AC e-buses) deliver more than 20 percent savings in reviews. operating costs for MTC. These results mark an inflection point in the technology and business model preferences for MTC and validate the transition model proposed CONCLUSION under SUSP. Cities/states intending to transform bus services to world- TOC class standards can do so by developing the necessary TAKEAWAYS FOR OTHER CITIES building blocks adopted by Chennai -- a long-term vision, a business plan for defining service improvement targets • Assurance of support in exchange for better and financial implications, and a PTSC for formalizing services: A rolling five-year funding commitment the government funding commitment for achieving the tied to service enhancement and efficiency vision and deploying new buses within this framework. improvements fosters accountability and supports Such funding commitment enables PTAs to achieve long-term planning and investments for better savings in procurement of e-bus services by building service delivery. confidence in the bankability of contracts. • The transformation process: The Business Plan and Please click here to access the technical note on this PTSC process in Chennai, focusing on customer- chapter. centric service delivery, electrification, digitalization, Endnotes 1 Ravi Gadepalli is a Consultant at the World Bank. 2 Convergence Energy Services Limited. 2022. The Grand Challenge’ for Electric Bus Deployment: Outcomes and Lessons for the Future. 15 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: CUMTA 3: FOSTERING MULTIMODAL INTEGRATION Ravi Gadepalli, Jai Malik,1 Shyam Srinivasan, and Gerald Ollivier approach for multimodal integration (MMI). MMI aims INTRODUCTION to provide seamless connectivity across modes such as buses, metros, trains, auto-rickshaws, taxis, and private Chennai’s growing metropolitan area faces the vehicles for reducing friction in interchanging between complexities of increasing mobility needs, changing modes thus making public transport more attractive for travel preferences, and evolving demand patterns. users. This will lead to enhancing accessibility, reducing The city needs a comprehensive strategy for integrating congestion, and improving overall urban mobility for the its diverse transportation modes and meeting its mobility residents of Chennai. demands efficiently. With a burgeoning population TOC and increasing urbanization, the demand for efficient This note outlines some of the key takeaways in MMI transportation solutions is more pressing than ever. from experiences in Chennai. Chennai’s vision for Despite considerable strides in expanding public transit MMI encompasses physical infrastructure, operational options, the declining mode share of public transport planning, and institutional and technological measures combined with increasing dependence on private (2W) aimed at optimizing connectivity and efficiency across transportation (Figure 3.1), signal the need for a holistic the city’s transportation network. FIGURE 3.1: MODE SHARE TRENDS IN CHENNAI SINCE 1992 30% 17% 2% 1992 2% 7% 39% 3% 2008 28% 6% 4% 6% 25% 26% 5% 2015 26% 6% 6% 7% 27% 23% 5% 25% 3% 7% 7% 30% 22% 6% 2018 2023 24% 4% 8% 7% 34% 18% 5% 0 20 40 60 80 100 Walk Bicycle Autorickshaw/Taxi Car/van Two-wheeler Bus/school bus Train/metro Source: CMP Interim Report II, CUMTA (2024). 16 APPROACH IN CHENNAI CUMTA acts as a nodal agency for advancing Cities typically strengthen MMI by creating an MMI initiatives and ensuring integration of institutional set-up for integrated planning, improving diverse transportation modes in the city. physical connections between modes, integrating route network planning and scheduling across public transport services, regulating paratransit services, and fostering Operational integration through the bus network Mobility as a Service (MaaS) initiatives for improved redesign and paratransit regulations. The bus route passenger information and ticketing across modes to network served by MTC is proposed to be redesigned for enhance overall travel experience.2,3 meeting evolving travel demand patterns in Chennai and complementing the suburban rail and expanding metro The Chennai Unified Metropolitan Transport rail systems. The proposed plan will strengthen the core Authority (CUMTA) is the institutional anchor driving services provided by MTC as a main-haul public transport MMI in Chennai. One of the crucial steps in achieving system and introduce feeder services to rail-based mass- MMI is establishing an institutional anchor for planning, transit systems in one comprehensive network strategy. coordinating, and implementing transportation projects This will benefit from MTC’s fleet expansion plans and in partnership with various agencies responsible for stakeholder engagement strategies for providing a roads, buses, and metro rail services. CUMTA was simple yet comprehensive route network evolution established in 2010 and reformed in 2020 to serve as plan. Paratransit services providing informal-public a bridge among various government entities like the transport like services, are proposed to be regulated and Greater Chennai Corporation (GCC), the Metropolitan reorganized for enhancing efficiency and integration. Transport Corporation (MTC), the Chennai Metropolitan CUMTA plans to map the existing paratransit services and Development Authority (CMDA), and the Chennai Metro develop a plan for the fleet size and network evolution Rail Limited (CMRL) as well as private players such as TOC in the future for complementing the bus, metro, and paratransit operators and on-demand services for the suburban rail services while also incorporating the needs coordinated development of the public transport system of their operators. A framework for integrating paratransit in the city. CUMTA acts as a nodal agency for advancing services with public transport regulations and enhancing MMI initiatives and ensuring integration of diverse their service quality will build on learnings from similar transportation modes in the city. recent efforts in Jakarta and Manila. These cities are attempting to formalize and consolidate operators into Physical integration planning guidelines, design, companies which provide coordinated services while and implementation. In enhancing MMI for improved removing unhealthy competition on the streets. user experience, Chennai and other cities are prioritizing physical integration at mass transit stations including Technological integration for MaaS.4 Chennai aims infrastructure for pedestrians, cyclists, and bus users to simplify user experience in multiple public transport for accessing metro and suburban rail systems. For modes through technological integration efforts for this, CUMTA plans to develop a city-wide MMI strategy providing real-time journey planning and integrated by classifying interchange nodes into key typologies, digital ticketing across public transport modes and later identifying essential elements for each station type, include on-demand modes of transport, commonly developing conceptual designs, and preparing known as MaaS. CUMTA is currently developing a mobile implementation and monitoring plans for improving application for integrated real-time information and ease of access for pedestrians, cyclists, and users of the digital ticketing for public transport. Additionally, MTC public transport modes. A guideline document defining and CMRL have also issued contracts for open loop smart the type of physical infrastructure investments needed card (NCMC)-based ticketing systems that can be used at each station typology is proposed to be developed across these systems. It is expected that such mobile followed by detailed implementation ready designs. The and smart card-based systems can later be expanded Kilambakkam Skywalk project will be taken up as the first to integrate information and ticketing of on-demand such project for providing connectivity between the bus modes of transport thereby graduating to MaaS. terminal and the proposed rail halt station (a new halt station proposed by CUMTA as part of MMI). 17 CHENNAI’S URBAN MOBILITY TRANSFORMATION EXPECTED IMPACT • Fostering data sharing: Sharing data among governments and private entities, as seen in Chennai’s In Chennai, initiatives for MMI aim to realign plans to adopt standardized data formats like GTFS, transportation networks with changing demographics enables informed decision-making and improves and travel patterns. By improving access across modes operational efficiency, drawing takeaways from at interchange points, optimizing routes, and enhancing London’s unified APIs and Finland’s comprehensive reliability, these initiatives seek to provide faster, more data integration. efficient, and reliable public transit services leveraging on • Leveraging informal paratransit services: multiple transit options. The initiatives would ultimately Integrating informal paratransit services into formal encourage greater public transit usage and address transportation networks, as demonstrated in Jakarta, challenges faced by residents and employees. enhances accessibility and last-mile connectivity, emphasizing strategic planning, stakeholder engagement, and infrastructure upgrades. TAKEAWAYS FOR OTHER CITIES Cities can learn valuable insights from the initiatives taken by GoTN in Chennai and other cities for enhancing CONCLUSION multimodal integration: This note summarized the various building blocks • Establishing cross-institutional authorities: for MMI being planned and implemented in Chennai. Creating centralized bodies like CUMTA streamlines Chennai’s proactive approach led by CUMTA offers a decision-making and coordination among various replicable framework for other cities for navigating similar transportation agencies, as also seen in London and challenges, emphasizing the importance of interagency Barcelona. coordination and stakeholder engagement across all user groups and relevant private service providers such TOC • Prioritizing user-centric journeys: Simplifying as three-wheeler and on-demand service providers. As travel experiences through single-ticketing systems these initiatives continue to unfold, the realization of and integrated physical infrastructure, inspired increased public transport usage and the associated by London’s Oyster card and Singapore’s walkway benefits is anticipated to materialize, contributing to the networks, encourages modal shifts away from private long-term vision of sustainable urban mobility. vehicles. Please click here to access the technical note on this topic. Endnotes 1 Jai Malik is a Young Professional at the World Bank. 2 Bianchi, Alves, Winnie Wang, Joanna Moody, ; Waksberg Guerrini, Ana; Peralta Quiros, Tatiana; Velez, Jean Paul; Ochoa Sepulveda, Maria Catalina; Alonso Gonzalez, Maria Jesus. 2021. Adapting Mobility-as-a-Service for Developing Cities: A Context-Sensitive Approach. Mobility and Transport Connectivity;. © The World Bank, Washington DC. 3 Pulido, Daniel, Georges Darido, Ramon Munoz-Raskin, and Joanna Moody (2018).  The Urban Rail Development Handbook. © Washington, DC: World Bank. 4 World Bank. 2022. Blog. Joanna Moody and Bianca Bianchi Alves. Mobility-as-a-Service (MaaS) can help developing cities make the most of complex urban transport systems—if they implement it right. 18 Photo credit: CUMTA 4: DESIGNING SUSTAINABLE, COMPLETE STREETS IN INDIAN CITIES Jaishree Jindel,1 Dr GS Sameeran,2 BV Babu,3 Kasinath Anbu,4 Shyam Srinivasan, and Gerald Ollivier for other cities in developing countries looking at INTRODUCTION enhancing sustainable mobility and transforming the urban environment. This note discusses the challenges and solutions related to Complete Streets in Indian Cities, with Complete Streets5 can enable seamless, safe, and particular focus on Chennai. The increasing trend of convenient commute and access for all regardless of TOC urbanization, changing land use, and limited options age, gender, and abilities. The concept aims to achieve in public and non-motorized transport has led to the inclusive, compact cities through the rejuvenation of increased use of private vehicles, raising concerns about streets and neighborhoods, linking the infrastructure accessibility, road safety, and emissions. Internationally, design with the functions of the streets, surrounding city and street designs are evolving for addressing land-use, densities, and enhancing safety and climate these aspects. Dense urban structures and sustainable resilience. The design principles extend to both above transport with Complete Streets are being advocated for ground and underground infrastructure. Above ground, improving mobility and safety, enhancing livability and the focus is on promoting non-motorized modes through mitigating climate change. This is in line with the famous equitable distribution of space, speed management, inverted ‘mobility pyramid’ for prioritizing sustainable improving access to public transit modes, multimodal mobility. This note documents the application of the integration, and enhancing road safety. Underground, the Complete Streets approach by GCC on selected streets in focus is on ensuring increased availability of streets and Chennai. Chennai’s experience offers several takeaways utilities for seamless movement and enhanced quality GCC manages roads, stormwater drains, streetlights, and other municipal functions within the core city (426 sq km). The state level Highways and Minor Ports Department is responsible for ring roads, bypasses, and highways. CMDA is the nodal planning agency for CMA of 5,904 sq km. CUMTA is the nodal agency for the planning and delivery of integrated seamless transport in Chennai. Utilities’ agencies like the Chennai Metropolitan Water Supply and Sewerage Board manages water supply and sewage systems in CMA, and the state level Tamil Nadu Generation and Distribution Corporation Limited manages electrical power generation and distribution statewide 19 CHENNAI’S URBAN MOBILITY TRANSFORMATION and livability in the neighborhoods. Utilities are generally two wheelers and pedestrians with 45 percent of local shifted below ground in a planned and integrated roads posing high crash risks for pedestrians.10 Chennai manner. Many cities like Paris, Singapore, Rotterdam, has also faced a declining availability and quality of and New Orleans, have also transformed existing open/ buses; consequently a declining public transport mode vacant spaces such as city parks, playgrounds, and post- share and high motorization - leading to both reduced industrial zones into landscapes to improve urban flood access by walking and increased road safety concerns. resilience using blue-green interventions. A World Bank analysis estimated that in CMA, residents can, on average, access only 30 percent of the jobs in Global evidence suggests that Complete Streets 60 minutes by public transport. This was attributed to approaches yield a range of direct and indirect the uncoordinated growth of the public transit network benefits. Research suggests that designing a street for with urban sprawl, inconvenient first and last mile walking and cycling (wide footpaths, pedestrian refuge, connectivity, and lack of multimodal integration. traffic-calming measures, and treatment for people with disabilities) can reduce pedestrian crash risks by as much Complete streets required inter-agency coordination as 28 percent.6 Complete Streets can encourage shifts for successful and sustainable implementation. to public transport, walking, and cycling. In Tianjin, the Like most urban centres, Chennai also has a complex People’s Republic of China, development of 132 km administrative mesh of city, state, and national level of Complete Streets across six urban core districts and agencies with varying geographical coverage working on improving accessibility around 96 metro stations led to planning, designing, and implementation of streets, road 175,000 and 261,000 additional daily trips by metro and safety, public transit and utilities - making coordination walking and cycling respectively (2022) and an overall 34 difficult and time consuming. GCC manages roads, percent bike mode share (2020). Complete Streets can stormwater drains, streetlights, and other municipal also improve the economic vibrancy of neighborhoods. functions within the core city (426 sq km). The state level In Tianjin, economic vitality increased by 18 percent in Highways and Minor Ports Department is responsible for ring roads, bypasses, and highways. CMDA is the nodal TOC the upgraded streets compared to 3 percent in non- improved streets. Similarly, Lancaster, California planning agency for CMA of 5,904 sq km. CUMTA is the witnessed a doubling of tax revenues from improved nodal agency for the planning and delivery of integrated streets with the opening of 48 new businesses and the seamless transport in Chennai. Utilities’ agencies like creation of 802 permanent jobs between 2007 and 2012. the Chennai Metropolitan Water Supply and Sewerage In four years of street redevelopment (2016), the city Board manages water supply and sewage systems in attracted US$ 130 million in private investments and CMA, and the state level Tamil Nadu Generation and generated US$ 273 million in economic output.7 Distribution Corporation Limited manages electrical power generation and distribution statewide. There is potential to improve the safety and convenience of Chennai’s road network for pedestrians and cyclists. Chennai, with a current road APPROACH IN CHENNAI network of around 2,780 km has highways, bypasses, and other roads passing through the city. Local roads GCC is a front runner in adopting the NMT policy11 with in Chennai city are centers of cultural and commercial an ambition of allocating 60 percent of its transport activity and are commonly used by pedestrians and budget for walking and cycling networks. Over 140 km cyclists but have limited pedestrian friendly infrastructure of roads have been made safe and accessible, benefiting leading to road safety concerns. CMA witnessed an over 0.5 million people daily. NMT infrastructure has been average of 1,150 deaths annually between 2012 and designed for specific neighborhood clusters through the 2022,8 highlighting the urgent need for tackling the road Chennai Street Design Project. GCC developed 17 km safety challenge systematically. 57 percent of all road of cycle tracks in the city in June 2018 under the Smart fatalities are motorcyclists and 37 percent are pedestrians Cities Mission. From 2014 to 2018, the city took pro- and cyclists.9 Women are impacted disproportionately active measures like establishing a dedicated Special as they walk more, accounting for around 60 percent of Projects Department for overseeing NMT measures. the pedestrian casualties. While local roads have lower Around 80 technical staff trained in Complete Streets fatality rates as compared to major arterial roads, non- by ITDP in collaboration with Anna University (a local fatal road crashes are common and generally involve university), and visits for decision makers and engineers 20 were organized to learn from Indian and international interventions, the contractors’ scope may include best practices. The success of the Pondy Bazaar project, five years of maintenance with appropriate KPIs. a vibrant pedestrian street and plaza, motivated GCC to These five areas of transformation were converted into a expand initiatives such as strengthening coordination detailed set of key performance indicators (KPIs) which among departments, conducting public consultations, consist of 15 attributes and 45 parameters for tracking and building the capacity of engineers and planners city- progress. Design development involved as-is spatial wide. mapping, assessment and concept designs, engagement Building on this, GCC developed a Mega Streets with stakeholders, and site visits for finalizing detailed program that aligns with Complete Streets approaches. designs (please refer to Technical Note 4 for details). It aims to rejuvenate streets and neighborhoods by Cycling also has a potential role in Chennai for enhancing linking above ground and underground infrastructure last mile connectivity. Even cities with hot weather with the function, land-use, and densities along selected conditions like Singapore are promoting cycling for last road segments. The program involves six neighborhoods mile connectivity and short trips. To facilitate cycling, with varying infrastructure levels and socioeconomic the streetscape in Chennai can be enhanced with traffic status (Adyar, Anna Nagar, Mylapore, Nungambakkam, calming measures at the neighborhood level, segregated Tondiarpet, and Velachery) and is being piloted through cycling lanes leading to mass transit stations, and a project including upgrading 12 km of local roads, improving the quality, width, and continuity of footpaths supported by the World Bank under the Sustainable for shared use by cyclists. There is potential to expand Urban Services Program (SUSP). The program aims to the initial attempts taken to provide cycling lanes into a achieve transformation in five key areas: strong cycling network in future phases. (a) Promoting walkability by increasing the length Critical Areas of Focus for Chennai. The success of of uninterrupted footpaths with adequate width the planned Complete Streets interventions in Chennai and the number of at-grade (signalized) pedestrian TOC hinges on a few key factors moving forward: crossings, especially close to mass transit nodes. Pedestrian facilities are to be universally accessible • Continued inter-agency coordination throughout with ramps and tactile paving. Traffic calming the project lifecycle – planning, designing measures and clear segregation of pedestrians and construction, supervision, and maintenance. This can road users will enhance road safety. be supported by standardization of data collection and sharing of the data/utility survey involving digital (b) Enhancing uninterrupted, safe walking spaces, integration under the Digital Chennai initiative to be and livability by shifting utilities underground, led by the Chennai Unified Metropolitan Transport constructing public toilets and convenience Authority (CUMTA). facilities, and adding green and street furniture for enhancing the vibrancy and attractiveness of these • Detailed mapping of underground utilities. While areas to the public. some agencies have initiated such surveys, it is important to include the 3D as-built coordinates of (c) Facilitating access to and usage of public transport the utilities to update and add to the base map. GCC modes through enhancements and integration of aims to integrate data with its existing GIS platform pedestrian infrastructure near transit nodes and and those of other utility agencies. clear signages for improving way finding. • Translation of approaches and takeaways into (d) Improving climate resilience through constructing guidelines. Chennai aims to update its Complete stormwater drains, bio swales, connecting with Streets guidelines based on project experience larger open spaces along the streets for slow- and latest developments in the sector like blue- soak-store, and incorporating other nature-based green infrastructure, nature-based solutions, utility solutions. integration and GIS mapping, material circularity, and the creation of a public realm. (e) Promoting efficient lifecycle management of assets by using recycled material for construction and • Mainstreaming of street development through reducing construction waste, wherever appropriate. adequate focus on street development in Chennai’s For ensuring the longevity and sustainability of Comprehensive Mobility Plan, guidelines in the 21 CHENNAI’S URBAN MOBILITY TRANSFORMATION master plan, neighborhood and TOD plans, and • Focusing on neighborhood-level implementation. adoption by other urban local bodies within CMA. Implementing Complete Streets at the neighborhood level will create stronger network effects. Incorporating this approach into city planning such EXPECTED IMPACT as master and local area plans, is more efficient and supports the creation of a connected network. Referring to international examples, Complete Streets approaches can have several benefits for • Providing maintenance and enforcement. Chennai. Assuming 50 km of street upgrades spread Enforcing the maintenance of built infrastructure over multiple implementation phases, the improved is crucial for long-term economic benefits and walkability, modal shift to public transport and non- sustainability. Complete Streets should include low- motorized transport, improved road safety, and reduced maintenance elements and technology solutions for congestion and air pollution are expected to yield ensuring proper maintenance and management of significant economic benefits. Comparable projects in assets. Tianjin (China) and Karachi (Pakistan) achieved post- • Adopting green public procurement approaches. project economic returns of 53 percent and over 16 These approaches can improve sustainability percent respectively.12 By encouraging shifts to public (depletion of non-renewal sources) by addressing transport, walking, and cycling, it is anticipated that the increased demand for construction material, by there will be a saving of approximately 109,000 tons of focusing on low-carbon construction methods and GHG emissions over 20 years. a circular economy approach for construction and demolition waste. Addressing a sustainable design and procurement through GPP will not only improve TAKEAWAYS FOR OTHER CITIES resilience quotients of the upgraded streets but also positively impact urban environment. TOC • Performing context-specific street analyses. Streets need to be analyzed based on their current • Engendering community ownership. For successful land use and future role, considering each street’s implementation, scalability, and maintenance, a unique characteristics and avoiding the ‘one-size-fits- community’s role as both the end-users and caretakers all’ approach. of the interventions is vital. Engaged communities help address challenges such as waste segregation • Gathering data on underground utilities for and illegal parking. Effective communication plans improving the efficiency of Complete Streets. Issues and feedback mechanisms are essential for proactive on mega streets in brownfield locations pertaining to public engagement. shifting or relaying of existing operational utilities are compounded by little or no data on the exact location (3-dimensional), alignment, capacity, age, or conditions of underground utilities. Documentation, CONCLUSION spatial mapping, and sharing standardized data To meet the growing urbanization and mobility demand, through effective coordination and inter-agency cities increasingly need to focus on dense walkable green communication for minimizing unplanned and development with integrated land use and transport for unbudgeted changes are a must. greenfield areas. The existing areas will also need efforts • Strengthening inter-agency coordination. Given for redeveloping and retrofitting the streets and roads. that inter-departmental coordination is imperative, Complete Streets approaches provide a solution to this a framework for standardization of survey methods, and will help improve walkability, road safety, inclusion, data formats, and sharing protocols across agencies and decarbonization. The experiences from GCC and Chennai offer valuable takeaways for other cities on should be formulated and adopted. Incremental planning, designing, and integrating streets. planning or retrofitting with IT support can further effective implementation. Please click here to access the technical note on this chapter. 22 Endnotes 1 Jaishree Jindel is a Transport Specialist at the World Bank. 2 Dr. GS Sameeran was the then Joint Commissioner (Works) at the Greater Chennai Corporation. 3 BV Babu is the Superintending Engineer (Special Projects, Smart City, Buildings & Registration of Contractors) at the Greater Chennai Corporation. 4 Kasinath Anbu is a Senior Consultant at the World Bank. 5 https://www.transportation.gov/mission/health/complete-streets 6 Smart Growth America. 2021. Dangerous by Design. 7 CNU Journal (2016). Blog. Robert Steuteville. New streetscape spurs downtown turnaround. 8 Road accidents in India, TRW, Ministry of Road Transport and Highways, Government of India, 2022. 9 Data from the Greater Chennai Traffic Police. 10 DIMTS analysis for the Chennai Road Safety Action Plan, 2023. 11 Chennai Non-Motorized Transport Policy, 2014. 12 ICR reports of the projects (the World Bank). TOC 23 CHENNAI’S URBAN MOBILITY TRANSFORMATION Source: Deccan Herald 5: ACHIEVING URBAN MOBILITY RESILIENCE Rashi Grover1, Shyam Srinivasan, and Gerald Ollivier INTRODUCTION Chennai has adopted a multifaceted approach Urban mobility resilience is a critical aspect of urban to disaster risk management in urban mobility resilience. It refers to the transportation system’s that includes improvements in infrastructure, ability to withstand and recover from disruptions, whether caused by natural hazards, accidents, or other coordination among various agencies, unforeseen events. This note focuses on Chennai2, which, and strategic planning for resilience and similar to coastal cities across the world, is increasingly sustainability. TOC vulnerable to natural disasters and climate change, and discusses the approach adopted in Chennai to assess climate change vulnerabilities and identify the measures better prepare for natural disasters. Chennai is part of the to strengthen urban mobility resilience. The Chennai Water as Leverage (WaL) initiative that aims to develop example offers useful takeaways for other cities facing groundbreaking, innovative approaches for tackling the similar challenges. immense climate and water challenges in three cities Chennai is exposed to two main categories of extreme in Asia. Chennai has also been selected as the first in a weather events: floods (fluvial, pluvial, coastal)3 and series of urban flood mitigation projects. The Integrated heatwaves. Figure 5.1 presents a timeline of extreme Urban Flood Management activities for the Chennai weather events in Chennai. These extreme weather Basin Project under the National Disaster Mitigation events have a severe impact on lives, livelihoods, and Fund (NDMF), which also includes central assistance of infrastructure. INR 5,000 million will help develop a broader framework Existing initiatives in Chennai. Chennai has adopted for urban flood management in Chennai. a multifaceted approach to disaster risk management in urban mobility that includes improvements in infrastructure, coordination among various agencies, APPROACH IN CHENNAI and strategic planning for resilience and sustainability. GoTN, working closely with GCC and other municipal A systematic approach to improving urban mobility corporations in CMA, has taken several steps for resilience. The increasing frequency of disasters in enhancing disaster risk management such as: (i) cities like Chennai underscores the importance of establishing an integrated command and control center urban resilience against climate change, or climate (ICCC) for coordinating disaster management efforts, (ii) resilience. Climate resilience is the capacity of a system, improving its stormwater drainage system - stormwater community, or interconnected systems to withstand, drains are provided with rainwater harvesting systems at recover from a hazard, and adapt to the impact of 30 m intervals for recharging the groundwater table in climate change. A systematic approach to building the city, and (iii) developing city resilience strategies to climate resilience typically involves assessing and 24 FIGURE 5.1 TIMELINE OF EXTREME WEATHER EVENTS IN CHENNAI 1883 1976 1987 1996 Tsunami Floods Earthquake Floods 2005 2004 2001 1998 Heavy Floods Indian Ocean Major Floods Stampade, cyclone Tsunami Earthquake Fanoose TOC 2008 2010 2011 2012 Cyclone Cyclone Cyclone Cyclone Nilam Nisha Jal Thane Mild tremors 2020 2019 2016 2015 Cyclone Nivar Drinking Cyclone Nada 100 year Cyclone Burevi water crisis Cyclone Vardah Flood event Mild tremors 2023 Cyclone Michaung Source: Authors’ illustration. 25 CHENNAI’S URBAN MOBILITY TRANSFORMATION taking measures for managing disaster risks defined by designating an exposed element as critical, for instance, UNDRR as ‘the potential loss of life, injury, or destroyed or critical roads and road elements were defined as roads/ damaged assets which could occur to a system, society links in the urban road network in Chennai which cater to or a community in a specific period of time, determined substantial traffic volumes and are critical for maintaining probabilistically as a function of hazard, exposure, acceptable service levels. vulnerability and capacity.’ In general, disaster risk lies at • Physical vulnerability to floods was assessed for five the intersection of hazard, exposure, and vulnerability broad categories of critical transport infrastructure - (Figure 5.2). FIGURE 5.2: DISASTER RISK AT THE INTERSECTION OF HAZARD, EXPOSURE, AND VULNERABILITY4 HAZARD(S) VULNERABILITY Hurricanes, Tornadoes, Physical Thunderstorms, Downbursts, Capacities/Strength, Earthquakes, Tsunamis, Floods Maintenance, Leading, Damage Timing & Duration Human Correlation and Intensity Health, Education, Wealth, socioeconomic and Spatial Variation Political Factors RISK EXPOSURE TOC Physical Damage, Physical Economics Loss, Types, Characteristics, Death, Injury, Location, Distribution Epidemic, Human Community Crises Demography, Census Source: Disaster Risk Management Through the DesignSafe Cyberinfrastructure. Int J Disaster Risk Sci 11, 719–734. roads and road elements, structures such as bridges/ flyovers, freight transport, and mass transit systems An approach that considered these dimensions was like suburban rail, the mass rapid transit system applied in Chennai, albeit with modifications based on (MRTS), MTC, and the Chennai metro. The results resource availability. In 2022-2023, a technical study showed that several bridges and flyovers in the city on Resilient Urban Mobility and Services in Chennai was were nearing their serviceability age, suggesting undertaken with funding from the Government of Japan scope for using intelligent transport systems (ITS) (Global Facility for Disaster Reduction and Recovery in integration with the Chennai smart city programs (GFDRR) and the World Bank, in close collaboration with for reducing disruptions to services during disaster government agencies, including CMDA, CMRL, GCC, and events. With three major water bodies crossing MTC.5 This study defined risk as a function of hazard and through the city and most of the MRTS and metro vulnerability. rail systems built along them, special attention needs to be paid to the accessibility of these stations for Vulnerability of critical infrastructure6 in Chennai. providing the minimum operational ability during Critical urban mobility infrastructure was assessed based floods. Alternative routes for passenger and freight on three types of vulnerabilities: physical, systemic, movement were identified along roads that were and socioeconomic. Specific criteria were used for comparatively more resilient during disaster events. 26 • A systemic vulnerability assessment was also done was developed. An overarching recommendation relates to study accessibility to the identified critical lifelines to financing measures for enhancing climate resilience. during disaster events. For instance, it was observed The financing of resilience enhancement measures in the that travel to hospitals in certain areas was expected urban transport systems in Indian cities requires different to take 20 percent longer than usual. mechanisms from those used for regular investment and maintenance, considering the need for contingency • Further, a socioeconomic vulnerability assessment funds and the supplemental allocation for improved showed that the central part of CMA, particularly the resilience based on probability of risks and expected core city under GCC’s jurisdiction had high to very high impacts. Prioritizing projects according to the highest socioeconomically vulnerable zones when it comes to cost-benefit ratio based on economic, environmental, transport. Vulnerability in the southern and northern and social factors (for urban transport infrastructure) is zones was exacerbated by deficiencies in stormwater therefore important. drainage. Based on these hazard analyses and three aspects of Further specific recommendations were organized along vulnerability, a list of transport elements at risk in CMA the following themes: (i) structural, referring to the was generated (Table 5.1). Critical elements falling under construction and maintenance of physical infrastructure; the Very High category of vulnerability as defined for (ii) data and technology, including how they could that element were classified ‘Risky Assets’, while all other enable contingency measures during disasters for vulnerable elements were not found to be risky but were ensuring a minimal level of services and access to vulnerable to different degrees. critical lifelines; and (iii) measures relating to institutions and communications in and around disasters. Several Recommendations for boosting urban mobility recommendations are already being taken up and resilience. Based on the risk assessments, a are being implemented by GCC, CUMTA, and other comprehensive set of recommendations for improving agencies in Chennai. At the same time, Chennai can climate resilience of the urban mobility infrastructure learn from other cities/countries that have successfully TOC TABLE 5.1: OVERALL RISK ASSESSMENT OF URBAN TRANSPORT ELEMENTS Risk Assessment of Urban Transport Elements Roads MTC Depots/Terminals Sub-urban & MRTS Stations • Arunachala Street • Mandaveli Bus Deport cum • Chetpet sub-urban railway • 8th st. Terminal station • Anna Main Road • T Nagar Bus Depot cum • Kodambakkam sub-urban • VR Ramanathan Road Terminal railway station • Annamalai Nagar 1st Street • Ambattur Industrial Estate • Light house MRTS station • 14th Avenue • Pantheon Road • Mogaper Estate Road Bridges Flyovers MTC Routes • St. Andrews Bridge • Doveton Flyover • Route_15 • Laws Bridge • Pantheon Flyover • Ropute_15G • Harris Bridge • Thirumangalam Flyover • Route_S18 • Alandur Abraham Bridge • CMBT Flyover • Route_S15 • Santhome Bridge • Route_S147X Freight • Naduvankarai Bridge • Route_27B • Nungambakkam Bridge • Chennai port to Maduravoyal • Route_S86 • Saidapet Bridge to ORR to Peripheral road • Manali Oil Refinery road • NH Bypass Source: Resilient Urban Mobility and Services in Chennai, 2023 27 CHENNAI’S URBAN MOBILITY TRANSFORMATION used some of these approaches, including resilience in disaster, the city can undertake rapid assessments for building codes (China), using nature-based solutions prioritizing reconstruction and recovery efforts. (Malmö, Barcelona), building neighborhood ‘greenways’ • Urban transport agencies need to embed climate (Portland, Oregon), setting up integrated multimodal resilience considerations into the planning and transport systems (Zurich, Delaware), and setting up design of infrastructure by default. Climate resilience traffic control centers (Beijing) – some of them fully needs to become a core part of the psyche of urban virtual (Oklahoma). transport agencies and should feature in day-to-day decision making. To intervene effectively, agencies EXPECTED IMPACT need new skills including traffic modeling and impact prediction and management during floods; planning To illustrate the impact of embedding climate resilience and execution of preventive maintenance, retrofit, measures in urban mobility infrastructure, a cost-benefit and proactive post-flood repairs; catastrophic flood analysis (CBA) for fixing damages to the Vadapalani preparedness and response plans; and post-disaster bus stand during Cyclone Nivar was conducted as a damage and needs assessments. high-level assessment. The CBA showed that nature- based solutions were most effective in boosting climate resilience and gave the highest returns on investment. CONCLUSION Chennai is applying a multifaceted, systematic approach TAKEAWAYS FOR OTHER CITIES for building climate resilience that offers valuable takeaways for other cities looking at strengthening Chennai’s experience offers valuable takeaways for resilience in urban transport and mobility services. other cities looking at strengthening the resilience of Prioritizing climate resilience in the decision-making urban transit and mobility systems. matrix for projects is the first essential step in enhancing TOC • Urban mobility resilience requires continuous data the resilience of urban transport and mobility services. gathering and analyses of changing conditions. Structural measures that directly impact the resilience Data permeates the strategy for enhancing climate levels of the urban transport system need to be resilience at all stages – before, during, and after complemented with the effective use of data and disaster events. Before disasters, the city needs data for technology, and stronger institutions, capacities, and identifying the weakest links in the system to prioritize communications. Planning for urban growth, green retrofits, monitoring changes in urban hydrological spaces, and land use is directly related to the magnitude response caused by urban growth, watershed land and level of damage by urban floods and inter-agency changes, and climate change for taking proactive coordination is key to achieving success in dealing with measures. During disasters, the city can leverage the damages. data for dynamically managing travel demand and Please click here to access the technical note on this traffic for maintaining access to critical lifelines. Post topic. Endnotes 1 Rashi Grover is a Consultant at the World Bank. 2 Chennai Metropolitan Area, the focus of this study, encompasses the central city of Chennai and its suburbs distributed in Kanchipuram, Chengalpattu, and Thiruvallur districts. 3 Citizen Matters (2023). Article. Dr S Janakarajan. Chennai needs an integrated water management system to prevent floods and drought. 4 Pinelli, J.P., M. Esteva, and E.M. Rathje et al. (2020). Disaster Risk Management Through the DesignSafe Cyberinfrastructure. Int J Disaster Risk Sci 11, 719–734. 5 “Resilient Urban Mobility and Services in Chennai” by Taru Leading Edge Pvt. Ltd. and partner organizations – Urban Mass Transport Company Limited (UMTC) and GoAscendal. 6 Physical structures, facilities, networks, and other assets, which provide services indispensable to the social and economic functioning of society, and necessary for managing disaster risk. 28 Source: Shutterstock 6: DEVELOPING GENDER RESPONSIVE URBAN MOBILITY SYSTEMS IN CHENNAI  Mitali Nikore1, Sarah Natasha2, Gerald Ollivier, Meera Sundararajan3, and C. Vaishnavi4 sensitive data to adjust transport services, along INTRODUCTION with addressing safety concerns and network design catering to women’s travel patterns. This could enhance Gender is a key socio-demographic variable that women’s access to work and educational opportunities, has a big influence on women’s travel behavior but ultimately improving their financial independence and is often the least understood. Women face barriers TOC agency. Transport planning is not gender informed in using public transport at every stage of a journey due to various systemic and societal factors, leading because of design elements that are not gender informed to a lack of comprehensive strategies that address the - during access and egress, waiting at stops and transfers, diverse needs of all genders, perpetuating inequalities boarding and alighting, and inside a vehicle. in urban mobility. International examples of gender Despite women being amongst the biggest users mainstreaming in urban planning (for example, Vienna) of public transport, public transport systems across can be adopted with suitable modifications by Indian Indian cities do not fully understand their needs. cities. Chennai has championed efforts to ensure the safety and convenience of women in public transport, by This note discusses Chennai’s approach in increasing offering free travel on certain state-operated buses,5 gender inclusivity in urban mobility and public providing women-only buses and metro coaches,6 transport. Highlighting Chennai’s initiative of installing cameras and panic buttons on buses,7 and establishing a Gender and Policy Lab (GPL) in the Greater collecting gender disaggregated data.8 There are Chennai Corporation (GCC), this note discusses how further opportunities to make public transport services Chennai’s model offers valuable insights for other cities responsive to the needs of women and persons of who are aiming to improve gender inclusivity in urban minority genders, which in particular, focus on access, mobility and public spaces. affordability, and safety. This includes collecting gender- GPL’s twin objectives are improving women’s access to opportunities by improving safety and gender responsiveness in public spaces and public transport through a multi-pronged collaborative approach and mainstreaming gender inclusivity so that it becomes a process and a natural element in all city-level planning and decisions about service delivery.  29 CHENNAI’S URBAN MOBILITY TRANSFORMATION APPROACH IN CHENNAI Initiatives taken by GPL – experiences from the first year While Chennai is considered relatively safer for GPL’s interventions are organized around a four- women among southern cities, studies highlight pillar framework. Drawing on the recommendations the opportunities for improved gender-sensitive of the World Bank’s Toolkit for Enabling Gender infrastructure and awareness to address mobility Responsive Urban Mobility and Public Spaces in India,9 restrictions and underreporting of harassment cases. GPL’s interventions are organized around a four-pillar Southern cities in India, especially Chennai, are often framework: (i) assessing the ground situation; (ii) regarded as relatively safer for women. However, World strengthening policies; (iii) building capacity and raising Bank-supported studies, such as a gap analysis conducted awareness; and (iv) enhancing infrastructure and services in 2021 and a GPL perception study in 2023, highlighted (Figure 6.1). areas for improvement in ensuring women’s safety and mobility in Chennai. The studies also identified gaps in gender-sensitive infrastructure and a lack of awareness about helplines available to women in distress, which IMPACT may contribute to underreporting of harassment cases. GPL’s efforts are making Chennai city safer and more Addressing these challenges is essential to further inclusive for women. The preliminary results from the enhance Chennai’s reputation as a safe and inclusive city first year show that GPL made substantial progress in the for women. first year in identifying the primary factors contributing GPL was operationalized in April 2022 as a part of the to the perceived lack of safety in the city. GPL is also Chennai City Partnership between the Government of working on standardizing gender-responsive elements Tamil Nadu and the World Bank, aligning with ‘Nirbhaya,’ in infrastructure design guidelines. Most notably, the GPL a national scheme to enhance women’s safety which was team has succeeded in raising awareness and enhancing TOC already underway in Tamil Nadu. GPL works closely with the capacity of government agencies to understand the implementing agencies of the Nirbhaya program, the need for a gender-responsive urban mobility ecosystem Greater Chennai Corporation (GCC), the Metropolitan in the city (Figure 6.2). Transport Company (MTC), the Greater Chennai Police Going forward, GPL aims to expand its collaboration with (GCP), and the Social Welfare & Women’s Empowerment other implementing agencies and external stakeholders (SWWE) Department. like the MTC, CUMTA, and the Greater Chennai Police GPL’s twin objectives are improving women’s access (GCP) and shift its focus from diagnostics to direct to opportunities by improving safety and gender investments and implementation. responsiveness in public spaces and public transport Similarly, considering the importance of Gender through a multi-pronged collaborative approach and inclusiveness in urban development, the Chennai mainstreaming gender inclusivity so that it becomes a Metropolitan Development Authority (CMDA) intends to process and a natural element in all city-level planning evolve its Third Master Plan for CMA as a Gender-inclusive and decisions about service delivery.  plan. In this regard, CMDA has recently taken up a study GPL operates in a multi-stakeholder environment. titled ‘To formulate strategies for Gender Inclusiveness Situated in GCC, the core GPL team comprises of three in CMA’ with the primary objective of mainstreaming full time experts -- a team leader, a policy specialist, and gender-inclusive development in the Third Master Plan a communications specialist. The team has formed a through spatial planning efforts. This study aims to working group of high-level government officials across develop practical and feasible strategies, measures, and different departments in the Government of Tamil Nadu recommendations to foster an inclusive, safe, accessible, as well as city-level implementing agencies in Chennai. and sustainable environment for all genders in the GPL is also advised by a voluntary advisory committee Chennai Metropolitan Area (CMA). It will specifically focus comprising of national and state-level academics and on addressing gender disparities from a spatial urban practitioners and a team of experts from the World planning perspective by assessing key areas such as the Bank.  availability, accessibility, and safety of infrastructure, mobility, and public spaces/facilities within the CMA. 30 FIGURE 6.1: GPL’S ACTIVITIES ORGANIZED UNDER THE FOUR-PILLAR FRAMEWORK  1 2 3 4 Assess the Ground Strengthen Planning Build Capacity and Raise Improve Infrastructure Situation and Policies Awareness & Services • A survey of city-wide • Recommendations • Campaign on • Ongoing support to safety perceptions for Tamil Nadu’s State bystander intervention MTC for enhancing Policy for Women’s - speak up and speak gender responsiveness • Safety audit – Empowerment, 2021 out against sexual among bus services, community led citizens • Provision of detailed harassment including gender usage for the safe mobility recommendations • Night cycling with over audits of bus shelters fellowship for the implementing 100 people cycling to and stops • Assessment of agencies of the reclaim women’s right • Gender usage audits of complaints made to the Nirbhaya program to the city public parks 1913 helpline to enhance women’s • Training programs • Gender usage audits of safety in public for key civic agencies foot over bridges and transport and public in Chennai including subways spaces GCC’s engineers, MTC, • Recommendations and CPL for gender informed homeless shelters TOC FIGURE 6.2: GPL’S KEY ACHIEVEMENTS IN YEAR ONE Gender lens in guidelines and Infrastructure and service Enhancing citizen awareness processes upgrades A manual with a checklist for a Comprehensive safety audits have The 1913 helpline is now gender-informed bus stop design led to proposals for enhancing recording the gender of the has been adopted by MTC safety at 23 public toilets, 43 complainants and has introduced approach roads, 10 bus stops, 5 bus new categories for safety concerns terminuses and 18 railway stations; in the public spaces 65 streetlights have also been installed GPL's checklist for inclusive The Electrical Department has Citizen awareness regarding park infrastructure was set for sanctioned 425 new streetlight responses to sexual harassment implementation by GCC's Parks posts in 152 locations, increasing on buses and the use of the 181 Department, including sexual nighttime visibility helpline has increased harassment prevention training for park watchpersons Gender considerations incorporated Refurbishment of two foot over Public awareness about women's in the standard operating protocols bridges by GCC and a review of right to the city and access during for urban homeless shelters GPL's recommendations for subway late hours has increased enhancements is underway Three internal complaints committees have been established in GCC zones Source: GPL Annual Report (2023).   31 CHENNAI’S URBAN MOBILITY TRANSFORMATION TAKEAWAYS FOR OTHER CITIES proposals. GPL is also in the process of creating a Gender Inclusive Design Manual as a guide for future GPL’s experience offers valuable takeaways for other projects. cities looking at strengthening gender responsive urban • Data-driven approach: Collecting and analyzing mobility, including:   gender-disaggregated data through surveys and • Political will and leadership: Political will and audits has helped understand how different genders support of the senior leadership, especially in GCC use public spaces. This data is used for targeted were crucial for GPL to secure the cooperation of improvements in infrastructure and services like various agencies. better lighting or more women-friendly bus routes. • Alignment with government priorities: Linking GPL activities with national programs like Nirbhaya created CONCLUSION political support and allowed GPL to build on ongoing interventions. GPL’s experience shows that civic agencies aspiring to launch interventions for developing gender responsive • Breaking down silos: Coordination between different urban mobility ecosystems and public spaces need agencies involved in urban transport (like MTC and dedicated institutional mechanisms. With strong political CMTA) was achieved through a working group. This will, a steadfast leadership, and a dedicated and skilled allowed the sharing of data and resources for better taskforce, cities can implement structured interventions outcomes. at the program level for achieving the long-term vision of • Standardizing gender mainstreaming: GCC and safer and more inclusive cities for all. GPL have put processes in place to ensure that Please click here to access the technical note on this gender considerations are incorporated in all project topic. TOC Endnotes 1 Mitali Nikore is a Consultant at the World Bank 2 Sarah Natasha is a Consultant at the World Bank 3 Meera Sundararajan is the Team Leader at the Gender and Policy Lab, Greater Chennai Corporation 4 C. Vaishnavi is the Policy Expert at the Gender and Policy Lab, Greater Chennai Corporation 5 New Delhi, Punjab, Tamil Nadu, Karnataka. 6 New Delhi, Chennai, Kolkata, Pune, Indore, Hyderabad. 7 Tamil Nadu, New Delhi, Uttar Pradesh, Kerala, West Bengal, Bengaluru. 8 CRUT, Odisha. 9 World Bank. 2022. India - Toolkit for Enabling Gender Responsive Urban Mobility and Public Spaces. © Washington, DC. http:// hdl.handle.net/10986/38199 License: CC BY 3.0 IGO. 32 Photo credit: CUMTA 7: DEVELOPING A METROPOLITAN ROAD SAFETY ACTION PLAN: CASE STUDY FROM CHENNAI Krishnan Srinivasan1, Sudeshna Mitra2, Shyam Srinivasan, and Gerald Ollivier FIGURE 7.1: THE SAFE SYSTEM APPROACH INTRODUCTION Le a d e r s h ip g in g Safety is at the heart of the sustainable mobility agenda le d ow Ta Kn r ge and forms part of the UN’s Sustainable Development g n tS rri Goals (SDGs). Road crashes are a global public health et sfe t in n SAFE TOC Tra g problem, particularly in fast-growing cities in developing ROAD USE SAFE VEHICLES and countries. Cities worldwide are increasingly adopting R &D the Safe System approach for pushing towards the goal Funding of eliminating fatalities and serious injuries (Figure 7.1). ZERO ROAD This approach focuses on a human-centric method for FATALITIES OR ati n g SERIOUS road users’ safety, looking beyond user behavior and the SAFE INJURIES SPEEDS POST valu safety of motorized vehicles, to all aspects that can affect CRASH CARE Le g &E the safety of road users. isla g rin ti n i to g This note discusses the approach adopted in Chennai for on M SAFE ROADS & tackling road crash fatalities and injuries based on the ROADSIDES Co -o Safe System principles. The Chennai example could be rd i n at i ting ng Promo instructive for other cities in India and elsewhere that are grappling with similar issues. Source: Martin Small, and Tawia Addo-Ashong. 2021. Road Safety Strategies for African Cities: A Guide to Development. Washington, DC: India is facing a mounting road safety problem. Road SSATP crashes took 168,491 lives in India in 2022, causing immense social, physical, and financial distress to individuals, families, and society; 54,230 (33 percent) of these fatalities occurred in urban areas, with 17,089 (11 percent) being recorded in 51 cities with a population Rising urbanization, disposable incomes, over a million. While some metropolitan cities such as and aspirations, coupled with the low cost of Mumbai, Kolkata and Delhi have addressed this problem motorcycles and lack of viable public transport and even reversed the trend, road safety remains a major challenge (Figure 7.2). options, have led to rapid motorization (especially of two-wheelers). 33 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.2: ROAD FATALITIES IN THE TOP 11 CITIES IN INDIA IN 2022 Cities that accounted for 50% of all road deaths in Indian cities with million plus population, 2022 60.00 1600 Fatality rate per 100,000 people 1400 Number of fatalities 50.00 1200 40.00 1000 30.00 800 20.00 600 400 10.00 200 0 Ahmedabad Agra Raipur Lucknow Allahabad Indore Kanpur Jaipur Bengaluru Chennai Delhi 2022 Fatalities Fatality Rate India - Urban Fatality rate India - Million plus city fatality rate Source: Road Accidents in India (2022), TRW, MORTH, GoI (October 2022); WB analysis.3 FIGURE 7.3: CHENNAI ROAD CRASH STATISTICS, 2013-20224 Chennai crash statistics 2013-22 12000 TOC 10000 8000 6000 4000 2000 0 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 Crashes Fatalities Injuries Chennai’s road safety situation typifies that of other risk factors, and pedestrians accounted for another third large Indian cities. While the road safety situation in (Figures 7.4 and 7.5), where collisions with motorcyclists CMA5 seems to have improved over time with fatalities was the main cause of death. Surveys in 2022 by DIMTS numbers showing considerable decline with increase in have shown that about 40 percent of the vehicles exceed population, it continues to witness an average of 1,150 posted speed limits, and a third of two-wheeler riders deaths annually (Figure 7.3), highlighting the urgent need and almost all pillion riders do not wear helmets. Besides for tackling the road safety challenges systematically. user behavior, road infrastructure and limited facilities Vulnerable road users (VRUs -- pedestrians, motorcyclists, for VRUs are other major contributors to fatalities with and cyclists) are most at risk of death from road crashes in 89 percent, 70 percent, and 26 percent of roads rated Chennai. Motorcyclists made up 57 percent of all fatalities, 1 or 2-star (on a scale of 1 to 5 on the International with speeding and not wearing helmets being the key Road Assessment Program (iRAP) classification of 1 34 FIGURE 7.4: ROAD FATALITIES BY USER TYPE IN FIGURE 7.5: CHENNAI ROAD FATALITIES - KEY CMA, 2019 CONTRIBUTING FACTORS CMA - Share of road fatalities by user type in CMA Chennai Fatalities - Key Contributing Factors 2-wheelers VRU 57% Speeding Pedestrians VRU 34% Non-wearing of helmets 3-wheelers 3% VRU Poor facilities for VRUs increasing Cyclists 3% runover risk by heavier vehicles Cars 1% Lack of adequate pedestrian facilities Trucks 1% Poor geometry, layout and Buses 1% roadside hazards 0% 10% 20% 30% 40% 50% 60% 70% 80% 0 10 20 30 40 50 60 Source: GCTP Source: DIMTS Report on CRSAP (Feb 2023); WB analysis. carrying the highest risk), for pedestrians, cyclists, and motorcyclists respectively. These underscore a need APPROACH IN CHENNAI for safer infrastructure, speed calming measures, and Developing and implementing a Road Safety Action stronger enforcement of speed and helmet compliances. Plan for Chennai. International best practices Underlying issues. The road safety apparatus in India emphasize a holistic approach in the development needs to keep up with motorization trends. Rising and implementation of road safety action plans urbanization, disposable incomes, and aspirations, (RSAPs) in cities with institutional/policy, infrastructure, coupled with the low cost of motorcycles and lack enforcement, post-crash care, and speed management of viable public transport options, have led to rapid elements, all underpinned by systematic collection motorization (especially of two-wheelers). Between 2009 and analysis of accurate crash data for monitoring and TOC and 2019, motorization in India increased at a faster pace evaluation.8 than the lengths of the primary and secondary road Recognizing the impact of annual city road fatalities, the networks.6 This led to increased competition for road Chennai Smart City Limited initiated the development space, with vehicles prioritizing VRUs. Consequently, of a Chennai Road Safety Action Plan (CRSAP)9 based road crash fatalities increased by 20 percent, with the on the Safe Systems approach in 2020 and adopted it share of two-wheeler fatalities more than doubling over in 2023 with a vision of Safe Chennai Roads, free from the same period. 7 fatal and serious injuries. CUMTA has since become The road safety challenges are compounded by gaps the custodian of the CRSAP. Key issues and deficits in institutional arrangements and capacity. While under infrastructure, institutions, enforcement, and user there are often state and city level entities looking at behaviors were identified through a thorough analysis different aspects of road safety, inter-departmental of available crash and non-crash data. These were coordination for road safety management is an issue. systematically analyzed using a combination of the iRAP Enforcement is resource intensive and therefore star rating methodology and crash rates to prioritize 469 inadequate. Road safety agencies need improved km of road corridors for both capital intensive and mass technical capacity and exposure to safety best practices. action safety improvements. The benefit-cost ratio of the The use of data for decision-making and benchmarking of infrastructure improvements alone was 11:1, indicating road safety management performance is only emerging. a high return for an investment of just US$ 75 million in Institutional arrangements for road safety in Chennai, mass action treatments. as in most other Indian cities are dispersed across the works/highways, transport, and police departments, Key elements. In line with best practices, CRSAP making monitoring of interventions and accountability comprises the following four key elements: difficult. This has implications for key safety elements a. Safety performance targets: For achieving its such as speed limit setting. Further, safe speeds need to vision, CRSAP has set Safety Performance Targets be better addressed in design and in the operation of (SPT) till 2030 targeting some of the factors roads for reducing the exposure of VRUs to safety risks. contributing to road crashes (Figure 7.6). 35 CHENNAI’S URBAN MOBILITY TRANSFORMATION b. Improved institutional arrangements: CUMTA has areas, differential speed limits for vehicle classes, established a Road Safety Cell (RSC)10 for oversight, and a maximum speed limit of 60 kmph for light interagency coordination, and monitoring, motor vehicles in the city. evaluation and reporting of road safety interventions, • Helmet-wearing: Strict enforcement of helmet- outputs, and outcomes, and a Road Safety and Non- wearing by GCTP has yielded good outcomes: Motorized Transport Sub-committee to oversee a survey conducted under a World Bank study implementation of CRSAP and related road safety showed that helmet compliance in Chennai initiatives in CMA. improved from ~20 percent in 2019 to ~65 percent c. Interventions: The top four priorities that Chennai in 2022, resulting in a ~48 percent reduction in has identified for its road fatalities are: two-wheeler fatalities between 2019 and 2022. • Safe roads and roadsides: CUMTA is considering 11 However, enforcement is needed for ensuring mass action and geometric treatments – pelican that pillion riders comply (about 78 percent did signals, speed humps/cushions and traffic calming not wear helmets in 2023) and fasten their chin measures, tabletops and refuge islands, road clip (36 percent of all riders did not wear helmets narrowing, speed tables, signalized pedestrian in 2023), to help reduce two-wheeler fatalities crossings, school zones, and gateway treatments further. at high crash risk locations for reducing pedestrian • Public awareness: This is for enhancing facilities, along with systematic templates for each the effectiveness of enforcement. Chennai type of measure for city-wide replication. is considering emulating the example of • Safe road use: The Greater Chennai Traffic Police Coimbatore, where the Kutty Corps12 project co- (GCTP) has already installed Traffic Regulation opted primary school children to nudge their Observation Zones on several city roads with family members to follow traffic rules. Automatic Number Plate Recognition (ANPR) TOC technology and digital cameras at junctions to d. Improved reporting, monitoring, and evaluation automate monitoring of traffic violations and arrangements: Chennai has set up a robust minimizing human interaction and errors. monitoring and evaluation program to help implement and evaluate the strategy, performance, • Safe speeds: In November 2023, GCTP mandated and delivery of action by each responsible agency. a uniform speed limit of 30 kmph in all residential FIGURE 7.6: CRSAP SAFETY PERFORMANCE TARGETS • 50% reduction in • At least a 3-star • 50% reduction in • 100% of motorcycle • 100% of all vehicles • 50% reduction in fatalities by 2030 infrastructure star vehicles exceeding riders correctly using occupants correctly drivers testing above • 25% reduction in rating (iRAP) for all the posted speed helmets by 2030 using seatbelts by the legal alcohol fatalities by 2026 road users by 2030 limit by 2030 • 60% of motorcycle 2030. limit by 2030 • 25% reduction in riders correctly using • 60% of all vehicles • 25% reduction in vehicles exceeding hetments by 2026 occupants correctly drivers testing above the posted speed using seatbelts by the legal alcohol limit by 2026 2026 limit by 2026 Source: CRSAP (February 2023). 36 EXPECTED IMPACT • Speed management: Safety needs to be directly provided in cities by significantly reducing motor The institutional set-up in Chennai with representation vehicle speeds in high pedestrian areas and indirectly from key stakeholder departments and systematic by supporting safe motor vehicle movements in high- implementation of CRSAP’s measures provides a shift in volume corridors. focus that could help the city more than halve its fatalities • Systematic, proactive assessment of roads: Cities by 2030 and achieve the SDG goals. with highways passing through them should identify and prioritize mass action road safety treatment for above-grade infrastructure with a context-sensitive TAKEAWAYS FOR OTHER CITIES design for the streets below, especially where crashes are widely dispersed. • Robust institutions: Arrangements in the form of either a dedicated lead agency or committees at high level executive and operational levels are vital for the CONCLUSION coordination, management, and delivery of all city road safety activities. Formulating, adopting, and implementing a city road • Data-driven decision making: Accurate data on safety action plan along the Safe System’s principles is incidence and type of crashes along with a detailed an essential first step for metropolitan cities in low- and analysis and understanding the crashes’ contributory middle-income countries for reducing road death tolls. factors and pedestrian and NMT volumes are essential The plan should be supported by crash data, targeting for policy decisions, prioritizing public health issues, the contributing risk factors, for achieving targeted identifying interventions, monitoring trends, and safety performance goals. The success of the action assessing intervention programs in cities. plan also relies on strong institutional and governance arrangements, dedicated funding for implementing TOC • Forgiving roads and roadsides: Cities should effective interventions across all pillars of road safety, and aim at developing a road transport system which timelines and monitoring and evaluation arrangements. accommodates human error and reduces human CRSAP is a unique example of an action plan that is exposure to motor vehicle speeds/crash forces that concretely tied to a-priori-defined targets using multi- may result in death or serious injury. Cities should sectoral interventions, with potential for replication in also avoid building foot-over bridges and subways for other metros across India. addressing pedestrian-vehicle conflict, which often fail to incorporate user behavior. Please click here to access the technical note on this topic. Endnotes 1 Krishnan Srinivasan is a Consultant at the World Bank. 2 Sudeshna Mitra is a Transport Specialist at the World Bank. 3 Crash data from Avadi and Tambaram have been added to the figures in 2022, for alignment with data from previous years. 4 Crash data from Avadi and Tambaram have been added to the figures in 2022, for alignment with data from previous years. 5 Comprising Chennai City, Avadi, and Tambaram. 6 Primary comprising national highways that account for 2 percent of the total network, but with 40 percent of the country’s total road traffic and secondary comprising state highways and major district roads that account for about 3 percent of the road network with another 40 percent of the total road traffic. 7 World Bank analysis of road crash statistics from GOI MORTH Road accidents in India reports, from 2009 to 2019. 8 Australia, Japan, New Zealand and several EU countries including Sweden have successfully used RSAPs for improved road safety outcomes. 9 DT NEXT (2020). Article. Road safety action plan to bring down accidents, fatalities in Chennai, suburbs. 10 The Times of India (2021). Chennai. Article. Chennai Corporation plans road safety cell to study accidents. 11 Road Safety Engineering and Management, DIMTS for the World Bank, 2023. 12 The Times of India (2022). Coimbatore. Article. Kutty Cops to teach road safety lessons. 37 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: CUMTA 8: STRENGTHENING THE METROPOLITAN TRANSPORT GOVERNANCE Shyam Srinivasan, Jeyakumar Iyamperumal1 (CUMTA), and Gerald Ollivier not being clearly assigned. This is true of many Indian INTRODUCTION cities, where a plethora of agencies across all levels of government (central, state, and city) have a stake With rapid urbanization comes increasing demand in urban transport governance. The rules of the game for public services such as transport. Cities around are defined by a complex framework of acts, rules, the world are grappling with this challenge with regulations, and guidelines. Chennai is a case in point. mixed results. In cities with sustainable transport Critical functions like multimodal integration, common TOC systems, the recipe for success often boils down to ticketing or integrated transport and land use were governance. This note explores the question of urban dealt with by different departments with limited transport governance through the lens of Chennai, coordination prior to the establishment of CUMTA. India, where a nodal agency, the Chennai Unified Metropolitan Transport Authority (CUMTA) was recently There is a strong need for decreasing institutional operationalized under the Chennai City Partnership fragmentation in large cities. While it is not always between the Government of Tamil Nadu and the World possible or necessary to have a single lead agency Bank. undertaking the full range of functions, the bigger An urban transport system requires a variety of the city, the stronger the value proposition of a stakeholders for performing a range of activities. single agency. The Government of India has long The full range of urban transport functions can be recognized the value of coordination. The National categorized under three levels of activities: Strategic, Urban Transport Policy (2006) identified the need to Tactical, and Operational (Figure 8.1). In cities around strengthen coordination across urban mobility agencies the world, multiple agencies at different levels of the and functions. The national Metro Rail Policy2 of 2017 government undertake these functions, often with required cities seeking central assistance for metro overlapping mandates with some critical functions projects to establish urban metropolitan transport authorities (UMTAs). In September 2020, the CUMTA Act was amended to designate the Chief Minister of Tamil Nadu as the chairman of CUMTA, and the minister for housing and urban development as its vice-chairman. This set the stage for progress with operationalization that has been achieved since the World Bank-supported Chennai City Partnership: Sustainable Urban Services Program (SUSP) became effective. 38 FIGURE 8.1: FUNCTIONS TO BE PERFORMED IN THE PROVISION OF URBAN TRANSPORT Strategic Planning and Policy Formulation Strategic Regulation Planning Tactical Safety Regulation Commercial Regulation Infrastructure Planning Service Planning Infrastructure / Facility Public Construction and Transport Operations Operational Maintenance Common services Independent services Source: Kumar & Agarwal (2013)3 TOC CUMTA has adopted moving people and freight APPROACH IN CHENNAI seamlessly through an integrated, sustainable, safe and resilient transport ecosystem as its vision. To help CUMTA’s journey. CUMTA stands out as one of CUMTA realize its vision, five key actions are being a handful of operational UMTAs across India. In pursued under SUSP to advance CUMTA along its November 2010, the Government of Tamil Nadu (GoTN) operationalization roadmap (Figure 8.2). passed the CUMTA Act to establish the entity which would oversee, coordinate, promote, and monitor the When fully operational, CUMTA will be a planning implementation of traffic and transportation measures and regulatory body, performing mainly strategic in CMA. Although around 17 UMTAs have been and tactical roles in the hierarchy of transport established thus far, the number of UMTAs backed by functions, whereas operational responsibilities will legislation is much more limited, including Hyderabad, continue to be helmed by line agencies. CUMTA’s UTTIPEC (Delhi), and Kochi. This makes CUMTA one steady state functions are summarized in Figure of a handful of UMTAs backed by legislation, in the 46 8.3. CUMTA will be operationalized in three phases. million-plus cities in India.4 Simpler and core functions of integrated planning and effective coordination have been prioritized up to It took 10 more years for CUMTA’s operationalization now, with more complex functions requiring greater to begin in earnest. In September 2020, the CUMTA Act organizational strength to be added in the medium and was amended to designate the Chief Minister of Tamil long term. Well-defined maturity triggers have been Nadu as the chairman of CUMTA, and the minister for developed in the operational document for guiding housing and urban development as its vice-chairman. CUMTA’s advancement to subsequent phases of This set the stage for progress with operationalization operationalization. CUMTA’s staffing will be expanded that has been achieved since the World Bank-supported as it progresses through the phases and it will reflect Chennai City Partnership: Sustainable Urban Services the multi-disciplinary nature of urban mobility. Program (SUSP) became effective. 39 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 8.2: KEY STEPS TOWARDS OPERATIONALIZING CUMTA Sub-committees notified, Staff hiring facilitating Comprehensive initiated, with coordination on Mobility Plan CUMTA now having cross-cutting issues being developed, 17 diverse staff such as multi- in tandem with Operations CUMTA Act covering a range modal integration, the third land- document is being of transport and road safety, digital use master plan, developed, amended, planning functions. transformation, creating unique covering the to clarify the Expected to expand resilience and traffic opportunities for organizational structure and to 40 by 2025 management land use-transport structure, staffing, functions of integration functions, and CUMTA training needs of CUMCA TOC Source: Authors’ illustration Assuming some control over sectoral funding several marquee mobility initiatives in Chennai: allocations will be a significant milestone for CUMTA, • Revitalizing the Mass Rapid Transit System targeted by 2027. In line with NUTP, an Urban Transport Fund (UTF) to be funded through novel funding sources (MRTS). CUMTA is playing a pivotal role in the eventual handover of MRTS in Chennai from the such as additional property taxes and parking revenues Indian Railways to the Government of Tamil Nadu, is being mooted. UTF could be established when with the Chennai Metro Rail Limited as its operator. CUMTA is more mature, after close consultations with This is expected to improve MRTS’ integration with stakeholder agencies to ensure alignment. Chennai metro. • Integrated ticketing. CUMTA is developing an EXPECTED IMPACT integrated ticketing application for improving user convenience for multimodal trips CUMTA’s impact on the urban mobility landscape in Chennai is emerging. Quantifiable impacts of new • Road safety. CUMTA has partnered with the institutions materialize over time, and this is also true World Bank on several studies and convened key of CUMTA. However, there are some encouraging signs. stakeholders to deliberate on road safety issues via The Government of Tamil Nadu is increasingly looking the road safety sub-committee. to CUMTA to take on cross-cutting functions which are not covered by existing agencies. Using the public • Digitalization. CUMTA has engaged a consultant consultation exercises as part of the Comprehensive for the Digital Chennai initiative which aims to Mobility Plan, CUMTA has become the face of the leverage urban mobility data for decision making and government for transport issues, and it has developed a improving coordination on multi-year construction strong social media presence. CUMTA is also advancing projects. 40 FIGURE 8.3: CUMTA’S FUNCTIONS IN THE STEADY STATE Mobility/Transport Plan Research Studies Digital Integration/Data Design Regulatory Management Frameworks & Approvals CUMTA will use the CUMTA will function as a Comprehensive Mobility think tank and understand CUMTA will leverage data CUMTA will amend and Plan to facilitate integration the technological advances for planning and decisions streamline regulations to of transport and land use that can be leveraged to on urban mobility. improve urban mobility planning and optimize. improve overall mobility service delivery. CUMTA will update systems. Comprehensive Mobility Plans regularly. Advocacy and Multi-modal Promote & Adopt Operations Sensitization Integration Innovative Funding Management Mechanisms CUMTA will engage CUMTA will promote CUMTA will oversee different stakeholders multi-modal CUMTA will explore transport operations and identity ways to ingtegration for alternative funding/ in the long run to reap provide coordinated seamless connectivity financing mechanisms operational efficiencies services to transport across transport modes to improve financial users. and modernize the sustainability impact of mass transit. Source: CUMTA Operations Document CUMTA sub-committees have facilitated incentivize the achievement of key establishment TOC coordination on cross-cutting issues. Since CUMTA’s milestones. mandate is coordination and stewardship of urban • An organization is only as strong as its people. mobility in partnership with existing agencies, effective The government’s decision to appoint a seasoned coordination mechanisms are a must. CUMTA has officer from the Indian Railway Service is a signal leveraged its sub-committees (multimodal integration, of the important role that CUMTA is envisioned to road safety and NMT, Digital Chennai, and urban play in the institutional landscape and has helped resilience) and traffic management, as convening open doors. CUMTA’s staff comprises open market platforms for bringing together different agencies for hires and secondees from stakeholder agencies. A decisions on cross-cutting issues, including the mobility combination of fresh ideas and established public initiatives. sector networks has helped CUMTA start its work quickly. TAKEAWAYS FOR OTHER CITIES • Lead agencies need opportunities to prove their worth. CUMTA is leading a range of initiatives, CUMTA’s experience offers valuable takeaways for providing opportunities for demonstrating thought, other cities looking at strengthening urban transport implementation leadership, and value addition. governance. • It is a continuous process. Lead transport agencies • Fledgling agencies need strong champions. around the world took several decades to take shape CUMTA’s establishment required a strong push from and are continuously evolving. CUMTA too will the senior management in Chennai. GoTN also saw evolve as it assumes its different functions and grows the value of milestones and disbursement linked in strength and visibility. indicators under the World Bank funded SUSP to 41 CHENNAI’S URBAN MOBILITY TRANSFORMATION CONCLUSION demonstrate its value to existing stakeholders. Bigger challenges are coming up such as assuming control CUMTA’s journey offers valuable takeaways for of the funding allocations for the transport sector, other cities looking at strengthening institutional a milestone under SUSP. In the meantime, CUMTA coordination in urban transport. CUMTA owes its continues to find its feet and establish itself as a key success to a clear vision and backing from the highest node in the urban mobility institutional labyrinth. levels of the government, an operational roadmap with a graduated approach to CUMTA assuming Please click here to access the technical note on this responsibilities, and opportunities for CUMTA to topic. Endnotes 1 Jeyakumar Iyamperumal is the Member Secretary at CUMTA 2 Metro Rail Policy (2017), Ministry of Housing and Urban Affairs, Government of India. 3 Kumar, Ajay and O.P. Agarwal (2013). Institutional Labyrinth: Designing a Way for Improving Urban Transport Services: Lessons from Current Practice. 4 Diagnostic Review and Report on Strengthening the CUMTA Act, Deloitte (2020), for the World Bank. TOC 42 Photo credit: CUMTA 9: DATA-DRIVEN URBAN FUTURES: PREPAREDNESS FOR LEVERAGING DATA IN INDIAN URBAN PLANNING Jai Kishan Malik, Shyam Srinivasan, and Gerald Ollivier INTRODUCTION Once operational, these tools will offer India’s urban mobility infrastructure faces rapid standardized data storage, sharing, and growth, highlighting the need for innovative utilization frameworks, facilitating data- and efficient planning processes. As urbanization informed urban planning and efficient project accelerates in India, accompanied by a surge in private vehicle ownership and population density, the country management practices. TOC faces unprecedented challenges in urban mobility and planning. With an annual urban population growth handling vast datasets and coordinating with diverse rate of 3.2 percent and a 9 percent increase in motor stakeholders underscore the critical need for robust vehicle population annually, the existing infrastructure governance frameworks. The technical complexities is overwhelmed.1,2 The Government of India has signaled involved in aggregating, modeling, and disseminating the importance of data-driven smart cities by launching data necessitate a cohesive governance structure that the DataSmart Cities Strategy (DSC). Anchored in extends beyond technological intricacies, emphasizing responsible data practices aligned with the National Data coordinated efforts among platform developers, Sharing and Accessibility Policy (NDSAP) and the Digital academia, transport service providers, research & Personal Data Protection Bill, 2023, DSC seeks to harness development startups, authorities, and travelers. the power of big data for revolutionizing urban mobility planning.3 By establishing a robust digital infrastructure This note outlines some effective strategies that cities and promoting data standardization, India aims to foster have implemented for using data for smart urban efficient and effective urban planning. mobility planning. The document includes examples from Singapore, New York City, and London, as well as Data platforms are crucial for data-driven urban insights from Chennai, which is also integrating data into planning, but effective governance is essential for its planning. addressing the challenges of handling vast datasets and coordinating stakeholders. Data platforms are pivotal portals for disseminating information APPROACH IN CHENNAI for enhancing city functionality, reflecting a crucial shift towards data-driven urban planning. Big data’s Establishing a centralized agency with clear mandates expansive scope and predictive capabilities play a and strong leadership is critical for integrating pivotal role in creating efficient and sustainable urban big data in the transport planning process. This is landscapes. However, the challenges associated with exemplified by CUMTA,4 which underscores the need for 43 CHENNAI’S URBAN MOBILITY TRANSFORMATION dedicated entities overseeing integrated urban transport Cities need to establish a structured framework measures, drawing inspiration from international models and protocols to systematically address flagged like Transport for London (TfL) and Singapore’s Land infrastructure planning issues identified by tools Transport Authority (LTA). Addressing challenges related like IUDP and UPPM. This entails forming a committee to data governance requires unified data repositories, comprising decision-makers from relevant agencies consistent standards, and robust governance frameworks, endowed with technical capabilities to review multi- as seen in Tamil Nadu’s recent data policies.5 CUMTA sectoral projects for resolving emerging conflicts. plays a key role in managing and analyzing big data for Drawing from the example of Toronto’s Major Capital informed decision-making by strategically integrating Infrastructure Coordination Office (MCIC) established city-level data. The agency is supported by a tiered in 2008, cities like Chennai can learn from the MCIC’s governance structure and technical sub-committees approach to utilizing GIS-based tools for monitoring facilitating effective implementation and innovations in infrastructure projects across multiple agencies and urban mobility planning. implementing additional dispute resolution protocols. For instance, agreements and protocols among Investing in digital platforms for data management participating agencies can prioritize specific project and strengthening the focal agency’s technical types based on their location, enhancing coordination, capabilities are essential for data-driven planning. and streamlining infrastructure planning processes. With CUMTA’s focus on enhancing technical capacity Currently, the Tamil Nadu Geographic Information and establishing key roles like Mobility and Spatial System (TNGIS) is responsible for collecting and Development Data Architect, Senior Data Integration organizing GIS data in the state and will be a key Engineer, and Junior Data Scientist, Chennai aims stakeholder in this committee. to leverage data for informed decision-making and sustainable urban development. The Digital Chennai Opening data to public and private entities, initiative, supported by the Digital Chennai sub- academia, and startups while balancing data privacy TOC committee, seeks to streamline urban planning and concerns is paramount for fostering innovation- infrastructure implementation practices, fostering driven urban planning. Cities can draw inspiration collaboration between various agencies and ensuring from global examples such as TfL and LTA in Singapore,7 effective project oversight. Developing tools like IUDP which actively engage with third-party private players (Integrated Urban Development Platform), UPPM (Urban for enriching their data ecosystems. By collaborating Project Planning and Management), and the Asset with companies like Waze, Apple, and CityMapper, Management Platform under consideration as part of the these cities enhance their data landscapes and stimulate Digital Chennai initiative are crucial for transformative technological advancements and innovations. Such urban mobility and spatial development strategies, partnerships bring diverse expertise, resources, and drawing inspiration from global models like New York perspectives to the table, leading to more comprehensive City’s Open Data initiative.6 Developing these tools and innovative solutions to urban planning. However, requires pre-emptive work, like the use-case identification this openness must be balanced by ensuring that data for each stakeholder. Once operational, these tools will privacy concerns are addressed adequately. Striking offer standardized data storage, sharing, and utilization this balance will promote transparency and citizen frameworks, facilitating data-informed urban planning engagement and build trust, laying the foundation for and efficient project management practices. Using a collaborative approach to urban planning that drives these tools, Chennai will address challenges related to innovations and brings out the best ideas in a wide range data discoverability, duplication, and security concerns, of stakeholders. Integrating data from private sources laying the foundation for a data-informed approach to for decision making should also be considered where urban planning and infrastructure development. These feasible. Currently there is no provision of open data efforts are expected to lead to efficient urban mobility, policy in the data policies formulated by the state of Tamil promoting cleaner transport modes and preparedness Nadu or the city of Chennai. Going forward, Chennai will for MaaS, ultimately contributing to enhanced benefit from opening the data while balancing privacy sustainability, effectiveness, and resilience in the face of concerns. urbanization and climate-related challenges. 44 EXPECTED IMPACT • Foster cross-agency collaboration: Chennai’s Digital Chennai highlights the potential for data repositories Chennai’s data-driven initiatives are poised to advance to foster interagency coordination and collaboration, urban mobility and planning. The formation of CUMTA provided suitable use cases can built upon such and the Digital Chennai initiative signal a unified repositories to spark conversations on and trade-offs. approach to data collection and analysis. Tools like By adopting these strategies, other Indian cities can IUDP and UPPM are expected to streamline project leverage data for more sustainable, effective, and resilient management and infrastructure development. urban development in the face of rapid urbanization. Anticipated outcomes include more efficient urban mobility, promotion of cleaner transport modes, and preparedness for Mobility as a Service (MaaS). The initiatives aim to facilitate the successful implementation CONCLUSION of large-scale projects, systematic asset management, India’s urban mobility infrastructure faces and establish frameworks for prioritizing areas like road unprecedented challenges amidst rapid urbanization safety and climate resilience. Ultimately, these efforts and a surge in private vehicle ownership. Recognizing should enhance sustainability, effectiveness, and urban the transformative potential of data-driven smart cities, resilience in the face of rapid urbanization and climate GoI launched the DataSmart Cities Strategy (DSC) for challenges. revolutionizing urban mobility planning and fostering efficient and effective urban planning by establishing a robust digital infrastructure and promoting data TAKEAWAYS FOR OTHER CITIES standardization. However, the success of data platforms hinges on effective governance frameworks to handle Chennai’s approach to data-driven urban planning offers vast datasets and coordinating with stakeholders. valuable lessons for other Indian cities: Examples from cities like London, Singapore, and New TOC • Establish a centralized agency: The creation of York City underscore the importance of partnerships CUMTA demonstrates the importance of a dedicated with private entities for enriching data ecosystems and entity with a clear mandate to oversee integrated driving innovations in urban planning while striking a urban transport measures. balance with data privacy concerns. In addition, cities must establish structured protocols for addressing • Invest in technical capacity: Chennai’s focus on roles flagged infrastructure planning issues systematically, as like Mobility and Spatial Development Data Architect exemplified by Toronto’s MCIC. underscores the need for specialized technical expertise. Please click here to access the technical note on this • Develop comprehensive data tools: The planned topic. IUDP and UPPM tools have the potential to address challenges in data management, integration, and project oversight. Endnotes 1 Niti Aayog (2021). Reforms in Urban Planning Capacity in India. 2 Mckinsey Global Institute (2010). India’s urban awakening: Building inclusive cities, sustainable economic growth. Mckinsey & Company 3 WEF (2020). Technology and Data Governance in Cities Indian Smart Cities at the Forefront of the Fight Against COVID-19. World Economic Forum. 4 Deloitte (2021). Chennai City Partnership: Operationalization of Chennai Unified Metropolitan Transport Authority (CUMTA) prepared for the World Bank. 5 GoTN (2022), Tamil Nadu Data Policy – 2022. Information Technology Department, Government of Tamil Nadu. 6 NYC Office of Technology and Innovation(2023). Technical Standards Manual. 7 Kriukelyte, E., A, Karmaers, A. Gulberg, and K. Isaksson (2019). The transport sector in transition –: different pathways of handling transport data in urban regions of Helsinki, London, Oslo and Singapore. Stockholm. KTH. 45 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: Unsplash 10: PRACTICAL USE CASES OF LEVERAGING DATA FOR URBAN MOBILITY PLANNING Jai Kishan Malik, Shyam Srinivasan, and Gerald Ollivier INTRODUCTION Big data use cases based on international experience The advent of big data, fueled by automation Integrating data in urban governance facilitates and digitization, is heralding a paradigm shift in the creation of key performance indicators (KPIs) traditional transport planning methodologies. for comprehensive transport planning. KPIs can Beyond merely offering a deluge of information, big data TOC encompass diverse urban objectives, from equity to empowers planners with unprecedented granularity in environmental impact. Using real-time data, decision spatial and temporal insights previously unattainable makers can balance needs effectively and adjust projects through conventional means. This transformative force for optimizing outcomes. Dynamic urban dashboards, not only unravels intricate patterns in human movement exemplified by CityDashboard in London1 and Sydney,2 but also introduces a dynamic dimension to urban offer real-time insights into various city metrics. Indian mobility planning through continuous monitoring. cities like Chennai are recognizing the potential of new The ability to detect emergent trends and adapting in data sources for visualizing KPIs, enhancing decision- real-time signifies a departure from static, exhaustive making processes. Embracing KPIs and advancing data analyses and moving towards more agile and adaptive governance can help cities navigate urban mobility policy frameworks. complexities, and selecting projects based on their Diverse data sources beyond traditional datasets multifaceted impacts thus fostering sustainable enrich urban transport planning. These include development and citizen welfare. This approach, official registration data, commercial transactions like illustrated by the suggested World Bank’s suite of ticketing, tracking data from cell phones and internet indicators3 for Chennai, emphasizes equity, resilience, and use, infrastructure details, service delivery data like GTFS, innovation in mobility planning, providing a roadmap for CCTV based traffic volume counts, and real-time asset status. These sources enable informed, dynamic urban planning, fostering efficiency and responsiveness in transportation systems. This shift towards continuous monitoring supports adaptive, citizen-centric policymaking This note highlights the potential of big data analytics in forging informed and efficient urban planning strategies. globally. It addresses urban mobility’s By showcasing the following tangible use cases, it seeks complexities and promotes inclusive, to inspire a shift towards a smarter, data-driven approach transparent governance. to shaping the future of urban mobility services. 46 cities to prioritize crucial aspects of transportation while location data (MLD) for origin-destination (OD) matrices.7 ensuring data-driven, accessibility-informed decision- MLD enables granular and dynamic OD matrices, making. capturing travel patterns with precision and frequency. This shift enhances planning accuracy and timeliness, Real-time data sources revolutionize evidence-based informing decisions based on current mobility trends. policymaking in urban governance, fostering agility The World Bank study in Chennai demonstrates and responsiveness. Cities like Bogotá showcase MLD’s applicability, utilizing anonymized smartphone the efficacy of this approach,4 using continuous data to evaluate movement behavior and transit monitoring for refining policies iteratively based on demand. Analyses techniques like trajectory analysis empirical evidence. With data-enriched visualizations, and clustering reveal high-density flows, informing this transparent methodology builds public trust and network modifications and development strategies. encourages active engagement in planning processes. MLD offers advantages over surveys, providing broader Bogotá’s experience with traffic management policies, geographical and time coverage and higher sample sizes, supported by real-time datasets like Waze for Cities,5 while enabling real-time analysis. The study underscores exemplifies the tangible benefits of this approach. In MLD’s transformative potential in transportation Chennai, the Chennai Bus app and the Metro app provide planning, paving the way for informed, data-driven real-time operational data to the public. Policymakers decision-making in urban mobility. It can be difficult gain valuable insights by analyzing vast datasets with for city departments to regularly obtain such data from tools like Google BigQuery, enabling informed decision- private providers. This process could be simplified if data making and more effective urban planning. This shift access details were coordinated at the state or national towards continuous monitoring supports adaptive, government level, such as by signing memorandums of citizen-centric policymaking globally. It addresses understanding with private data providers. urban mobility’s complexities and promotes inclusive, transparent governance. Unstructured data sources such as video footage, TOC can be used for generating valuable and measurable Data-driven insights transform urban asset KPIs with the help of machine learning algorithms. management and operations, optimizing Advancements in machine learning and computer transportation systems’ utilization, maintenance, vision offer groundbreaking potential for enhancing and reliability. Big data technologies, spanning road safety, particularly in near-miss detection and storage, processing, and analytics, facilitate dynamic accident prevention. Technologies like convolutional optimization and policy formulation, exemplified by neural networks (CNNs) enable the extraction of safety- São Paulo’s SIGMA platform, Seoul’s TOPIS platform, related features from CCTV images, decoding complex and Singapore’s FASTER system.6 São Paulo’s SIGMA urban dynamics. Critical steps, including image sensing platform integrates real-time GPS data with ticketing and classification, form the foundation for constructing and socioeconomic information, informing route design autonomous near-miss detection systems. Deep and service frequency adjustments. Seoul’s TOPIS is learning algorithms integrate with computer vision adept at harnessing a wide array of traffic-related data techniques to identify and analyze risk factors and near- from its extensive traffic networks, ranging from bus miss types comprehensively. Case studies, like Addis movements and card system analytics to enforcement Ababa’s8 road safety monitoring project, demonstrate data. Singapore’s FASTER system employs machine the efficacy of computer vision analytics in evaluating learning for predicting and mitigating transit disruptions, traffic safety interventions. Chennai is developing deep- increasing system reliability and passenger satisfaction. learning algorithms to detect, classify, and count vehicles These initiatives underscore the transformative potential and pedestrian traffic from video footage. By analyzing of big data in enhancing urban transit planning, from video footage from intersections, variables such as car real-time monitoring to incident prediction, optimizing speed, traffic volume, and incidents like near-hits and services and improving overall reliability and efficiency. collisions are detected, providing valuable insights Transitioning from traditional surveys to data- for policymaking and infrastructure improvements. driven analyses can bring much greater granularity This comprehensive approach enables the automatic to transportation planning. This is exemplified by quantification and analysis of risks, paving the way for the study in Chennai on the adoption of mobile phone more effective road safety strategies. 47 CHENNAI’S URBAN MOBILITY TRANSFORMATION While big data holds significant potential for • Leverage real-time data for dynamic policymaking: revolutionizing transport planning with its expansive Implement continuous monitoring systems to enable coverage and depth, practitioners must navigate swift policy adaptations. This agile approach, as seen its limitations with a discerning eye. Cities must in Bogotá, allows for iterative policy refinements deal with challenges such as the representativeness of based on empirical evidence, enhancing governance the data, making the identification and mitigation of responsiveness to urban dynamics. potential biases within the datasets crucial. At times, • Enhance asset management through data ground truthing may be needed. Privacy issues will also analytics: Utilize systems like São Paulo’s SIGMA need to be navigated carefully. Given these multifaceted and Singapore’s FASTER to optimize asset utilization, challenges, it is recommended that traditional data proactively identify maintenance needs, and improve collection methods like targeted surveys, should continue service reliability. This data-driven approach can to complement big data to ensure a balanced, ethical, and lead to more efficient route planning and frequency holistic approach to transport planning and the results of adjustments. both analyses should be cross-referenced for enhancing a • Transition to continuous data sources: Supplement granular understanding of mobility patterns. or replace traditional surveys with mobile phone location data and other real-time sources. This shift EXPECTED IMPACT enables more precise and frequent capture of travel patterns, enhancing transportation planning accuracy Chennai’s nascent steps in data-driven urban mobility and timeliness. planning are setting the foundation for significant future improvements. The development of KPIs will facilitate more informed decision-making and resource allocation. CONCLUSION Pilot studies using mobile phone location data could revolutionize public transport planning, optimizing This note illustrated how diverse data sources TOC routes and schedules based on actual travel patterns. revolutionize transport planning, offering CCTV-based pedestrian counts may enhance traffic unprecedented opportunities for sustainable and management and pedestrian safety. These data-driven efficient urban mobility. From real-time evidence- approaches are likely to lead to empirically grounded based policymaking to enhancing asset management policy formulation, cost savings through automated data and transitioning from surveys to continuous data-driven collection, and targeted infrastructure development. analyses, each example showcases the power of big data. While immediate changes may not be dramatic, By leveraging continuous data streams, cities can adapt residents can anticipate gradual enhancements in public swiftly to changing dynamics and refine their policies transport reliability, traffic flow, and pedestrian facilities, iteratively. The diversification of data sources provides positioning Chennai on a trajectory similar to data-savvy a comprehensive understanding of urban dynamics, cities globally. facilitating informed decision-making. Moving forward, this note aims to raise awareness among urban mobility practitioners in India, highlighting the potential of data TAKEAWAYS FOR OTHER CITIES analytics for efficient urban planning. The showcased examples demonstrate a smarter era of urban mobility Cities embarking on data-driven urban mobility planning services, paving the way for continued exploration and can learn from global examples: innovations in the dynamic landscape of urban planning. • Develop comprehensive KPIs: Balance diverse Please click here to access the technical note on this urban objectives by creating metrics that encompass topic. equity, development, and environmental impacts. This approach ensures that new transport projects align with broader urban goals and allows for granular performance evaluation over time. 48 Endnotes 1 https://citydashboard.org/london/ 2 https://citydashboard.be.unsw.edu.au/ 3 Quiros, Ollivier et al. (2020) GRIDS Framework for Data-Driven Mobility. The World Bank. 4 The World Bank (2022). Blog. Ivarsson, E. and A. Stokkenberga Managing transport demand and traffic congestion: What can we learn from Bogotá? 5 Development Data Partnership (2022). Article. Gabriel Stefanini Vicente. Visualizing Millions of Waze Traffic Alerts with BigQuery, H3 and Dask. 6 AI Singapore (2021). Blog. Steven M. Miller and Thomas H. Davenport. A Smarter Way to Manage Mass Transit in a Smart City: Rail Network Management at Singapore’s Land Transport Authority. 7 Ukkusuri, S., S. Mittal and T. Yabe (2022), Accessible and Resilient Transit Planning leveraging Big Data Analytics for Chennai Metro Transport, The World Bank. Internal document. 8 Analyses by the World Bank. Internal document. TOC 49 CHENNAI’S URBAN MOBILITY TRANSFORMATION TOC Photo credit: CUMTA 50 Section 2: Technical Notes on TOC Chennai’s Urban Mobility Transformation 51 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: CUMTA 1: INTEGRATED LAND USE AND TRANSPORT PLANNING Qingyun Shen1, Abhijit Sankar Ray,2 Seetha Raghupathy,3 and Anshul Mishra4 well integrated, cities sometimes face financial and/or INTRODUCTION institutional challenges in the implementation of these plans (especially due to lack of appropriate allocation Effective urban planning is crucial for India’s of resources and inadequate monitoring) for realizing sustainable development amidst rapid economic TOC their development objectives. Sometimes, challenge transformation and urbanization. India is undergoing also comes from the misalignment of master plan significant economic transformation where half preparation timelines vis-à-vis the political timeframes the country will soon reside in cities, and most of of election cycles, as the latter is more aligned towards the economic output will be generated in urban implementable projects that could be disconnected agglomerations. Proper planning and management with the holistic vision backed by long-term planning. of Indian cities over the next few decades would be critical to ensure a sustainable, resilient, and inclusive Chennai’s rapid growth necessitates a growth trajectory. A recent review of urban planning comprehensive approach to urban planning to practice in India by NITI Aayog (2021) reveals a big address various emerging challenges. Chennai is gap to be filled: almost two-thirds of urban local the fourth largest metropolitan area and among the governments do not have an active master plan5 as the top five fastest growing cities in India. In the last 60 statutory instrument for guiding and regulating urban years, Chennai has grown in prominence from being development. And where master plans exist, there a port city with a strategic location and rich cultural is also room for improvement in the quality of these plans and the process of their preparation, to make them more data-informed, evidence-based, and fully participatory with adequate stakeholder consultations A comprehensive two-pronged approach that and citizen engagement for ensuring public buy-in. addresses both the enabling environment (for Additionally, departmental siloes could also undermine the quality and effectiveness of plan preparation and example, institutional frameworks) as well implementation. Different sectoral strategies and plans as output (for example, an integrated master need to be better coordinated temporally and spatially plan that adopts a multi-sectoral approach) is to ensure consistent guidance and integration for being envisioned by GoTN and its key planning urban management. Finally in cases where the quality of a master plan is satisfactory and sectoral plans are institutions. 52 heritage to a large metropolitan area that is home from policymakers, bureaucrats, and practitioners in to an agglomeration of information technology, urban planning and management and accelerate the manufacturing industries, and medical services. It also adoption of ILUTP in other Indian cities and beyond. presented challenges for proactive urban planning practices to keep pace with the increasing demands The Rationale for a Paradigm Shift of urbanization. One of the primary issues in earlier towards ILUTP master plans has been weaknesses in the integration and synchronization of economic and spatial planning The concept of ILUTP refers to the development of exercises, with insufficient focus on aligning the city’s planning instruments and associated institutional economic growth aspirations with appropriate and structures that allow urban land uses to be timely planning interventions. Other issues include strategically linked to the transport systems in a city. inadequate regulatory mechanisms (for example, ILUTP’s overall objective is ensuring optimal provision lack of implementation monitoring of master plans), of land for urban and regional growth while factoring capacity and human resource challenges (for example, in travel demand and impact and minimizing negative staffing issues in planning departments), and the social and environmental impacts. lack of evidence-based urban planning (for example, Traditional Euclidean zoning6 often leads to spatial lack of effective use of data to inform planning and mismatches, resulting in several urban issues service delivery). Given the increasing challenges such as long commutes and high congestion. faced due to climate change, coastal erosion, rise in Traditional land use planning focuses heavily on the informal settlements, housing deficit, urban sprawls, spatial distribution and separation of different land inadequate public transport and resultant congestion uses through zoning regulations – a planning practice and air pollution, as well as pressure to sustain prevalent in the 20th century termed Euclidean planning economic growth and job creation, GoTN decided it or Euclidean zoning. Cities which planned this way was imperative to address urban planning in a holistic such as ones in North America, often end up with large TOC manner. For this, GoTN and CMDA opted to shift away residential developments far away from job centers. from the traditional process focusing solely on land This spatial mismatch results in urban sprawl where use zoning. A comprehensive two-pronged approach long commuting distances for residents, high vehicular that addresses both the enabling environment (for movement, and traffic congestion create a negative example, institutional frameworks) as well as output (for impact on average labor productivity (due to the example, an integrated master plan that adopts a multi- higher costs of moving people, goods, and services) sectoral approach) is being envisioned by GoTN and its and negative environmental consequences such as key planning institutions. To strengthen this further, a higher pollution and carbon emissions along with social Comprehensive Mobility Plan (CMP) is being prepared exclusion and segregation. A rich body of empirical for the larger metropolitan area (encompassing an research shows that higher levels of mixed land use area of 5,904 sq km), concurrently with Chennai tend to reduce commuting distances and congestion in Metropolitan Area’s (CMA) Third Master Plan (TMP) cities.7 (encompassing an area of 1,189 sq km) and will ensure ILUTP addresses the issues arising from spatial synchronization of transport and land use planning, mismatch and promotes economically thriving and providing the foundation for adoption of Integrated sustainable urban growth by optimizing and mixing Land Use and Transport Planning (ILUTP). different land uses, reducing investments in trunk This note outlines the ILUTP approach, highlighting infrastructure, and minimizing motorized travel demand its benefits, challenges, and implementation steps, across the urban space. In addition, ILUTP promotes aimed at engaging key stakeholders in urban diverse, compact, and lively urban development planning. It provides the rationale and advantages of patterns with concentration of jobs and housing adopting ILUTP, summarizes the typical challenges of near mass transit, and neighborhoods with jobs and ILUTP based on international and Indian experience, amenities, which reduce travel distances and demand and outlines appropriate steps for preparing and while promoting public transit and active transport. implementing ILUTP in CMA based on the lessons Further, reduced commute distances have positive learned. It is expected to draw attention and interest impacts on human health and productivity. These two 53 CHENNAI’S URBAN MOBILITY TRANSFORMATION effects correspond to the two fundamental building like congestion and air pollution in Chennai. Figure 1.1 blocks of the Avoid-Shift-Improve model for sustainable outlines the typical urban mobility and spatial planning urban transport and decarbonization (Figure 1.1). initiatives that are followed under the Avoid-Shift- Interventions under the framework could help reduce Improve (ASI) model. Specific interventions in Chennai the transport sector’s GHG emissions and address issues are being detailed in the CMP. FIGURE 1.1: THE AVOID-SHIFT-IMPROVE MODEL FOR MOVING TOWARDS SUSTAINABLE URBAN TRANSPORT8 MINIMAL TRAVEL NEED - ACTIVE TRANSPORT (WALKING, BIKING) - PUBLIC TRANSIT (BUS, RAIL, RIDESHARE) - PRIVATE VEHICLES AVOID SHIFT IMPROVE Avoid and reduce the Shift towards more Improve efficiency need to travel energy efficient travel of the transport • Increasing proximity modes system to destinations, land • PUSH: Congestion • Clean energy use mix and diversity pricing, oil tax, tolls, • Better traffic • Use virtual parking charges, etc. management communications • PULL: Improving • Better regulations instead of physical access to public for pollution travel transit and NMT control TOC Planning and Regulatory Measures + Economic Instruments + Technological Instruments BACKGROUND traction in several Indian cities, they are rarely done in conjunction with the preparation process for the master plan. More often, mobility plans are mainly prepared Trends in Planning Practices in India by metro rail corporations or transport departments and Chennai for ILUTP as part of the justification of major transport projects’ In Indian cities, land use and transport planning are investments as the primary response to projected increase often conducted separately, leading to a disconnect in population and vehicles. This disconnect between which hampers integrated urban development. Land land use plans and mobility plans in Indian cities is not use and transport planning in Indian cities is traditionally only due to the different time horizons of these plans but undertaken as two separate activities in silos. Land use also an institutional failure in inter-agency coordination. planning is the primary component of a master plan. Land use plans are normally prepared by the urban Typically, transport planning is a chapter in the master planning authorities (state planning departments or plan but is often not optimally integrated with land use urban development authorities) while mobility plans are considerations. Although standalone urban mobility usually prepared by transport authority(ies) or Unified planning and the preparation of CMPs are gaining more Metropolitan Transport Authorities (UMTAs)9 largely 54 TABLE 1.1: DIFFERENCES ACROSS PREDOMINANT PLANNING APPROACHES AND ILUTP APPLICATION IN INDIA Predominant Master Planning Predominant Mobility Planning Integrated Land Use and (MP) Approach Approach Transport Planning (ILUTP) • Vision focused on spatial • Vision focused on transport • Coordinated vision factoring in planning outcomes, lack of planning outcomes with limited spatial and transport planning strategic directives influence on MP and aligning transport capacity and demand stemming from MP • Clear goals, objectives, and strategic directives requiring such alignment • Focus on land use planning and • Focus on transport • Cross-sectoral – across zoning infrastructure and interventions jurisdictions at all scales • Siloed approach– inadequate including traditional modes, • Integrated spatial and focus on aligning multi-sectoral NMT, etc. transport plan, with supporting inputs • Lack of alignment with Development Control Regulations the statutory masterplan (DCRs) preparation timelines • Top-down citizen engagement • Enhanced and holistic stakeholder (typically) • Lack of feedback loop with MP engagement process with rapid regarding job and population iterations distribution TOC • Lack of robust implementation • Clear implementation strategy mechanisms with performance metrics • Performance focused on • Performance focus on outcomes outputs in silos. Many of these authorities also currently lack city planning should include both the city and peri-urban expertise in holistic transport planning. areas, as well as the regions around a city, which should be notified as local planning areas or metropolitan areas. Despite its introduction in the 2006 National Urban Unfortunately, this draft policy never received official Transport Policy, the adoption of ILUTP in Indian government approval, nor did it take effect in practice. In cities has been limited due to various challenges. The the last two decades, cities like Pune, Pimpri-Chinchwad, concept of ILUTP was first introduced in the National Mumbai, Bengaluru, Naya Raipur, Bhopal, Jaipur, Surat, Urban Transport Policy (NUTP) in 2006.10 To further and Kochi have brought in ILUTP primarily at the corridor promote ILUTP, the Government of India (GoI) introduced level with a singular focus on maximizing LVC. The use a Scheme for Urban Transport Planning (SUTP) in 2008, of statutory planning exercises for promoting ILUTP at which also received modest attention in cities due to the metropolitan, city, and sub-city levels have been institutional coordination issues at the time. attempted only by a handful of cities like Ahmedabad, Despite efforts to update NUTP and promote Bengaluru, Chennai, and Delhi. The differences across ILUTP, its adoption in Indian cities has been limited predominant master planning and mobility planning and often focused on Land Value Capture (LVC). approaches and ILUTP application in India are listed in Recognizing the shortcomings of NUTP 2006 and SUTP Table 1.1. 2008, an updated NUTP was drafted for GoI in 2014 which National policies and missions have increasingly called for cities to prepare an integrated master plan recognized and promoted ILUTP for sustainable that would internalize the features of sustainable urban urban development in India. As the guiding document transportation. The draft NUTP 2014 also proposed that for Indian cities’ planning practices, the first national- 55 CHENNAI’S URBAN MOBILITY TRANSFORMATION level planning guidelines, the Urban and Regional published in 2021, cities and states are equipped with Development Plans Formulation and Implementation the knowledge and instruments to carry out the TOD (URDPFI) Guidelines were developed by MoHUA in principles from vision to reality. 1996. These were updated in 2014/2015 to incorporate Chennai’s planning history reflects an evolving emerging aspects in planning, including land use and relationship between land use and transport transport integration at the planning stage and the planning, highlighting past challenges and the need to prepare and integrate comprehensive mobility need for integrated approaches. Chennai’s 60-year plans as part of the planning system. The updated planning history with respect to land use and transport URDPFI defines four layers of planning practice in the planning has shifted from being disconnected and Indian Planning System Framework: a) Perspective siloed to coordinated and integrated. In 1972, CMDA was plans that set out the vision/mission and/or high-level constituted as an ad-hoc body and the nodal planning strategy for spatial development, usually at the state or agency for CMA. It later became a statutory body in 1974 metropolitan level; b) Regional plans that define in broad under the Tamil Nadu Town and Country Planning Act. strokes, the spatial development structure and clusters CMDA’s roles and responsibilities include preparing a of settlements covering both urban and rural areas of master plan and other development plans for promoting a metropolitan region; c) Development plans for urban and securing CMA’s planned development. So far, and peri-urban areas that guide urban development, CMDA has prepared two master plans: The First Master infrastructure investments and land use, usually called Plan (1976-1996) and the Second Master Plan (2008- city master plans or comprehensive plans; and d) Local 2026). While both plans recognized the importance of area plans that detail the land use plan, infrastructure transportation, spatial and transport planning continued networks, mobility and other services. Local area plans to be done in sectoral siloes. One of the critiques of the also have other denominations such as Town Planning First Master Plan was that it was divorced from economic Schemes, detailed development plans, and Zonal Plans. planning and infrastructure coordination. The Second TOC The National Mission on Sustainable Habitat (NMSH) Master Plan (SMP) process had three major issues across launched by GoI under its National Action Plan on Climate formulation, implementation, and monitoring. SMP’s Change (NAPCC)11 also recognizes the benefits of ILUTP formulation faced challenges due to the absence of a with respect to environmental sustainability. NMSH calls well-defined institutional mechanism for coordination for small and medium cities to improve urban planning across agencies, delays in obtaining data (census/GIS), and develop convenient public transport systems, shortage of staff in the master plan unit as well as delays thereby expanding the need for ILUTP to all towns and due to legal proceedings and changes in the political cities of India. Principles of Transit-Oriented Development regime. From an implementation perspective, the lack (TOD) have also been promoted through the National of a consolidated list of specific actions and a phased Metro Policy (2017), the Green Urban Mobility Scheme implementation strategy impeded effective realization of (2017), and the Smart Cities Mission (2015). GoI issued a the master plan. The absence of a monitoring framework TOD guidance document under the Smart Cities Mission with metrics for measuring progress and the lack of in 2016 for planning and implementing TOD plans but initiative on the part of monitoring committees led to was deemed too late as it was issued after participating shortcomings from a monitoring perspective. The plan cities had already prepared their smart city plans.12 Soon itself faced a disconnect between transport planning and after, GoI published the National TOD Policy in 2017,13 land use planning. At the time of SMP’s preparation, no which sets out the framework and models for state mobility plan was in place. Consequently, transportation governments to develop their own TOD policies that fit projects have often been conceived outside SMP. For their own context and needs. The National TOD Policy example, the Tamil Nadu Urban Infrastructure Financial (2017) has been the most influential policy document Services Limited (TNUIFSL) proposed an elevated bus that guides and enables states and metropolitan areas corridor in 2008 and the master plan had to accommodate to plan for and implement integrated urban and transit the proposal. The six-lane Old Mahabalipuram Road IT development projects along transit corridors and station corridor which was conceived outside the Second Master areas. Together with other practical guidelines and Plan has significantly altered the fulcrum of development. toolkits, such as the World Bank’s 3V approach14 and the While it has enabled and accelerated economic growth, TOD Implementation Resources and Tools 2nd edition15 it has also led to unintended consequences for land use 56 BOX 1.1: THE ILUTP APPROACH APPLIED BY CITIES AROUND THE WORLD Some of the pioneers in using the ILUTP approach include Portland and Singapore,2 both of which have strong political will from the administrative bodies to curb low-density urban expansion and achieve compact urban development as well as strong enforcement in implementing corresponding planning laws and regulations. The State of Victoria in southern Australia,3 is a good example that has applied the ILUTP principles covering all tiers of the government, from a regional scale to city scale and sub-city scale. Clear leadership by a single steering agency makes it possible to trickle down through different planning layers and actions. Lastly, Chongqing,4 China, is a case in point for ILUTP’s adoption in Asia. Sources: 1. Trimet (2010). Livable Portland: Land Use and Transportation Initiatives. 2. LTA Singapore (2020). Integrated Land-Use & Transport Planning Singapore’s Experience. 3. Victoria Planning Provisions (2021). Land Use and Transport Ordinance. 4. The World Bank (2019). Chongqing 2035: A Green and Low-Carbon Growth Strategy to Decouple Economic Growth from Resource Use - Supporting Report 4 (English). Washington DC: The World Bank Group. and urban expansion. Further, the benefits of adopting been paying more attention to the ILUTP approach mechanisms have been engendered by using an ILUTP given its benefits in promoting more sustainable urban approach such as land pooling, TOD, and LVC which growth and building long-term climate resilience of the could not be realized. city/region (Box 1.1). Acknowledging the drawbacks and weaknesses in Using analytical tools to show the benefits and impacts the previous two master plans, two major planning of ILUTP becomes critical in obtaining buy-in from the efforts are being taken up in sequence: CMP for the government leadership and other stakeholders. expanded CMA of 5,904 sq km led by CUMTA and the TMP for CMA of 1,189 sq km led by CMDA. This will ensure that In India, ILUTP has been recently tested in a few cities TOC CMP and TMP will be prepared in a coordinated manner (Table 1.2). While these cities may not have labeled (following the ILUTP model) for developing evidence- their approaches as ILUTP per se, the idea and concept based, resilience-informed plans that are implementable of integrating mobility planning with land use planning and effective for sustainable growth over the next two is the key ingredient of these first attempts. One of the decades. common features of such integrated planning practices in these Indian cities was that the TOD principles were International Experience with ILUTP highlighted as the primary tool for the integration of Over the last few decades, cities around the world have land use and transport planning. TABLE 1.2: CASE REVIEW OF SELECTED INDIAN EXAMPLES OF ILUTP’S APPLICATION Ahmedabad Ahmedabad Development Master Plan Delhi (MPD) Pimpri Chinchwad (Prahladnagar TPS) Plan (DP) 2021 2021 and MPD 2041 BRTS-TOD Background Introduced as part Introduced in the Introduced in MPD 2021; Introduced in 2010 of ILUTP’s of a Town Planning Ahmedabad DP in 2021 expanded in MPD 2041 as part of the BRTS introduction Scheme (TPS) project Scale Sub-city level City level City level Sub-city level Prior/ Amendment of Special Regulations for MPD 2021: TOD Policy notified TOD standard parallel Town Planning and Local Area Plans (LAPs) (2016) developed by the reforms (if Urban Development and Transit Oriented Zones MPD 2041 introduced: city to measure the any) Act, 1976 (land (TOZs) introduced in the Land readjustment; special outcomes of its TOD readjustment) Development Control regulations for TOD schemes in initiative16 Regulation (DCR) DCR; street design regulations; TOD regulations 57 CHENNAI’S URBAN MOBILITY TRANSFORMATION Ahmedabad Ahmedabad Development Master Plan Delhi (MPD) Pimpri Chinchwad (Prahladnagar TPS) Plan (DP) 2021 2021 and MPD 2041 BRTS-TOD ILUTP tool TPS Layout Plan Development Plan (Master Master Plan TOD Plan used Plan) Integrated No Yes (called Integrated Yes No CMP Mobility Plan) Institution Ahmedabad Urban Ahmedabad Urban Delhi Development Authority Pimpri Chinchwad responsible Development Development Authority Municipal Authority Corporation (PCMC) Key ILUTP • TPS Layout Plan • ILUTP at three levels: • MPD 2021: ILUTP focused on • PCMC introduced highlights preparation strategic level, complete bus rapid transit system (later a 130 km BRTS process ensured network and street level, scraped) and mass rapid project ILUTP and LAP17 transit system (MRTS) • encouraged TODs • 40% land • 82 LAPs proposed within • MPD 2041: introduced TOD around BRTS’ transit available to the TOZs18 nodes; area regeneration nodes Ahmedabad • First LAP: C.G.Road including street widening, • TOD plans: aimed Municipal Central Business District provision of affordable at integrated urban Corporation housing, and strategic form and plans (AMC) for regeneration;19 development that strategically improving of TOD schemes with house people and infrastructure and differential FSI for different jobs within walking creating land uses land uses to encourage distance of transit in alignment with compact mixed-use nodes the Development development Plan (DP) TOC Funding • LVC including • at DP level, through • recognizes need for • Initial financing Mechanism auctioning of planning mechanisms, innovative financing for TOD through centrally serviced land development premiums, projects sponsored scheme increased and central/state • no explicit funding (JNNURM) and property tax financing21 mechanisms outlined multilateral collections • at LAP level, financing financing • suggests public private institutions • TP Fund through TPS’ (planning partnerships (PPPs), LVC fees, (revolving fund mechanisms), additional central/state grants, and • recovery through with revenue FSI incentives and Transfer impact fees private sector from older TPS), of Development Rights engagement and finances up-front, (TDR) tools (development PPPs infrastructure premiums) costs eliminating the need to sell the land early, and reduces the need to seek loans20 Apart from these cases, as more cities develop MRTS Building Blocks of ILUTP Adoption systems for decongesting the cities and increasing From this case review, we can retrieve a common public ridership, ILUTP in the form of TOD corridors has understanding on the basic building blocks of successful been explored in other Indian cities, including Naya ILUTP adoption covering five dimensions of integration Raipur (Naya Raipur Development Plan 2031), Bengaluru (Figure 1.2). (Namma Metro), Mumbai (Lines 7 and 2), and Cochin (water metro) with increasing levels of sophistication in approaches seen over time. 58 APPROACH IN CHENNAI city level to the neighborhood level, which is consistent with the provisions in the URDPFI Guidelines 2016 prescribed by MoHUA. For addressing the typical Chennai’s Work Plan for adopting challenge of misalignment in timelines for transport and ILUTP in a Collaborative and land use planning, Chennai is preparing its CMP and TMP Participative Way in parallel, with CMP having a few months’ head start. CMP is expected to feed into TMP seamlessly so that a Chennai is leveraging the preparation of its CMP true integration of land use and transport plans will be and TMP to apply ILUTP principles for sustainable realized via the TMP which is a statutory plan. Meanwhile, urban development. Informed by lessons learned from CMDA and CUMTA have commissioned intensive precedent cities, Chennai is currently using the window technical studies on key topics for ensuring evidence- of opportunity when preparing its CMP and TMP to apply based preparation of TMP (Figure 1.4). These studies and the ILUTP principles, with the hope of guiding the future planning instruments cover a full spatial scale from the growth in CMA towards a more green, resilient, and regional level (5,094 sq km of the expanded CMA) to the inclusive development path. Its roadmap will span during metropolitan/city level (1,189 sq km of the core CMA and and after both plans are prepared and implemented, as emerging new towns), and sub-city scale (key transit summarized in the flow chart in Figure 1.3. corridors and neighborhoods) for ensuring consistent application of ILUTP for guiding development (Figure This flow chart shows the system of planning in a 1.4). hierarchy from the regional level to the metropolitan/ FIGURE 1.2: FIVE DIMENSIONS OF INTEGRATION IN ILUTP TOC Policy Integration Institutional Integration An enabling policy and A united agency to regulatory framework that spearhead both transport provides high-level direction and land use planning, or and strong government a high level government leadership and coordinates institution/committee urban development and steering both aspects transport policies towards common objectives Common Vision, Technical Integration A participatory planning process with Evidence-Based effective stakeholder and citizen Integrated Planning engagement to finalize the vision. Data sharing and a A common understanding of common data platform strategic urban outcomes by top ensure that both transport engineering Physical transport and land use professionals and land-use Integration, planners for seamless plans are Implementation, and coordination. evidence-based. Financing Compromises and trade-offs between ‘speed’ and ‘density’: (compact and diverse land uses will ultimately increase accessibility to facilities, albeit undermining travel speeds by car). Sufficient funding and long-term commitment from the government agencies to execute the ILUP concepts and investment plans on the ground Source: Authors’ interpretation based on a literature review. 59 CHENNAI’S URBAN MOBILITY TRANSFORMATION Challenges, Emerging Issues, and i. Institutional Arrangements and Capacity Building of Government Institutions Solutions Without establishing institutional harmonization During the process of rolling out ILUTP, planning between spatial and transport planning, it is difficult agencies in Chennai also developed approaches to implement land use and transport integration for overcoming common challenges. These are key policies.22 As different agencies are responsible aspects that are essential for ILUTP’s adoption in Chennai for preparing the respective plans with their own and could also be generalized to apply in other cities preparation and implementation cycles, establishing considering ILUTP exercises. a framework for coordination, with oversight at the highest administrative level is necessary for FIGURE 1.3: ROADMAP AND ILUTP’S CURRENT WORKFLOW OF ADOPTION IN CHENNAI Revision of Revision of Visioning Master Planning Town and Country Exercise for CMA and Rules Planning Act Stakeholder Engagement Plan HUDD HUDD CMDA Development of a TOD Policy for TN TOC HUDD & HUDD & CMDA Multisectoral CMDA Analysis and Technical Studies to Inform ILUTP HUDD, CMDA, GCC, etc. Comprehensive Regional Mobility Plan for Plan for Expanded Expanded CMA CMA CUMTA CMDA TMP for core New Town TOD Corridor and CMA and Station Area Plans Development Implementation Plans Strategies CMDA & CUMTA CMDA CMDA Investment Plans for infrastructure Local Area and TOD Projects Plans and Completed CUMTA, Neighborhood Plans Ongoing/Under Procurement GCC, MRTS, CMRL, MTC CMDA & To be Commenced etc. DTCP Source: Authors’ illustration. 60 effective ILUTP adoption. Learning from good and sectoral stakeholder buy-in of TMP. This practices internationally and nationally, Chennai committee can foster effective downstream has envisioned the following steps for enhancing cooperation during planning approval and institutional coordination. implementation stages. Chennai is establishing robust coordination • Secondly, CMDA and CUMTA will set up technical mechanisms and leveraging synchronized advisory committees comprising of subject planning timelines to effectively implement experts on both CMP and TMP to provide quality ILUTP. assurances and technical advice to the high-level committee. • Firstly, GoTN is expected to establish a high-level committee comprising executive and political • Thirdly, the establishment and operationalization representatives from key ministries, departments, of CUMTA to lead CMP’s preparation and and agencies for ensuring effective coordination implementation enables various transport FIGURE 1.4: THE MULTI-SECTORAL ANALYTICAL FRAMEWORK FOR ILUTP IN CMA REGIO NAL S TRAT EGY e cal alS CITY MASTER P n LAN* io NEW Reg TOW le NP Sca LAN TOC DEVEL DETAILE y S EMP IN OYM Cit e Scal (DDP) / OPMENT D CO L L P ME SENT AND y PLANSOCAL AR LANS it b-C (LAP EA TUDY ) Su L AN D US E CITY ECO ING DEVELOPMENT CLIMA CRO CONTROL REGULATIONS INTEGRATED NO PLAN MIC PLAN TE ACTION LAND USE AND S S C U T TIN G VISION TRANSPORT STRENGTHEN PLANNING FOR CHENNAI STUDIES CLIMAT E.G. URBA DY CLIMATE FLOOD CO T OR ISLAN E R ES N H TRANSP (M M L I) E.G. IO N D A D ST AT - M O ILIEN EAT RESIL LT U TR M U EG R I CE D E V A N SIT IENC TROL EL O RI INT T S TA O P M E N T E N TE D Y M EN E ST P L A TI O N A R (T O D ) N TEG GE N S (S E A Y U DI RA ANA OLIC T A P) G OS DE RANS M K I N ST GP V CO ELOP IT ORIE P AR K IN RR ME NT IDO NT ED PAR R P (TOD L AN ) : S TRANSFER DEVELO ABLE PMENT RIGHTS ND (TDR) / L D A LI CY A ND CAPTURE (LVALUE VC) I E NTE D) PO R T O (T O C OM NSI NT D PR E TRA LOPME D FUN HEN DEVE AN S IVE M OBILIT Y PLAN (CMP) * Vision Study | Strategic Institutions | Strengthening Assessment and Action Plan for CMDA | Comprehensive Shoreline Development Project | Study on Land Value and Density Distribution | Review and Recommendations for Strengthening of TNCDBR (20190 | Study on Urban Heat Island Effect in Chennai | Demand and Supply Pattern of Housing | Integrating Blue-Green Infrastructure (BGI) for Blood Disaster and Risk Reduction | Special Distribution of Employment and Income Categories and Agglomeration Economies | Development of Sustainable Economic Growth Strategic Plan | Mainstreaming Climate Action in Chennai Third Master Plan | GHG Emissions Inventory and Building In-house Inventory Capacity | Open Space Strategy for CMA | Mainstreaming of Integrated Flood Control | Social Facilities Plan | Neighbourhood Planning Guidelines | Urban Design Guidelines | Gender Inclusive for CMA Source: Authors’ illustration. 61 CHENNAI’S URBAN MOBILITY TRANSFORMATION agencies (including those in charge of rail, qualifications. Accordingly, training and capacity road, highway, metro, and bus systems) to building plans were prepared and recommended be coordinated under a single vision. For for enhancing their technical capacities. Beyond metropolitan areas where UMTAs have not been that, improving horizontal coordination and set up (or are in the process of being set up) or effective inter-agency communication are equally for small and medium towns which do not have important, if not more. In Chennai, at a working the basis for setting up an UMTA-like institution, level a multi-disciplinary team with champions or a nodal agency for public transportation could focal persons from both CMDA and CUMTA were be designated to coordinate with the planning identified for inter-agency coordination, everyday authority. For example, the district road safety communication, follow-ups, and reporting to senior committees (DRSCs) are active and empowered at officials. These focal persons must be trained in ILUTP the district level (with the District Collector as the ideas for influencing others at work. Continued chairperson). These committees can be sensitized institutional strengthening and systematic capacity on integrated planning and can serve as the nodal building of these planning agencies are therefore agency. critical for addressing human resource requirements and filling the skill gaps. These can be accomplished • Fourthly, both CMDA and CUMTA have been (and through various initiatives including knowledge- plan to continue) actively participating in each exchange sessions/peer learning from cities that other’s key review meetings for CMP and TMP have successfully enabled ILUTP, industry-academia preparation, so that synchronization of land use collaborations and continuous skill upgradation and transport planning can be achieved at every through internal and external training programs, for stage, from data analysis to spatial strategies, to example, lecture series by experts and certification final planning recommendations. courses offered by national and international • Lastly, it is opportune and fortunate for Chennai institutions. Various ongoing national missions TOC that both CMP and TMP were prepared almost at provide ample opportunities and financing for the same time, and both have similar planning undertaking these tasks. horizons, enabling effective implementation of ii. Technical Interventions and Quality of Data ILUTP temporally. In other cities where CMP is not Collection and Analysis in the same cycle as statutory master plans, they can use the opportunities when master plans Establishing a GIS-based digital platform is need to be reviewed and updated to seek synergy essential for ensuring data consistency and and incorporate inputs from CMPs. Although coordination in ILUTP. Having credible, consistent, existing state town and country planning acts and updated data for informing evidence-based mandate the development of statutory land use planning decisions is a fundamental building plans every 20 years, they also provide for these block for ILUTP, as is the case for any effective plans to be reviewed/updated every five years planning and public decision-making process. based on changing development trajectories. Firstly, building a GIS-based digital platform for collecting data, updating, sharing, and analyses Building institutional capacity is crucial for that allows preparing of a common base map and enhancing the planning and coordination synchronization of spatial information across sectors capabilities of transport and master planning for planning and investment coordination is the agencies in Chennai. Institutional capacity building fundamental building block of ILUTP. In Chennai, for both transport and master planning agencies a Digital Chennai platform is being designed and is essential for improving the quality of planning established in coordination among key government practices and performance. Under two World Bank- agencies including CUMTA, CMDA24,25 and others. supported projects,23 institutional assessments Once in place, CUMTA and CMDA will be able to of both CMDA and CUMTA were done, including work on a common digital platform for ensuring comprehensive diagnostics for identifying the gaps that the baseline data used for both CMP and in human resources in terms of both number of TMP is consistent with an alignment between planners and specialists as well as their proficiency/ spatial planning of transport facilities and mobility 62 interventions under CMP and land use planning engagement activities, although quite costly and under TMP, and vice versa. Direct integration of time-consuming, are necessary for ensuring that data layers can ensure true integration of baseline ILUTP is done properly and should be encouraged in information and coordinated planning preparation all cities as a prerequisite for master planning. across sectors. iv. Funding and Implementation Strategies Technological advances and innovations have Successful ILUTP implementation requires significantly enhanced the capabilities of urban strategic planning and funding across planners. The recent technological advances and preparation, execution, and sustainability rapid innovations in the last decade or more have stages. For ILUTP to become a reality, leading also empowered planners to do their jobs more planning agencies need to include feasible effectively and efficiently. Big data analyses such implementation and funding strategies at various as using mobile phone or GPS signals for analyzing levels and senior government officials must take the travel behaviors on a large scale, can improve leadership in executing the planning vision/ the accuracy in predicting and projecting demand strategies across various time horizons. The ILUTP among the population in a metropolitan area. process can be classified into three broad categories Planning agencies can rely on advanced modeling for purposes of funding: preparation, execution, and tools to better analyze spatial data and carry out sustainability. In the preparation stage, the planning simulations for understanding the spatial impacts and transportation authorities need sufficient funds of different land use and transport interventions. for developing an information base, agreeing to the Interactive models can provide real-time inputs for city-level ILUTP model which may include updating/ different scenarios, thereby serving as significant preparing a statutory land use plan and preparing a data points for policy decisions (Box 1.2). CMP. Financing for these activities can either come A variety of ILUTP tools are available to help through budgetary allocations made by the state TOC cities choose the most applicable and feasible government or by tapping into schemes such as techniques for planning There is no one-size-fits-all SUTP and national missions. solution for all cities, and Indian cities should choose the most applicable and feasible ILUTP techniques Strategic investment and financing plans and tools that can be accessible to planning are crucial for the successful execution and agencies, are easy to understand, and convenient sustainability of ILUTP. At the execution stage, if for informing decision-making (Box 1.2). During the ILUTP has been carried out properly, CMP and land TMP preparation in Chennai, CMDA will hire a top- use plans should include appropriate investment notch planning consulting firm for exploring such plans and financing strategies for key investment modeling techniques for comparing alternative projects. For cities initiating ILUTP activities for spatial strategies. the first time, budgetary allocations from the state government and urban local governments iii. Public Accountability and Trust Building may be required for implementing key catalytic Effective public participation is crucial for the infrastructure investments such as metro transit and successful adoption of ILUTP, requiring extensive public facilities, especially in cities where public- stakeholder engagement. Uncertainty in public private partnership practices or land-value capture acceptance is one of the key impediments in the measures are not feasible yet. However, once adoption of ILUTP. For achieving effective public these infrastructural investments are in place (and participation and citizen buy-in, expansive, extensive, assuming they are responding to market demand), and effective stakeholder engagement throughout there should be increased revenues to be reaped by the life cycle of the planning preparation is the key. the government to recover the capital cost of such In Chennai, both CUMTA and CMDA have conducted investments. This is particularly true for TOD zones, intensive citizen engagement activities through where land-based financing mechanisms are widely surveys and stakeholder meetings for CMP and TMP used both in India and abroad. Authorities can benefit preparation, for example, for understanding travel from revenue sources such as increased property tax demand and behavior.26 Such large-scale citizen because of increased land prices of serviced land and 63 CHENNAI’S URBAN MOBILITY TRANSFORMATION BOX 1.2: MODELING TECHNIQUES AND TOOLS, AND USEFUL ILUTP TOOLS The World Bank has assisted several cities and regions (for example, Chongqing, Amman, Morocco, and Mongolia) using scenario simulations for estimating the growth impacts of different land use and infrastructure investment patterns for informing decision-making among alternative planning proposals. It has also developed a series of digital planning capacity building programs through its City Planning Labs (CPL) initiative.1 Other useful ILUTP tools developed by international and national agencies include a gravity-based Integrated Transportation Land Use Package and the economic equilibrium CATLUS (Bartholomew and Ewing 2009; Outwater, et al. 2014; TRB 2013), the Smart Growth Area Planning (SmartGAP)2 developed by the US Environmental Protection Agency for simulating alternative land use and transportation scenarios. Sources: 1. A new training course on spatial planning using digital tools is currently under development by CPL and will become available to client countries. For more information on CPL: https://collaboration.worldbank.org/content/sites/collaboration-for-development/en/groups/ city-planning-labs.html. 2. www.epa.gov/smartgrowth/smartgrowth-index. betterment levies, development charges, premium results framework may include both output-level FSI/FAR fees, transfer of development rights, and indicators and outcome-level indicators. The former auctioning of land parcels. Some cities with good are directly connected to planning implementation credit ratings may be able to directly borrow from the in the short-term such as percentage of trips in non- capital market or international financing agencies motorized transportation and public transportation (such as IFC which focuses on investing in emerging fleet emissions per kilometer.28 The latter are more markets) for developing the initial infrastructure. long-term goals relevant to the city’s vision such TOC Meanwhile, for states where PPP laws are in place, as climate resilience and sustainability, access cities can also seek to engage with the private sector to opportunities through sustainable transport, for co-financing specific infrastructure investments compact urban growth, and enhanced health envisioned under ILUTP. Such engagements can also outcomes for citizens. be through off balance-sheet models such as setting Selecting KPIs through stakeholder consultations up a revolving fund (like a TOD fund, infrastructure are essential for effective monitoring and fund or an affordable housing fund) where additional collaboration in ILUTP’s implementation. The revenues are captured for financing the scaling-up results framework and KPIs must be selected through of ILUTP activities wherein private sector equity, or stakeholder consultations led by the planning even debt depending on project structuring, can be agencies as the monitoring and achievement of mobilized depending on the success of the initial these KPIs will need collaboration and inputs from ILUTP projects. many other sectoral departments. During the v. Monitoring and Results Review conceptualization of such a results framework and KPIs, the planning agencies also need to identify Implementing ILUTP requires a clear strategy the sources of data for measuring the progress on with a results framework and SMART (Specific, each KPI, the designated agencies with roles and Measurable, Achievable, Relevant, and Time- responsibilities to collect, report, and validate the Bound)27 key performance indicators (KPIs). A data, and finally an independent evaluation process clear strategy across short-, medium- and long-term for monitoring the performance of each responsible timelines with a corresponding roadmap of action agency. Global good practices usually call for carrying should be prepared for implementing ILUTP. Both out citizen feedback surveys and/or environmental CMP and TMP will set up a clear results framework and social audits by a credible third-party evaluation with KPIs for monitoring the progress and agency for providing transparent and objective achievements in planning implementation. These assessments. Government commitment at a high- KPIs should be SMART and have indicators aligned level is needed for reserving a budget for such with the planning vision for the city. A good ILUTP evaluation studies. 64 Beyond all these interventions, aligning political metropolitan/city, and sub-city/neighborhood level mandates with plan preparation priorities is (Figures 1.3 and 1.4). critical for ILUTP to succeed. Specifically, political • Aligned plan preparation timelines: Development buy-in at the highest level is required to steer of CMP and TMP concurrently enables the the planning process. From an implementation synchronization of land use and transport planning. perspective, the prevalent method of functioning of departments is siloed, with a budget-target- • Institutional coordination: Synergized interventions, execute approach. This must change and pave the establishment of a technical advisory committee, way for a plan-budget-execute mode. In addition, and identification of focal persons/champions for large budgetary decisions currently resting with coordination by lead agencies for spatial planning engineering-led department heads should become (CMDA) and transport planning (CUMTA) provides a the purview of ILUTP champions and planning foundation for developing synchronized plans. leads who can promote a comprehensive planning approach. The strategic and regulatory environment • GIS based digital platform: The Digital Chennai should also encourage the private sector to visualize platform being established provides a common data- business opportunities through ILUTP interventions platform for ensuring that the baseline data used for for long-term sustainability. spatial and transport plans is consistent. • Public participation: Extensive citizen engagement activities undertaken through surveys by CUMTA and EXPECTED IMPACT CMDA for plan preparation has enabled understanding citizens’ aspirations, travel demands and behavior The ILUTP efforts in CMA are expected to transform which will be used to inform the plans. urban planning, leading to sustainable, resilient, and inclusive development. The efforts for carrying • Leveraging external assistance: Chennai has out ILUTP in CMA are a paradigm shift in planning from effectively co-opted development partners, civil TOC traditional zoning and land use mapping towards a more society, academia, private sector, and citizens which integrated and strategic approach that aims to bring has helped provide valuable inputs for CMP and TMP. about green, resilient, inclusive development and more productive spatial growth in the long run. While CMP and TMP are still being prepared, the active participation CONCLUSION of both CMDA and CUMTA in the preparation indicates that it is expected that these two documents will be Global experience has shown that ILUTP can promote highly intertwined and consistent with each other and be resilient and sustainable urban growth by reducing enforced with investment projects for translating the two travel, relieving congestion, reducing emissions and planning documents on paper into urban development air pollution, reducing energy consumption, and reality on the ground. To resolve the bottlenecks in infrastructure investment costs. Moreover, a well- institutional capacities and inter-agency coordination, planned city with dense, mixed, and diverse land uses continuous on-the-job training has been going on in both is likely to increase social inclusion. Built environments CUMTA and CMDA with World Bank support. Application that are friendly to NMT modes will also allow the poor of new technologies, data and analytical methods has to reduce their transport costs and alleviate poverty also been an instrumental part of the uplifting in planning while giving them more access to jobs and other performance in these two institutions. opportunities. While there are many barriers in the preparation and implementation of such integrated land use and transport plans, the window of opportunity is TAKEAWAYS FOR OTHER CITIES now open for Chennai while its CMP and TMP are both in the making in parallel. The Chennai experience, as well The Chennai experience can offer lessons for other cities. as learning from other national and international good The salient takeaways include: practices, indicate multiple learnings that Indian cities • Ecosystem approach to ILUTP adoption: Effective need to consider when introducing and scaling-up the planning interventions across the regional, ILUTP approach. 65 CHENNAI’S URBAN MOBILITY TRANSFORMATION Endnotes 1 Qingyun Shen is a Senior Urban Specialists at the World Bank. 2 Abhijit Ray is a Senior Urban Specialists at the World Bank. 3 Seetha Raghupathy is a Senior Urban Planning Consultant for the World Bank. 4 Anshul Mishra is the Member Secretary of Chennai Metropolitan Development Authority (CMDA). 5 NITI Aayog (2021). Urban Planning Capacity in India. 6 The term ‘Euclidean Zoning’ dates to the early 20th century following a classic court case of Euclid vs. Ambler in 1922. In this case, Ambler Realty Company filed a lawsuit against the village of Euclid in Ohio, United States, claiming that the local zoning regulations were directly diminishing their property values and were unconstitutional. The case went to the US Supreme Court and the final ruling upheld the zoning ordinance and argued that such land use zoning was required for effective municipal planning. 7 There has been rich literature on such empirical research published in peer-reviewed academic journals, including notably, a meta-analysis done by Bartholomew and Ewing titled, ‘Land use-transportation Scenarios and future vehicle travel and land consumption’ (JAPA, 2008), Boarnet’s review paper titled, ‘A broader context for land use and travel behavior, and a research agenda’ (JAPA, 2011), and more recently Sungwon and Bumsoo’s paper titled, ‘Comparing the impacts of local land use and urban spatial structure on household VMT and GHG emissions’ (JTG, 2020), to name a few. 8 Authors’ interpretation and adaptation from the A-S-I model by TUMI (2019). Sustainable Urban Transport: A-S-I. 9 In 2006, the National Urban Transport Policy recommended setting up of UMTAs in every large Indian city to oversee all urban mobility policies and planning efforts, although only a handful are operational. 10 Joshi, Rutul, Joseph, Yogi Patel, Kavina Darji, Vishal (2017). Transit-Oriented Development: Lessons from Indian Experiences, CUE Working Paper 36. 11 National Action Plan on Climate Change, Ministry of Environment, Forest and Climate Change, Government of India (2021). 12 National Institute of Urban Affairs (2017). A Smart(er) TOD - Learnings from MoUD's TOD Guidance Document and Smart City Plans.. 13 National Transit Oriented Development Policy, Ministry of Housing and Urban Affairs, Government of India (2017). 14 Salat, Serge and Gerald Ollivier (2017). Transforming the Urban Space through Transit-Oriented Development: The 3V Approach. TOC © The World Bank, Washington DC. 15 Ollivier, Gerald, Ashish, Ghate, Kalra Bankim, and Prerna Mehta (2021).  Transit-Oriented Development Implementation Resources and Tools, 2nd Edition. © World Bank, Washington DC.  16 Institute for Transportation and Development Policy (2013).. Blog. C. Ranga Rohini. Transit Oriented Development for Pimpri Chinchwad: Workshop Outcomes and Action Plan. 17 UN-ESCAP, Virtual Regional Workshop on Urban Mobility and Impacts of COVID-19 on Mobility (2020). Presentation. Prof. Shivanand Swamy. Policies and Strategies for Improving Sustainability and Resilience of Urban Public Transport Systems. 18 Joshi, Rutul, Joseph Yogi, Kavina Patel, and Vishal Darji (2017). Transit-Oriented Development: Lessons from Indian Experiences, CUE Working Paper 36. 19 Delhi Development Authority. 2023. Draft Master Plan for Delhi 2041. 20 Mathur, Shishir (2013). Self-financing urbanization: Insights from the use of Town Planning Schemes in Ahmadabad, India, Cities, Volume 31, Pages 308-316, ISSN 0264-2751. 21 Ahmedabad Urban Development Authority (2021). Presentation. Neela Munshi; Deepa Dave. Integrated Multi Modal Public Transit Hub at Central Business District - Ahmedabad. 22 Juhyun Lee (2020). Reflecting on an Integrated Approach for Transport and Spatial Planning as a Pathway to Sustainable Urbanization, Sustainability 12(23), 10218. 23 Tamil Nadu Housing and Habitat Development Project and Chennai City Partnership: Sustainable Urban Service Program. 24 Tamil Nadu E-Governance Agency. 25 Greater Chennai Corporation. 26 A website was created for this purpose: https://www.cmavision.in/ 27 For more information on how to design a SMART results framework, refer to the World Bank publication here: The World Bank (2012). Designing a Results Framework for Achieving Results: A How-to guide. 28 Australian Transport Assessment and Planning (ATAP) Steering Committee (2016). Australian Transport Assessment and Planning Guidelines - F0.2 Integrated Transport and Land Use Planning. 66 Source: Anantakrishnan 2: AUGMENTING BUS SERVICE DELIVERY Ravi Gadepalli1, Gerald Ollivier, and Shyam Srinivasan INTRODUCTION The current fleet translates into ~220 buses per million population, well below the national Bus based public transport is critical for addressing the mobility challenges faced by cities in developing benchmark of 600 buses per million population countries. Buses offer a cost effective, agile, space, and for metropolitan cities, and international best energy efficient means of public transport which can practice of 1,000 buses per million population as cater to the increasing travel demands of growing urban populations and changing mobility patterns in existing observed in cities like London and Bogota. TOC urban areas as well as new development centers. Despite their obvious benefits, bus services in goals. The Chennai example offers several takeaways of developing countries have often fallen short value for other cities looking at reinvigorating their bus of meeting travel demand and users’ quality services. Chennai adopted a three-pronged approach expectations. This has been the case even in Chennai, for reforms that involves: (i) development of a business where bus services are regulated and financed by GoTN plan approved by GoTN and MTC articulating MTC’s while the Metropolitan Transport Corporation (Chennai) long-term (10 year) vision and a medium term (5 year) (MTC), a state transport undertaking (STU) is in-charge of financial plan for achieving this vision, (ii) signing of planning, fleet ownership, operations, and maintenance. a Public Transport Service Contract (PTSC) between Chennai has been facing a steady decline in the quantity GoTN and MTC that formalizes the government’s 5-year and quality of public bus services despite having an funding commitment for MTC for achieving service established institutional framework for bus services. The targets set under the Business Plan, and (iii) transition consequences of declining bus service standards are well from in–house operations to gross cost contract (GCC) known - increasing private vehicle usage and associated based bus service delivery to enable a shift in MTC’s externalities like congestion, air pollution, road safety outlook from operations to service delivery. The first challenges, and a negative impact on overall livability in phase of this transformation includes procuring 1,000 the city. electric buses under GCC as part of the Sustainable Urban Service Program (SUSP) of the Chennai City Partnership This note explains key institutional reforms (CCP) between GoTN and the World Bank, with AIIB co- introduced in Chennai for improving the quality of financing. bus services. GoTN as part of the CCP between the state government and the World Bank started implementing This technical note details out these key bus reforms structural reforms that will allow MTC to raise its bus undertaken by GoTN and MTC for providing a reference services to world class standards as a key pillar for case study informing other cities, practitioners, and addressing Chennai’s mobility needs and developmental researchers. 67 CHENNAI’S URBAN MOBILITY TRANSFORMATION BACKGROUND two-wheelers alone accounting for 30 percent of the mode share. There were 91 cars, and 436 two-wheelers Chennai’s public bus services have not kept up with owned per 1,000 people by 2020. As a result, despite travel demands due to rising urbanization. MTC, a an annual budgetary expenditure of more than Rs STU owned by GoTN is the monopoly public bus service 6,500 crore (~USD 800m)2 on capital and operational provider in Chennai. MTC owns and operates a fleet expenditure of urban mobility initiatives across CMA, about 3,450 buses (March 2023), through its in-house the city has witnessed increasing congestion and high staff and consistently performs well on internal efficiency incidence of road crashes and fatalities. indicators such as ridership per bus, fuel efficiency, and There are several barriers preventing the vehicle usage. MTC’s fleet has declined steadily from its improvement of bus services. Financial constraints peak of 3,980 buses in 2016 and is currently at the same are the chief reason for the decline in bus services in level as it was in 2011. Even among the operational Chennai. MTC has seen a steady growth of its in-house fleet, about 47 percent of the buses have passed their staff costs and fuel costs, which together constitute more scheduled age of retirement but continue operating due than 80 percent of MTC’s cost of operations. At the same to lack of adequate funding for fleet renewal. Over this time, revenue growth has been limited. Farebox revenue period, CMA has expanded from 1,500 sq km to 5,900 accounts for 90 percent of MTC revenues, in the form of sq km, its population has increased from 12.2 million in tickets and reimbursements from the government for 2011 to about 15.9 million in 2021, while the GDP of this concessional travel provided to special categories of area has been growing consistently at 7-8 percent per users, including vulnerable users, women, students, and annum, all of which point to growing travel demand in the elderly. Besides such reimbursements, government the city. The current fleet translates into ~220 buses per support for bus services has been limited to discretionary million population, well below the national benchmark of funding for capital and operational expenditure via 600 buses per million population for metropolitan cities, the budget process. Without certainty of long-term and international best practice of 1,000 buses per million government support, MTC was limited in its ability to TOC population as observed in cities like London and Bogota. undertake long-term fleet expansion and service quality Inadequate public transport combined with improvements till 2023. increasing per capita incomes have led to rapid motorization and a decline in public transport. Buses traditionally formed the backbone of public transport APPROACH IN CHENNAI in CMA, but their mode share decreased from nearly A three-pronged strategy was developed as a part of 50 percent in the 1980s to 22 percent in 2018. Despite CCP: Sustainable Urban Services Program (SUSP) for significant rail investments, including MRTS and the transforming MTC into a world-class public transport Chennai metro, the rail mode share has remained low at agency: around 5 percent. The share of non-motorized transport fell from a high of 47 percent in the 1990s to 28 percent • Business plan for service improvement and in 2018. Use of personal motorized vehicles rose sharply financial sustainability: A business plan for MTC and formed 44 percent of the mode share in 2018, with BOX 2.1: VISION SETTING AND BUSINESS PLANNING International examples of vision setting and business planning include the strategic Bus Plan for Victoria (Australia)1 and the annual budget and business plan for London.2 Victoria’s Bus Plan outlines how the Victorian government will build on investments in bus services to deliver a modern, productive, environmentally sustainable bus network that increases the number of passengers. Transport for London’s (TfL’s) 2024 Business Plan sets out how TfL will continue to create a transport network that serves everyone's needs, while tackling pollution, supporting the UK economy, and building a safer, greener, and fairer city for all. Sources: 1 https://content.vic.gov.au/sites/default/files/2023-09/victorias-bus-plan-bus-reform-roadmap.pdf. 2 https://tfl.gov.uk/corporate/publications-and-reports/business-plan. 68 outlining its long-term (10 year) vision for service The Business Plan transformation and a medium term (5 year) financial Multi-year business plans can be instrumental in plan for achieving this vision were developed by MTC long-term planning and providing a clear framework and approved by GoTN in July 2023. The Business Plan for institutional transformation over an extended references international examples of vision setting time frame. MTC’s Business Plan articulates the vision and business planning (Box 2.1). of the organization, strategic priorities for achieving this • PTSC to formalize support and expectations: A PTSC vision, and the outcomes envisaged within each priority assuring timely and performance-linked funding for area over a five-year horizon, and KPIs for systematically MTC was signed between GoTN and MTC in October tracking progress towards achieving these outcomes. 2023. It formalizes GoTN’s 5-year commitment to A financial model for quantifying costs, revenues, and provide viability gap funding (VGF) for capital and financial needs for meeting the intended outcomes was operational expenses, subject to MTC meeting developed to guide decision making. Agreeing on the mutually agreed on KPI targets. It also codifies the vision and priority areas, KPIs and their targets involved institutional mechanism for monthly KPI reporting, several rounds of consultations between MTC’s various timely VGF disbursement, annual review of KPI departments and with GoTN’s transport and finance targets, and Business Plan updates. The Public Service departments with periodic inputs from the World Bank. Obligation3 and PTSCs issued by legal mandate in An external consultant (Ernst and Young-EY) was also the European Union provided a useful framework for hired to support MTC in this process. Figure 2.1 presents designing the PTSC for MTC. a summary of the key elements of the Business Plan. • Shift from operations to service delivery: SUSP is also supporting MTC to gradually increase its focus on Vision service planning and management by deploying 1,000 Under the Business Plan, MTC specified its long- buses on a GCC basis for its service expansion. MTC is term vision for the next 10 years as ‘To be an integral TOC planning to procure low-floor electric buses (e-buses) part of Chennai citizens’ daily lives by providing a as they are more user friendly and environmentally world-class, customer-centric, and sustainable public sustainable. The procurement of the first 500 e-buses bus service.’ In quantitative terms, the vision means a was concluded in November 2024, the next phase is targeted increase in ridership from 2.8 million passenger- planned in 2025, and the buses will be deployed in trips per day in FY 2022-2023 to 4.6 million per day by phases in 2025 and 2026. The GCC based approach FY 2027-2028, and 5.3 million per day by FY 2031-2032. transfers the responsibility of financing, operations, This will effectively seek to arrest MTC’s declining trend and maintenance of the bus fleet to a private of ridership, and instead increase it by 90 percent by FY operator/service provider while GoTN and MTC retain 2031-2032 relative to FY 2022-2023. the responsibility of regulating, planning, paying for services delivered, and overseeing operations Strategic priorities and actions for while also absorbing revenue risks. GoTN’s funding commitments in PTSC will ensure MTC’s financial achieving the vision sustainability and timely payments to operators, who Seven strategic priority areas (Table 2.1) and 34 action depend on the contracted revenues from MTC under points were identified for MTC for achieving its ambitious GCC to raise the necessary financing for buses. vision. Key actions which are relevant for other bus agencies are briefly described below: The following sections provide details of the Business Plan and PTSC to serve as an example for other cities • Fleet replacement and augmentation: MTC targets looking to build institutional capacity to scale up bus increasing its fleet from 3,454 in FY 2022-2023 to services. GCC based procurement in Chennai will be 7,578 by FY 2031-2032 to meet the ridership targets. informed by India’s national-level efforts for improving This will require replacing 2,343 existing buses as they bankability of electric bus contracts which have been reach their retirement age and augmenting the fleet covered extensively in other publications4,5 and are by another 4,124 buses. Therefore, MTC will need to hence not repeated here. procure 6,457 buses by FY 2031-2032 and plan for infrastructure and financial resources accordingly. 69 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 2.1: OVERVIEW OF THE BUSINESS PLAN FOR MTC, CHENNAI Adopted long-term vision for bus services: • To be an integral part of Chennai citizens’ daily life by providing a world-class, customer-centric, and sustainable public bus service • Increase bus system ridership from 2.8 million passenger-trips per day in FY Vision setting 2022-2023 to 4.6 million per day by FY 2027-2028, and 5.3 million per day by FY 2031-2032 Identified priority measures for service transformation: • Fleet replacement and augmentation targets • Bus network redesign to make it simpler, faster, and more reliable • On-street bus priority for improving travel speeds • Supporting infrastructure and multimodal connections • Scheduling optimization to rebalance costs and revenues Service Transformation • Timeline for transition to electric buses Priorities • Moving towards a combination of service delivery models including in-house operation, GCC, and potentially net cost contracts • Digitalizing systems and enhanced customer engagement TOC Identified KPIs for efficiency improvement across strategic priority areas: • Enhancing journey experience and trust • Safe and inclusive system for all • Clean, green, and resilient mobility • Smart mobility Performance • Operational efficiency improvement efficiency targets • Financial sustainability • Mobility through collaboration Source: Authors’ illustration. TABLE 2.1: OVERVIEW OF STRATEGIC PRIORITIES, OUTCOMES, AND KPIS AND THEIR TYPES DEFINED UNDER THE BUSINESS PLAN Strategic Outcome Key Performance Indicator (KPI) KPI Type priorities Priority 1: Daily ridership Daily ridership on MTC buses including all PTSC – Reportable Enhancing (gender-wise) categories of passengers (tickets and passes) Journey Daily ridership per MTC bus including all PTSC – Reportable Experience and categories of passengers (tickets and passes) Trust 70 Strategic Outcome Key Performance Indicator (KPI) KPI Type priorities Public transport will Proportion of households living within a 10 PTSC – Reportable be accessible to all min walk from bus stops Proportion of jobs holders living within a 10 PTSC – Reportable min walk from bus stops Proportion of educational institutions within a PTSC – Reportable 10 min walk from frequent transit points Journeys by public Breakdown per 10,000 km PTSC-VGF transport will be fast and reliable Percentage of on-time dispatch of trips (-5 / PTSC-VGF +5 minutes) Trip efficiency (percentage of operated PTSC-VGF revenue trips against planned trips) Km efficiency (percentage of operated PTSC-VGF revenue km against scheduled km) Customer satisfaction score (gender wise) PTSC-VGF Public transport will Time taken to address minor customer Internal Efficiency care of its customers grievances (minor grievances do not require an investigation) Time taken to address major customer Internal Efficiency grievances (major grievances require an TOC investigation) Percentage of calls that will be attended (call Internal Efficiency center response) (number of incoming calls vs calls attended (IVR system)) Priority 2: Safe Transport system Number of blameworthy accidents per lakh Either PTSC and Inclusive will be safe and km Reportable or system for all secure Internal Efficiency Reduction in number of security incidents in Either PTSC bus per Reportable or lakh km (assault, sexual harassment, violence, Internal Efficiency pickpocketing, theft, intimidation of driver/ conductor) Priority 3: Transition to electric Procurement of electric buses in fleet PTSC Reportable Clean, Green buses (percentage of new fleet procured which will and Resilient be electric – replacement and augmentation) Mobility Fuel efficiency Km/ltr – diesel (standard non-AC bus) Internal Efficiency kWh/km (standard low floor AC bus) Internal Efficiency Priority 4: Transition to Proportion of digital ticket transactions in Either PTSC Smart Mobility electronic ticketing/ total ticket transactions Reportable or AFCS Internal Efficiency Digital passenger Proportion of fleet with functional PIS Either PTSC information system Reportable or Internal Efficiency 71 CHENNAI’S URBAN MOBILITY TRANSFORMATION Strategic Outcome Key Performance Indicator (KPI) KPI Type priorities Priority 5: Engineering Fleet availability Internal Efficiency Operational Technician per bus Internal Efficiency Efficiency Improvement Operation Vehicle usage (effective km per bus per day) Internal Efficiency Driver-cum-conductor per bus Internal Efficiency Conductor per bus Internal Efficiency Total staff per bus PTSC-VGF Administration Administrative staff per bus Internal Efficiency Priority 6: Financial Cost recovery ratio (excluding depreciation, Internal Efficiency Financial sustainability amortization, interest, and taxes) Sustainability Non-fare box revenue (percentage of fare box Internal Efficiency including reimbursement of concessional/free travel) Priority 7: Collaborations Involvement of commuters and other PTSC Reportable Mobility stakeholders in decision making (number of through meetings) Collaboration Number of terminals with multimodal PTSC Reportable connectivity (percentage terminals with integration out of total potential) • Network Redesign - Making the network simpler, Furthermore, the expanding metro network along TOC faster, and more reliable: MTC’s bus network has high demand corridors warrants rationalizing services remained relatively static over the years, even as which have significant service and demand overlap several new demand centers have emerged across with the metro, and the addition of feeder bus services CMA. An accessibility analysis (see Figure 2.2) identified for improving access to the metro. Therefore, a city- several areas with limited bus network connectivity. wide bus route network redesign exercise will be FIGURE 2.2: POPULATION AND JOBS ACCESSIBLE WITHIN 500M OF MTC BUS STOPS IN CMA (Key findings from the accessibility analysis as part of the Business Plan for mapping the existing service coverage of the bus network in Chennai, and key service gaps to be addressed through a redesigned bus network) Source: Business Plan, EY. 72 carried out for optimizing the deployment of existing • Transition to electric buses: Considering the and future bus fleets based on the emerging needs favorable Total Cost of Ownership (TCO) over the of bus users across Chennai. MTC aims to develop lifecycle of the bus, improved ride quality and the a network which is simple to recall for the users by substantial environmental benefits, electric buses reducing the number of routes and making them (e-buses) were identified as the priority technology for destination oriented, efficient by providing direct upcoming fleet procurement. A total of 5,016 buses, high-frequency connections between key demand which will constitute 85 percent of the augmented centers, and reliable. fleet and 64 percent of the replacement fleet, are planned to be electric, making the e-bus fleet share • Bus priority measures: MTC’s journey speeds have 66 percent by 2031-2032. Given the funding secured declined significantly over the years, as reflected in a for some diesel buses and the current lack of feasibility 15 percent reduction in daily bus-km between 2015- for e-buses on some routes, about 2,562 diesel buses 16 and 2022-23, due to traffic congestion. Bus priority will also be procured. MTC will revisit these numbers measures such as exclusive bus lanes, priority signals during annual Business Plan updates, since e-bus for buses, and bus boxes at the head of intersections technologies and cost economics are still evolving. are being explored for increasing bus speeds along congested corridors, thereby encouraging modal • Moving towards a combination of service delivery shifts from private vehicles to buses. models: The Business Plan includes a combination of service delivery models for MTC: (i) in-house • Supporting infrastructure and multimodal ownership and operations for existing buses; (ii) GCC- connections: Given the capacity constraints of based operations for fleet expansion as already being existing infrastructure, expanding and improving adopted in several Indian and international cities; supporting infrastructure such as depots and terminals and (iii) potential net cost contract for on-demand were identified as critical for supporting the expanded premium services. The GCC model will allow MTC to fleet. Besides more buses, MTC correctly identified focus on service design and customer satisfaction while TOC improving customer experience as a key priority. the fleet ownership, operations, and maintenance This is critically linked to the quality of infrastructure are taken up by contracted operators for service in terms of accessing, waiting, and boarding buses. expansion. A move towards GCC will reduce delivery Hence, the Business Plan identified key Multi Modal costs, as observed across India, which will improve Integration (MMI) locations with high footfall such MTC’s financial sustainability substantially. GCC for as interchanges between buses, suburban rail, metro e-buses will also better allocate risks, by transferring stations, and nodes where several buses terminate those to the vehicle manufacturers and operators who as needing priority improvements in physical are better positioned to address such risks. In parallel, infrastructure and passenger information integration. the Business Plan recognizes the major contributions Feasibility studies and market consultations indicated of the more than 8,200 drivers and several other that some sites can be developed through the PPP supervisory staff currently employed by MTC. The mode while others needed the government to cover Business Plan retains sufficient in-house operations for viability gaps. MTC has initiated action for developing using the existing crew. Some staff will be up skilled supporting infrastructure through a combination of to manage priorities like contract management and government-led as well as PPP-based involvement of performance review of private operators in the new private developers in exchange for allowing limited GCC paradigm. access to this land for other commercial activities. • Digital systems: MTC is currently undertaking several • Scheduling optimization for rebalancing costs information technology (IT) initiatives for real-time and revenues: The Business Plan’s analyses also passenger information, automated fare collection highlighted the scope for rationalizing staff costs systems, Enterprise Resource Planning (ERP) for through improved vehicle and crew scheduling management, and grievance redressal mechanisms practices. This will require moving from the current through various government and externally financed practice of relatively uniform service frequencies all projects. The Business Plan identified the need for day to higher frequency services during peak hours, effective integration between these initiatives as well and re-allocation of the crew accordingly. as effective integration of passenger information and 73 CHENNAI’S URBAN MOBILITY TRANSFORMATION ticketing with other public transport modes. funding and encouraging efficient service delivery. The business planning exercise identified KPIs tied to each • Customer satisfaction, grievance redressal, strategic priority area based on their importance and branding, and communication: The Business feasibility of measurement. Table 2.1 provides a summary Plan emphasizes the need for greater focus on of the strategic priority areas, associated outcomes, and customer centric initiatives such as periodic customer KPIs and their classification. The KPIs are further classified satisfaction surveys on key attributes such as service into three categories according to their application: quality, safety, comfort, ease of use, and crew behavior. MTC has now initiated action to carry out i) PTSC contractual KPIs: These KPIs will be used by customer satisfaction surveys annually with the target GoTN to track MTC’s performance. The release of VGF of increasing satisfaction levels by 30 percent over will be contingent on the achievement of these KPIs. a five-year period. Separately, activities for timely ii) PTSC reportable KPIs: These KPIs will be reported grievance redressal mechanisms as well as branding by MTC to GoTN to track performance trends. and communication initiatives have been identified While these KPIs will not have a bearing on the VGF for improving customer satisfaction. allocation to MTC, they will have policy relevance • Non-fare box-based revenue: Such revenues are and will inform overall decision-making regarding being explored to offset losses due to fares kept bus services. low for affordability. Development of PPP-based iii) KPIs for internal performance efficiency infrastructure to raise revenues as well as premium improvements: These KPIs will be tracked by bus services which provide high-quality buses and MTC and used for internal performance efficiency demand-responsive routes have been studied. As management which will in turn support it in meeting explained earlier, only a few terminal sites are deemed the KPIs listed under PTSC. suitable for PPP. Premium bus services have been identified as a promising model for attracting a new The targets for each KPI were defined based on improving gradually from their current to desirable levels TOC clientele to buses which is willing to pay more for a more comfortable and favorable route. However, over a five-year period. Determining the value of targets the revenues from such services are not likely to was an iterative process. MTC initially set targets based significantly offset MTC’s overall deficit. on internal deliberations on the practical challenges of improving performance. The targets were then Key Performance Indicators (KPIs) for reviewed by GoTN’s transport and finance departments and were either approved or recommended for further measuring progress in the vision improvements to meet performance expectations. MTC Defining KPIs that better align with the vision, and then finalized the KPI targets in concurrence with GoTN. incentivizing progress towards the KPIs are key elements The detailed stakeholder involvement in this process was of the Business Plan in Chennai. While MTC has already key to moving towards a business plan and KPI targets tracked several KPIs, most of them focus on productivity which were mutually acceptable to both GoTN and MTC. parameters such as daily-km of service, ridership, trip Specific KPI targets have been excluded from this note as efficiency (percentage of scheduled trips performed), the Business Plan is internal to MTC. breakdowns, accidents, and crew per bus. Customer- centric measures such as accessibility, punctuality, PTSC and customer satisfaction have not been tracked. MTC identified the Business Plan KPIs that meet internal PTSC provides assured funding to MTC for the fleet efficiency and customer satisfaction goals, while also covered each year, subject to MTC meeting its KPI targets considering MTC’s ability to monitor them transparently for the PTSC-VGF category KPIs listed in Table 2.1. KPI and consistently. Further, MTC previously only tracked targets apply to the fleet covered by PTSC for a given KPIs for internal efficiency management. While KPIs are year and are set to be incrementally more stringent, reported to GoTN annually, they did not have any bearing as an efficiency improvement incentive for MTC to be on the funding allocated to MTC. eligible for funding from GoTN. Through this approach, PTSC codifies the relationship between GoTN and MTC The Business Plan and PTSC now link the KPIs to funding and introduces transparency and consistency in funding allocation for MTC, thereby improving transparency in support for MTC to reach its business plan’s goals, moving 74 away from the current practice of discretionary funding will directly lead to MTC foregoing 10 percent without formal linkages to performance efficiency. of its VGF requirement. Given the baseline trip Detailed definitions of the KPIs and their targets are efficiency of 77 percent in FY 2022-2023 and the provided in PTSC along with other key terms such as target to improve it further, it is expected that timelines for KPI reporting, VGF disbursement, and scope MTC will consistently meet the 75 percent target. for annual revision coinciding with the Business Plan’s b. The eligible VGF amount (of 90 percent or 100 updates. percent) will be transferred to MTC as follows: i. 70 percent of the VGF amount will be PTSC’s key elements disbursed at the end of every month to • Scope: The PTSC signed between GoTN and MTC has a ensure adequate cashflow with MTC. life of five years and adopts an incremental approach, ii. Another 20 percent of the VGF will be covering 10 percent of the MTC fleet in year 1 and disbursed at the end of the year after expanding its coverage to 30 percent, 50 percent, 70 adjusting the budgeted VGF against actual percent, and 100 percent of the fleet in subsequent VGF MTC’s needs. years. Therefore, from year 5 onwards, the entire MTC iii. The remaining 10 percent of the VGF, in case fleet will be covered by PTSC. MTC is eligible for it, will also be transferred • Annual VGF allocation: MTC will prepare an updated at the end of the year. However, this is business plan at the start of every year from year 2 of contingent on MTC meeting individual KPIs: the contract, updating its service targets and funding 1. 2 percent weightage each will be given requirements for the next financial year. Subject to the to three KPIs: Trip efficiency, earnings per approval of the business plan, the necessary VGF for km, and bus-staff ratio (number of staff capital and operational expenses will be budgeted for per scheduled bus). the next financial year, beginning in April of the year. TOC While the process of annual budgeting will happen 2. 1 percent weightage each will be given even without a PTSC, PTSC serves as an objective and to four KPIs: breakdowns per 10,000 km, convenient vehicle for MTC for identifying specific percentage of on-time dispatch of buses, depots and fleet to be considered for VGF allocation. km efficiency (percent scheduled-km MTC is also required to report on KPIs at the beginning operated), and occupancy ratio (percent and end of each year which will be considered for passenger-km of capacity availed). VGF allocation. This KPI linkage to VGF allocation 3. Each of these KPIs are given incrementally makes PTSC an effective tool in driving performance stringent targets over the five-year period efficiency while providing transparency and assurance to encourage MTC to improve efficiency. of funding. Even though trip efficiency is measured • Periodicity of KPI reporting: MTC will report VGF- while determining initial eligibility for 90 linked and other reportable KPIs listed in Table 2.1 percent/ 100 percent VGF, the KPI targets every month, as well as their consolidated statement while disbursing the final 10 percent of at the end of the year. the VGF have more stringent targets than the baseline requirement of 75 percent. • VGF disbursement protocol: VGF disbursement to MTC is contingent on two layers of pre-requisites: • Contract management through a committee: A committee comprising members from MTC and GoTN’s a. Achieving/maintaining trip efficiency of 70 transport and finance departments will oversee PTSC. percent will make MTC eligible for 90 percent of The key tasks of the committee include identifying the VGF amount for the month, while achieving the KPI monitoring system, review of annual updates trip efficiency of 75 percent will make it eligible of the Business Plan covering service expansion and for 100 percent of the VGF. Trip efficiency is the efficiency improvement targets of MTC along with the percentage of actual trips out of the scheduled corresponding VGF. The committee is also empowered trips performed by the fleet covered under to make necessary amendments to PTSC including PTSC. Therefore, underperformance on this KPI fleet coverage, KPI targets, and VGF mechanisms. 75 CHENNAI’S URBAN MOBILITY TRANSFORMATION • Other elements: Apart from all these, PTSC clearly Monitoring Unit (PMU) with subject matter experts has defines the rights and obligations of the parties been hired to support MTC in aligning projects from involved, reporting requirements by MTC, detailed various development partners with the Business Plan’s definitions of the KPIs and their calculation methods, vision and for assisting in the institutional transformation. MTC’s proposed service plan (with flexibility to The experience from PMU will be used for building adapt based on demand), and a detailed list of costs internal capacity for undertaking these activities in- and revenues to be accounted for VGF calculations house in the long-term. Internal capacity building will including their accounting codes. involve establishing SOPs for various activities like GCC management and ITS application as well as re-skilling Impact of PTSC on fare setting and staff for future needs. Restructuring the institution to accommodate new skillsets needed for the future concessional travel reimbursements such as customer engagement, gender inclusion, and Fare setting of MTC buses has traditionally been carried environmental and social management will be taken up out by GoTN balancing financing and affordability in due course. considerations. Even after PTSC, GoTN continues to retain the power for fare setting and periodic revisions as per the currently prevailing Government Orders. The VGF EXPECTED IMPACT required based on these fares will be provided under PTSC. This way, MTC’s ability to provide quality bus Bus service reforms in Chennai are well underway and services is insulated from government decisions on fares are expected to improve bus service delivery in the which are often based on wider policy considerations. city. The Business Plan was approved by the Government of Tamil Nadu in July 2023. PTSC was subsequently Concessional travel reimbursements: Even in the approved and operationalized in September 2023 and absence of PTSC, GoTN has been funding MTC in the form MTC had initially received the necessary budgetary of budgetary allocations for capital requirements for TOC allocation for year 1 covering 10 percent of its fleet. fleet procurement and reimbursement of concessional Building on the results achieved in the first year, GoTN pass travel offered by MTC. While the capital needs will advanced the PTSC timeline by a year and has now be subsumed under PTSC, prevailing Government Orders decided to reach 100% VGF support in four years instead for the reimbursement of concessional bus passes will of the five originally planned. Accordingly, GoTN will continue even after PTSC comes into effect. This has been now cover 50 percent of MTC’s VGF requirements in incorporated in PTSC. year 2, 70 percent in year 3 and 100 percent by year 4. Additionally, a program management unit (PMU) has Operationalization of the Business now been set up for implementing PTSC effectively over Plan and PTSC its five-year tenure, including tracking and reporting on key performance indicators, updating the Business Plan MTC and GoTN have initiated action for building the annually, and advancing efficiency improvement goals necessary institutional capacity for operationalizing set for MTC. Other cities and states could accelerate priority activities proposed in the Business Plan and PTSC. bus service reforms by adopting such documents with Additionally, the proposed introduction of GCC based minor modifications suiting the local context. MTC also operations for service expansion, transition from diesel concluded the procurement of 500 e-buses using gross to electric buses, upgrading depot capacity to meet cost contracts in November 2024, to be followed by a future needs, and provision of customer-centric services, second phase of 500 e-buses, with the bus deployment require MTC to reorganize its institutional structure expected to be carried out in phases through 2025 and and build capacity to achieve the transformation. In 2026. The prices quoted for GCC (INR 77.16 per km for addition to CCP, MTC is currently receiving technical Non-AC and INR 80.86 per km for AC e-buses) deliver and financial assistance from development partners more than 20 percent savings in operating costs for MTC. such as the German Development Bank (KfW) and the These results mark an inflection point in the technology Japan International Cooperation Agency (JICA) for and business model preferences for MTC and validate the fleet procurement, infrastructure upgrades, Intelligent transition model proposed under SUSP. Transport Systems (ITS) for digital transformation, and institutional capacity building. A specialized Program 76 Chennai’s approach to bus service reform can performance linked incentives and disincentives as contribute to India’s climate commitments, and well as any deviations between budgeted and actual national level programs. Government of India’s Long- funding needs. Term Low Emission Development Strategy (LT-LEDS)6 • The transformation process: The hierarchy of launched at the 2022 United Nations Climate Change activities undertaken as part of the Business Plan and Conference (COP27) targets increasing public transport the PTSC process in Chennai can serve as a blueprint mode share and transitioning to electric mobility. Towards for other cities. This includes setting a vision for this, various national-level programs like aggregated customer-centric service delivery, key building blocks procurement of e-buses and establishment of a Payment for service improvements like service enhancement, Security Mechanism (PSM)7 are being taken up to improve electrification, and digitalization, and KPI based project bankability and ensure timely payments to e-bus monitoring of the progress towards achieving the service providers. However, the success of these national vision. level efforts is critically dependent on state and city level efforts to set up a vision for e-bus transition and service • Building consensus on KPIs and targets: The Chennai improvement backed by consistent funding. PTSC sets experience highlights the need for a collaborative and up a replicable template for items like the institutional iterative process in selecting KPIs and targets. KPI structure, service enhancements, and e-bus adoption targets need to strike a balance between incentivizing targets along with KPIs for efficiency monitoring that service improvements, while being within the realm of can be adopted by Indian cities and states across various possibility for the service delivery agency. Achieving scales of operations. consensus on targets through active consultations can ensure better commitment by the concerned The Business Plan and PTSC can serve as blueprints stakeholders and the durability of targets. for replication elsewhere in India and beyond. A long-term vision, business plan, and consistent funding • Incremental transformation: Chennai has chosen to extend the coverage of PTSC to MTC’s fleet in phases TOC commitment through a PTSC linked to the Business Plan are being developed for the first time in the Indian over five years (going from 10 percent in year 1 to context. These documents have been developed through 30 percent, 50 percent, 70 percent, and 100 percent extensive consultation and legal vetting and can help in year 5). While this gives time to GoTN and MTC to other cities and states looking at accelerating bus service adapt to the new paradigm, the mechanics of such an quality improvements and e-bus adoption. approach can be complex. MTC will need to delineate the specific buses, depots, and routes to be included under PTSC each year, and determine KPIs and VGF TAKEAWAYS FOR OTHER CITIES requirements applicable to them. Depending on the context, other cities may choose to go to 100 percent Chennai’s bus service transformation journey offers right at the outset, with moderate KPI targets based takeaways that can benefit other cities: on the ability of the entire fleet to meet them in the initial stages. • Assurance of support in exchange for better services: The five-year funding commitment in • High care with high expectations: Achieving exchange for service enhancements and efficiency multifold transformation in service, vehicle improvements is at the core of the Business Plan and technology, and information technology adoption PTSC. Other cities can employ similar approaches requires strong oversight and significant re-skilling for strengthening accountability, while offering the and capacity augmentation in the bus agency for certainty of government support for facilitating long effectively managing the transition. The approach term planning and investment to strengthen service of setting up a contract management committee delivery. In addition to long-term commitment, the comprising GoTN and MTC’s representatives that periodicity and timeliness of funding are crucial for reviews the updated business plan, KPI targets, and ensuring adequate cash flow with the bus agencies. VGF requirements every year provides an institutional Therefore, the governments may transfer most of the anchor for ensuring PTSC’s successful execution. committed funding monthly and retain some amount Significant capacity development initiatives are being to be reconciled at the end of the year for taking planned for MTC to tide over the transition. 77 CHENNAI’S URBAN MOBILITY TRANSFORMATION CONCLUSION transport improvements can bring in more transparency, consistency, and efficiency in funding for public A combination of the Business Plan, PTSC, and GCC based transport, thereby enabling the enhancements necessary procurement of electric buses by Chennai provides a for meeting developmental and environmental targets replicable template for other cities and is also scalable to across developing countries. regional and national levels. Such a framework for public Endnotes 1 Ravi Gadepalli is a consultant at the World Bank 2 The World Bank (2020). Overview of Expenditure, Funding and Financing for Urban Transport in Chennai. Internal document. 3 2023 No. XXX RETAINED EU LAW REFORM PUBLIC PASSENGER TRANSPORT The Public Service Obligations in Transport Regulations 2023 4 The World Bank Group (2022). Improving Bankability of e-bus procurement in India. Washington DC: World Bank Group. 5 Convergence Energy Services Limited. 2022. The Grand Challenge’ for Electric Bus Deployment: Outcomes and Lessons for the Future 6 MoEFCC (2022). India’s long-term low-carbon development strategy. Ministry of Environment, Forest and Climate Change, Government of India. 7 PIB. Ministry of Environment, Forest and Climate Change (2023). Press release.Bhupender Yadav. Decarbonization of transport sector essential to reduce GHG emissions, achieve net-zero emissions by 2070. TOC 78 Photo credit: CUMTA 3: FOSTERING MULTIMODAL INTEGRATION Ravi Gadepalli1, Jai Malik2, Shyam Srinivasan, and Gerald Ollivier INTRODUCTION Even as public transport expands gradually, To encourage people to use public transport and the number of personal cars and two-wheelers active mobility, cities need to compete effectively has grown at a rapid pace, with CMA now with the door-to-door connectivity provided by having more than 9 million registered personal private vehicles. Travel patterns through public vehicles, indicating the increasing mobility transport systems are generally multimodal. Even in cities needs of the people, currently served by private with a predominant mode such as buses, commuters vehicles causing congestion, poor air quality, TOC need to walk or cycle to and from bus stops to go places. Well-integrated transport systems allow users to transfer and road safety hazards. across modes with a reasonable amount of physical effort, time, and cost. Conversely, friction during intermodal transfers or large tariff differentials can discourage the wheelers)3 as well as active modes requiring human effort use of public transport and push people to own and use such as walking, cycles, and cycle-rickshaws. Improving personal vehicles. public transport modes complemented by investments This note discusses approaches for improving in active mobility4 to enable first and last mile access multimodal integration (MMI) in cities using the can significantly enhance the efficiency of services in ongoing and planned efforts in Chennai. Given the meeting the diverse commuting needs in Indian cities multiplicity of modes and the ongoing expansion of and elsewhere. its metro network Chennai is particularly interesting. Intermodal transfer friction significantly impacts the Strengthening MMI is crucial for reaping the benefits of attractiveness of public transportation. Friction during investments in public transport. Other cities that are in intermodal transfers can discourage people from using the process of expanding their public transport networks public transport and instead opt for private vehicles. or are simply seeking to optimize their existing networks Passengers may hesitate to choose public transportation can gain from the Chennai example. due to the additional time and effort it entails. These challenges include cognitive burdens related to route What is MMI? planning, navigation, and uncertainties in timely arrivals Creating efficient, multimodal transportation systems and connections.5,6 For instance, difficulties faced by is crucial for addressing the diverse commuting passengers in accessing and leaving public transport needs in urban areas. Transportation systems are often modes have been identified as a contributing factor multimodal, encompassing various motorized modes of to lower-than-expected ridership in the Delhi metro.7 transport such as buses, metro systems, suburban trains, Factors such as physical distances, condition of road auto-rickshaws, taxis, and private vehicles (cars and two- infrastructure, a city’s geography, land use, population 79 CHENNAI’S URBAN MOBILITY TRANSFORMATION density, and income distribution influence public wheelers offer paratransit/intermediate public transport transport demand, ease of entering and exiting stations, (IPT) services, which are point-to-point or corridor-based wait times, and transfer times playing crucial roles in the shared shuttle services. Even as public transport expands overall travel experience.8 gradually, the number of personal cars and two-wheelers has grown at a rapid pace, with CMA now having more Effective MMI in public transport is crucial for than 9 million registered personal vehicles , indicating enhancing urban accessibility. In the context of the increasing mobility needs of the people, currently rethinking urban planning for improved accessibility, served by private vehicles causing congestion, poor air MMI in public transport is essential. It involves quality, and road safety hazards.12 considering various dimensions for ensuring a seamless and efficient service for passengers. Network Accessibility to jobs is directly impacted by the level integration connects routes to provide access to of integration across different transport modes. diverse destinations, minimizing duplication of services. Building on CMP 2019 data and the public transport Timed transfers synchronize scheduled services to network, accessibility to jobs by public transport was minimize transfer times, forming a pulsed hub network. assessed across the Chennai metropolitan area, with Physical connections such as sheltered walkways a one-hour journey time. Accessibility to jobs through and informative signages, facilitate smooth transfers. a multimodal strategy was 76 percent higher than Information integration offers real-time guidance during one that relied solely on rail, and 17 percent higher transfers, while fare and ticketing integration ensures a than one using only the bus network. The cost of such unified and cost-effective system. By addressing these integration was minimal compared to investment costs dimensions—network integration, timed transfers, in the different modes illustrating the value of MMI in physical connections, information integration, and fare leveraging public investments (Figure 3.1). integration—urban/transport planners can create a well-coordinated and user-friendly multimodal public Mode share of active mobility and public transport has declined over the years despite significant TOC transport system (refer to Chowdhury et al. 20189 for further details). Stockholm10 and Singapore11 have public investments. GoTN through its various civic successfully implemented MMI, allowing passengers to agencies, infrastructure development authorities, and easily transfer between different modes of transportation public transport utilities, invested about Rs 6,800 crore for efficient travel. (~USD 820m) annually13 for the five-year period between FY 2016 to FY 2020, covering capital investments in infrastructure and systems and operating subsidies (the BACKGROUND World Bank, 2020).14 Despite these investments, the mode share of public transport systems in Chennai has Chennai’s diverse public transport systems are declined from 43 percent in 1992 to around 23 percent expanding to meet the city’s growing mobility needs, in 2023 (Figure 3.2).15 Conversely, the growth in personal but private vehicle usage continues to rise. Chennai vehicles has outpaced growth in road infrastructure, presently has four different public transport systems. leading to traffic congestions, road safety issues, and a Buses have been the most used public mode of transport, negative impact on the quality of life. as discussed in the preceding note on ‘Augmenting Bus While part of the decline can be attributed to users’ Service Delivery.’ They are provided by MTC-Chennai with preference for personalized mobility, a significant a fleet of ~3,400 buses running on 610 routes . Suburban reason has also been the lack of integrated service rail lines that connect the core city to the rest of CMA provision across modes. The Draft Comprehensive and beyond have been operating for several decades, Mobility Plan for Chennai (2019) identified the lack of including the suburban rail system (89 km) and MRTS land-use transport integration, lack of non-motorized (19 km). To augment mass transit services further, the transport facilities, and the lack of multimodal integration Chennai metro was inaugurated in 2015 and currently across all integration dimensions, led to the decline has a network length of 54 km. The city is expanding its in public transport and the non-motorized transport metro network by another 118.9 km, while the bus fleet mode’s share. There is potential for improving MMI, with size is planned to be doubled by 2030. Apart from these due consideration to urban development patterns and formal modes of public transport, about 74,000 three- evolving customer preferences. 80 FIGURE 3.1: TOTAL JOBS ACCESSIBLE IN 60 MINUTES BY DIFFERENT MODES Walking Rail only* 1 Bus only 8% 17% 25% Accessibility t multimodal s Accessibility by Mode Total jobs accessible in 60 than one tha Total number of jobs minutes*2 and 17% high into the bus n Walking Rail only* 1 Bus only All Modes Combined 8% 17% 25% 30% *1Suburban & Metro *2For better comparability the scales for all maps showing the same indicator are the same. Source: The World Bank based on draft CMP Chennai (2019). Accessibility to jobs through a multimodal strategy is 76% higher Accessibility by Mode MMI Approach in Chennai Total jobs accessible in 60Building onthan theseoneprinciples, GoTN that relied solely rail, initiated a wide onhas Total number of jobs minutes* 2 and 17% higher range of measures than only looking for improving MMI under four key GoTN aims to reverse these trends and recognizes into the bus network. pillars: the importance of MMI for achieving this. Various i) Institutional measures for MMI vision * Suburban 1 documents & Metro * and development For better 2 plans comparability the scales for all maps for Chennai showing 16 the same indicator are the same. 10 identify reducing personal vehicle usage and increasing ii) Physical integration between various modes to mass public transport’s share as key to addressing the current transit systems challenges and ensuring sustainable development in iii) Operational integration between mass transit the city. Past studies have demonstrated how improving systems, including: local and regional accessibility of mass transit systems TOC a. Bus route network redesign through MMI initiatives like creating vibrant people b. Paratransit planning and regulation centric spaces, developing neighborhoods that promote walking and cycling, and integrating public transport iv) Technological integration, including: are the key to maximizing benefits from mass transit a. Integrated journey planning investments and urban value.17,18 b. Digital ticketing for public transport c. Transition towards Mobility as a Service (MaaS) FIGURE 3.2: MODE SHARE TRENDS IN CHENNAI SINCE 1992 30% 17% 2% 1992 2% 7% 39% 3% 2008 28% 6% 4% 6% 25% 26% 5% 2015 26% 6% 6% 7% 27% 23% 5% 25% 3% 7% 7% 30% 22% 6% 2018 2023 24% 4% 8% 7% 34% 18% 5% 0 20 40 60 80 100 Walk Bicycle Autorickshaw/Taxi Car/van Two-wheeler Bus/school bus Train/metro Source: CMP Interim Report II, CUMTA (2024). 81 CHENNAI’S URBAN MOBILITY TRANSFORMATION The rest of this note explains the specific actions being paratransit operators to transition them into formal undertaken under each of these areas of the intervention. public transport systems. Institutional measures for MMI Physical infrastructure integration for Cities around the world have shown similar access and interchange facilities institutional reforms for enhancing MMI and A large city like Chennai requires a comprehensive improving travel experience. For instance, London approach for enhancing physical infrastructure established Transport for London (TfL)19 as an integration for access and interchange facilities. integrated transport authority, while Barcelona created As part of the construction of phase 2 of the Chennai the Barcelona Metropolitan Transport Authority metro, the Chennai Metro Rail Limited (CMRL) is (ATM)20 for coordinating various modes of transport. improving connectivity across modes in the immediate Vancouver implemented TransLink21 to oversee regional vicinity of metro stations. CUMTA also plans to improve transportation services. These institutional changes have physical integration through a multi-pronged strategy led to more seamless and efficient multimodal transport that includes developing a city-wide physical MMI systems in these cities. strategy and piloting physical MMI interventions at specific interchange stations. The envisioned MMI Multimodal integration (MMI) in Chennai requires strategy involves classifying interchange nodes into cross-agency collaboration and is facilitated by the key typologies, identifying essential elements for each Chennai Unified Metropolitan Transport Authority station type, developing conceptual designs, and (CUMTA). MMI in Chennai is also a cross-cutting topic preparing implementation and monitoring plans that that often falls between the mandates of different enhance universal accessibility by improving pedestrian agencies responsible for public transportation. For experience in directly accessing mass transit as well instance, providing sidewalks in the vicinity of metro as interchanging across modes. Figure 3.3 shows a stations requires collaboration between GCC and the TOC detailed design of one such project being developed - Chennai Metro Rail Limited (CMRL). This is where the the Kilambakkam Skywalk. The project aims to provide value of the Chennai Unified Metropolitan Transport seamless connectivity between the bus terminal and the Authority (CUMTA) as a nodal agency comes into play. proposed rail halt station through a skywalk, avoiding CUMTA, established in 2010 and strengthened in 2020, pedestrian vehicular conflicts and enhancing passenger serves as an institutional anchor with legislative support safety. Singapore’s Yishun Integrated Transport Hub for facilitating initiatives that require coordination exemplifies effective design of interchange facilities to among multiple agencies. To advance MMI’s initiatives, enhance travel convenience (Box 3.1). CUMTA has formed a dedicated MMI sub-committee involving various agencies. Further details on CUMTA’s establishment and functions can be found in Technical Operations’ integration across Note 8 on ‘Strengthening Metropolitan Transport various modes Governance.’ Chennai’s public transport network faces challenges Engaging informal paratransit operators through due to limited coordination among various transit a dedicated agency like CUMTA is crucial for systems. Chennai has a bus route network length of strengthening MMI. A dedicated agency like CUMTA approximately 1,730 km which is covered through can also fill the gaps in stakeholder engagement for 610 MTC designated routes apart from the 54 km strengthening MMI. Engaging informal paratransit of operational metro and 108 km of suburban rail operators to transition them into organized public and MRTS networks. All these systems operate as an transport is one example of this. Such engagement independent public transport services with limited is currently lacking given the mandate of existing coordination in network design. At the same time, agencies to either regulate or deliver services, but the volume and patterns of travel demand have been not to organize private operators. Globally, transport evolving rapidly due to the growth in population, the authorities such as Transmilenio in Bogota, Colombia emergence of new demand centers, and the reshaping and the Executive Council of Urban Transport in Dakar of residential and job locations due to the evolution of (CETUD) in Senegal have successfully engaged informal the metro system. 82 Bus network redesign BOX 3.2: MOVES TO RE-ORIENT BUS Bus network redesigns play a crucial role in adapting NETWORKS IN RESPONSE TO CHANGING to evolving travel patterns and optimizing public DEMAND PATTERNS transport services. Metro rail systems generally expand over several years and reshape the travel patterns The common theme observed across the in cities by attracting jobs and residences to locate following examples is the endeavor to make closer to them. Bus networks, on the other hand, offer the bus network simpler, more frequent, and the flexibility to respond to emerging travel patterns. demand-oriented, which are principles that Bus route rationalization typically involves adding can be applied in Chennai. While London has new services and realigning existing ones to meet the adopted a continuous approach for seeking demand optimally. Several cities around the world passenger feedback for network redesign every have reoriented their networks in response to changing year, several other initiatives such as Victoria’s Bus travel demand patterns, particularly after the COVID-19 Plan in Australia,2 the Better Bus program of the pandemic (Box 3.2). Washington metropolitan area,3 the Bus Connects program of Dublin, Ireland,4 and new public The bus route network and service schedules in Chennai transport network of Auckland, New Zealand5 have remained relatively static over the years and have have undertaken one-off overhauls of the entire not evolved adequately to meet the ever-changing bus network. While these bus network redesign travel demand patterns in the city led by the expanding activities can potentially be difficult to implement metro rail system as well as the natural growth of the given the public memory associated with existing city. Financial constraints have long hindered MTC’s networks leading to inertia to adapt to a newer ability to expand its services through fleet augmentation. network these cities have actively consulted the However, GoTN has recently approved the MTC Business citizens for identifying an improved network that Plan and a PTSC securing financial support for its service TOC maximizes benefits for the population which expansion in lieu of improving performance efficiency. outweigh the marginal disbenefit caused to some users. BOX 3.1: SINGAPORE’S YISHUN INTEGRATED Sources: TRANSPORT HUB 1 Transport for London (2023). TfL sets out further new proposals for more than 400,000km increase in buses services in outer In Singapore, the Yishun Integrated Transport Hub London. TfL 2 Engage Victoria (2023). Victoria’s Bus Network Reform | Engage is a leading example of designing interchange Victoria, State Government of Victoria. facilities and making travel convenient for 3 Better Bus Story (2023). Better Bus Story | WMATA, Washington Metropolitan Area Transport Authority. riders. Situated in a town center, the hub serves 4 Busconnects (2023). Dublin network redesign, National residential areas around Yishun and Khatib. It is Transport Authority, Ireland. 5 Auckland Transport (2018). New Public transport network, an air-conditioned bus interchange in Singapore, Auckland Transport. integrated with a shopping center and residential condominium. Connected to the Yishun MRT (mass rapid transit) station via an underpass, The proposed plan for expanding MTC’s fleet provides an it features amenities like sports centers and opportunity to evaluate the performance of the existing polyclinics. Thus, it not only acts as a facility for the bus network in meeting the emerging travel needs of transfer of modes but also generates more travel Chennai’s residents and establishing processes to evolve demand through transit by creating opportunities the network to provide demand-oriented services. for engaging in activities near the station. The hub In this context, CUMTA is initiating a bus route network boasts the integration of public transportation redesign exercise that will undertake the following from four different service providers with four activities for proposing a revised bus network layout that alighting and eight boarding berths, prioritizing serves passenger needs more efficiently: commuter convenience. Sources: i) Developing a framework for evaluating MTC’s 1. Yishun Bus Interchange, Land Transport Guru (2019). current route network performance considering 83 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 3.3: CONCEPTUAL DESIGN OF INTERCHANGE FACILITIES AT KILAMBAKKAM Source: CUMTA. various quantitative and qualitative metrics that also serve as a guide and principle for the network evaluate network coverage, accessibility to activities, design and stakeholder engagement in the future. TOC transfers across the network, network redundancies, iii) Proposing a stakeholder engagement approach service hours, and customer satisfaction, along with for effectively communicating and seeking feedback other necessary indicators. on the strategies and incorporating valid feedback ii) Preparing a network re-development concept from user groups, crew operating buses, and others. and strategy that will balance passenger needs for iv) Reviewing the depot infrastructure’s capacity increasing accessibility, frequency, and reliability of and location requirements for meeting MTC’s buses with the constraints of the operator (MTC) in redesigned and expanded bus fleet size and terms of fleet size, depot capacity, crew availability, identifying sites/routes across CMA. and other financial considerations through the v) Evolving a business intelligence framework for following approach: assessing the performance of the bus network a. A preliminary demand assessment of the share of periodically for identifying underperforming the bus fleet expansion to be allocated for (a) increase routes and reallocating them to other routes. This in frequency, (b) additional routes in existing service framework will inform the use of available data areas, and (c) expanding the bus service coverage in sources like the static and real-time general transit CMA (new and underserved developments). feed specifications (GTFS) feed, ticketing data, as well as other data sources on crew productivity and b. An overall network design concept and strategy safety for monitoring the performance efficiency of that will propose a hierarchy of bus routes (trunk the bus system. routes/core network, complementary routes, service routes, feeder routes) according to their market vi) Proposing a route-network evolution plan fit. Cities like Seoul and Curitiba have taken up covering the fleet deployment approach over the extensive bus network redesign work and combined coming decade, including the buses and routes to it with color coding buses to indicate if it is a trunk, be allocated in each hierarchy of the bus system, feeder, or neighborhood service, thereby helping their peak and off-peak services, and incorporating users identify buses more easily. This approach will flexibility needed for charging electric buses (bus). 84 The approach being adopted by Chennai provides an demand patterns, and financial performance. While operations’ integration framework through bus network all commercial vehicle permits require the vehicle to redesign that will strengthen the core services provided share live Global Positioning System (GPS) feed with the by MTC as a main-haul public transport system as well government for monitoring customer safety, lack of data as introduce feeder services to rail-based mass-transit standardization and analytical capabilities have led to a systems within one comprehensive network strategy. limited understanding of their service characteristics. As a result, it is difficult to ascertain their specific role in the Paratransit planning and regulation mobility ecosystem in the city, which makes it even more challenging for developing comprehensive regulations Paratransit services in Chennai fill the gaps left by to formalize their operations. formal public transport systems and are particularly popular for short-distance travel. Paratransit CUMTA plans to adopt the following approach to plan or IPT services are privately-operated commercial for paratransit services to meet Chennai’s mobility transportation services that use various vehicles such as needs effectively while also addressing the regulatory cycle-rickshaws, taxis, auto-rickshaws (both three-seater challenges of managing paratransit services and and six-seater three-wheeler (3Wh) variants), Tata Magics, improving the regulatory ecosystem for their operations: tempos, vans, mini-buses, etc. In Chennai, shared auto- i) Paratransit service network mapping across rickshaw-based paratransit services offer high-frequency CMA. This mapping exercise will identify key routes, shuttle services along high-demand corridors that are service characteristics (such as frequency, service unserved or underserved by formal public transport span and capacity, peak and off-peak hours), systems. These services are more expensive than MTC important terminals and nodes for multimodal buses but cheaper than point-to-point services such as connectivity, and permitted/non-permitted halting/ app-based on-demand three-wheelers and taxis and the waiting points to allow CUMTA to assess the level of traditional three-wheeler services hailed on the street. complementarity of these services with other public TOC They are, therefore, a popular mode of transportation for transport modes. short distances in Chennai, especially among women. ii) Paratransit operators’ surveys to gather Paratransit services in Chennai, while meeting information on their operational and financial essential transportation needs, present significant performance including ownership patterns, governance challenges. While these paratransit services financing sources, vehicle types (including fuel) fulfil the demand for responsive transportation and deter and capacities, daily-km of operations, and type of increased reliance on personal two-wheelers and cars, operation, that is, shared, point to point, or mixed, they also pose significant governance challenges. These operating costs, and revenue trends. challenges include competition with city bus services, unauthorized parking, absence of service obligations, iii) Plan for re-organizing the existing paratransit unregulated tariff practices, and potential safety and services to make them more commuter centric, security risks for passengers, particularly women and integrated, and efficient with improved conditions individuals from marginalized genders. The government for operators, with specific emphasis on women issues only contract carriage permits to these vehicles commuters and persons with disabilities. to provide point to point services, but they operate as iv) Projections of the number of paratransit vehicles stage carriage or public transport like shared services in the future across CMA, over a 10- to 15-year making their operations illegal. They continue operating horizon based on travel demand estimation and illegally due to a soft regulatory regime that allows them the expected evolution of public transit networks to operate given their vital need to meet travel demands in Chennai with the addition of bus fleets and the in the absence of adequate public transport services. expansion of Chennai metro. The absence of baseline data on paratransit services v) Improvement in women’s participation in the complicates efforts to regulate and integrate them paratransit sector through skilling as well as into the urban mobility ecosystem. There’s a lack of policy, regulatory, infrastructure, and financing any baseline data on their operational characteristics like reforms necessary for reducing barriers to women’s corridors of operation, typical service frequency, travel participation in the IPT sector. 85 CHENNAI’S URBAN MOBILITY TRANSFORMATION same platform, a MaaS offering can be provided to the The World Bank has supported the base users which allows them to make door to door journeys. Such MaaS systems, with a strong public transport work necessary for building such an open system at its core, have demonstrated attracting mode data platform for Chennai by creating a shift towards public transport.22 Chennai has initiated a baseline GTFS for MTC, CMRL, and MRTS series of steps towards technological integration across modes for achieving these objectives. schedules. Real-time journey planning vi) Proposal for alternative regulatory arrangements information for paratransit governance such as area-licensing Open access to integrated journey planning can method, service obligations, and compensation enhance user convenience by making transport mechanisms in areas with limited demand and public information widely available. Enabling open access to transport levels based on national and international integrated journey planning will allow the information best practices for paratransit governance. to be available on multiple channels, thereby providing vii) Consensus building with various stakeholder the best opportunity for it to be available to the users. groups such as the Transport Commissionerate and This requires each public transport agency to develop GoTN’s Transport Department as well as with the its service schedule information in standardized and paratransit operators’ unions for evolving a mutually globally accepted data standards such as the general agreeable solution for formalizing paratransit transit feed specification (GTFS) format and share it on services and enhancing their service quality for an open data platform. The World Bank has supported users. the base work necessary for building such an open data platform for Chennai by creating a baseline GTFS for MTC, CUMTA will act as the necessary institutional anchor for TOC CMRL, and MRTS schedules. These GTFS files need to be implementing the plans and strategies recommended updated to reflect the static schedules being operated above for delivering integrated, efficient, commuter- currently and a real-time GTFS to reflect instantaneous centric, and inclusive paratransit services. position of vehicles needs to be developed afresh. Integrating informal transit services into formal Real-time updates for bus schedules necessitate a public transport systems has proven successful in robust Automatic Vehicle Location System (AVLS) to various global cities, offering valuable lessons for Chennai. These efforts (Box 3.3) have provided valuable takeaways for cities like Chennai, which have similar BOX 3.3: INTEGRATING INFORMAL TRANSIT informal transit services. SERVICES: INTERNATIONAL EXAMPLES The metropolitan area of Jakarta is home to Technological integration for journey 32 million people. However, the city has been planning, ticketing, and MaaS successful in integrating informal microbus Integrating public transport information and services, known as angkots, into its formal public ticketing on a single platform can enhance transport system called Transjakarta as part of multimodality and ease of use in Chennai. Public a comprehensive reform and the same is also transport users in Chennai currently use separate static being undertaken in Manila, Philippines under systems for information and ticketing in the bus, metro, the Public Utility Vehicle Modernization Program and suburban rail services. Except for the metro which (PUVMP).2 allows smart cards for payment, most of the ticketing Sources: is cash based. Providing real-time public transport 1 ITDP (2021). Lessons Learned from Jakarta’s Journey to Integrated and Resilient Transport Systems, Institute for information and digital ticketing across all modes on Transportation & Development Policy (ITDP). a single platform will improve the ease of use and 2 LTFRB (2024) Public Utility Vehicle Modernization Program (PUVMP) Land Transport Franchising and Regulatory Board multimodality in the system significantly. By allowing (LTFRB), Department of Transportation, Government of Manila. on-demand transport services like Ola and Uber on the 86 ensure accurate journey planning information. While system with its banking partner State Bank of India, the metro and suburban rail services follow relatively complying with the National Common Mobility Card similar schedules and offer predictable services, bus (NCMC) guidelines issued by the Government of services have more dynamically updated schedules India. However, these cards weren’t accepted in the as well as real-time disruptions to schedules based on bus and suburban rail systems until recently as they varying traffic conditions. Therefore, a robust Automatic do not have the back end financial architecture to Vehicle Location System (AVLS) is needed for updating accept open loop card-based payments. MTC has GTFS in real time and providing accurate information now entered a Memorandum of Understanding with to users. MTC, with financial assistance from the Japan State Bank of India to provide electronic ticketing Infrastructure Cooperation Agency (JICA), is in the machines (ETMs) and the back-end software and process of deploying an AVLS system that can provide revenue reconciliation support to accept open loop real-time journey planning information in its own mobile card-based payments. The program was rolled out applications as well as through open data platforms. across MTC in 2024. Even though the infrastructure creation within the suburban rail system may take CUMTA’s Digital Chennai initiative aims to enhance longer, accepting the same card for payments user experience by integrating static and real- across bus and metro routes will improve user time GTFS data on an open data platform. CUMTA convenience significantly. Building on this, Chennai is planning to include an open data platform in its can potentially work on Account Based Ticketing planned Digital Chennai initiative wherein static and (ABT), which allows authorities to automatically cap real-time GTFS data across public transport modes will payments on a daily/ weekly/ monthly basis after be made available to various journey planning service reaching a pre-determined threshold and allowing providers such as Google maps and Moovit. The open users to not worry about purchasing the right fare data platform will provide a change in user experience products like daily-pass and monthly pass. London’s given that passenger information across modes will now Oyster card and Hong Kong’s Octopus card are TOC be available on a single platform instead of separate bus pioneering examples of integrated mobility, linking and metro journey planners being used currently. various public transportation services with a single smart card. This integration simplifies fare payment Integrated digital ticketing through and enhances the convenience of using multiple smart cards and mobile tickets modes of transport, making it a model for other cities to follow. Digitalization of ticketing enhances operator efficiency and user convenience through integrated ii) Mobile (smart phone) based integrated ticketing systems. Digitalization of ticketing reduces the cost of requires generating a quick response (QR) code ticket issuance, revenue reconciliation, and payment in a mobile application which can be validated settlement for the operators while improving user by the public transport system. Even here, CMRL convenience through integrated ticketing, improved fare has implemented its own mobile ticketing system products, and interoperability of fare.23 Integrated digital while MTC is piloting its own systems separately. ticketing across public transport modes is typically CUMTA has initiated the procurement25 of a system provided either through smart cards or mobile ticketing integrator who will develop a mobile application solutions. The technical, financial, and commercial that will provide integrated journey planning and dimensions of integrated digital ticketing systems as well mobile ticketing across bus, metro, and suburban as the alternative technology pathways available and the rail systems. The system is being developed with an approach for developing them are covered extensively open architecture to allow third parties to also issue in literature (NCMC, open loop cards, mobile ticketing, public transport tickets thereby improving access to etc.).24 This section focuses on the ongoing initiatives for mobile ticketing for users. establishing these systems in Chennai. Mobility as a Service (MaaS) platform i) Smart card based integrated ticketing: CMRL for Chennai was the first agency to issue smart cards in Chennai in the form of closed loop cards which work only MaaS consolidates various transport services into inside its system. It later migrated to an open loop a single digital platform, simplifying multimodal 87 CHENNAI’S URBAN MOBILITY TRANSFORMATION travel for users. MaaS is the integration of, and access encouraging greater public transit usage and addressing to, different transport services (such as public transport, challenges faced by residents and employees. Chennai ride-sharing, car-sharing, bike-sharing, scooter-sharing, is taking steps to integrate paratransit services into its taxi, car rental, ride-hailing and so on) in one single transport system. digital mobility offer.26 This transfers the burden of Ample evidence exists globally to establish the integrating multimodal travel from the traveler to the positive impacts likely to be generated by these MaaS provider, thus minimizing inefficiencies and initiatives. This has also facilitated improved coordination additional costs for users having to navigate a myriad of and trust between stakeholders, leading to collaborative fragmented transport services. In other words, this can efforts for creating sustainable business models and be viewed as an integrated public transport ticketing participating in transport bidding processes. Initiatives system explained above with the addition of on-demand for promoting MaaS are expected to lead to a seamless commercial transport services like paratransit and taxis. integration of various transport modes, reducing traffic While MaaS platforms have been piloted across the congestion, lowering emissions, enhancing accessibility European Union over the last 5-7 years, no Indian city has and equity, stimulating economic growth, and optimizing yet implemented a MaaS solution. To achieve this, the transport resources. public sector must create the right enabling environment for information exchange and a level playing field for all modes and operators. A MaaS governance model must be outcomes- and goals-oriented so that policies such as TAKEAWAYS FOR OTHER CITIES pricing and space allocation can apply across modes but Cities can learn valuable insights from initiatives like incentivize the most efficient and sustainable options. those taken by GoTN in Chennai and other cities for This will require the public sector to act as a facilitator enhancing multimodal transportation: and will rely on the development of analytical capacity, flexibility to try new models, and willingness to reform • Establishing cross-institutional authorities: TOC the regulatory environment. Creating centralized bodies like the Chennai Unified Metropolitan Transport Authority (CUMTA) CUMTA’s digital ticketing platform aims to evolve into streamlines decision-making and coordination a comprehensive MaaS solution, reducing reliance among various transportation agencies, as also seen on personal vehicles. The ongoing digital ticketing in cities like London and Barcelona. platform procurement by CUMTA envisions building the integrated public transport ticketing platform into • Prioritizing user-centric journeys: Simplifying a comprehensive MaaS solution for Chennai offering travel experiences through single-ticketing systems users as many alternatives as possible to personal and integrated physical infrastructure, inspired vehicle usage. Integrated journey planning, public by London’s Oyster card and Singapore’s walkway transport ticketing, and MaaS platforms for Chennai networks, encourages modal shifts away from private are at a development stage and may take until early vehicles. 2025 to stabilize. However, the systematic approach to • Fostering data sharing: Sharing data among developing these systems is applicable even to other governments and private entities, as seen in Chennai’s cities trying to foster such technological integration for plans to adopt standardized data formats like GTFS, reducing personal vehicle usage (Boxes 3.4 and 3.5). enables informed decision-making and improves operational efficiency, drawing takeaways from London’s unified APIs and Finland’s comprehensive EXPECTED IMPACT data integration. In Chennai, initiatives for MMI such as the bus network • Leveraging informal paratransit: Integrating redesign, aim to realign transportation networks informal paratransit services into formal with changing demographics and travel patterns. By transportation networks, as demonstrated in Jakarta, rationalizing bus stop spacing, optimizing routes, and enhances accessibility and last-mile connectivity, enhancing reliability, these initiatives seek to provide emphasizing strategic planning, stakeholder faster, more efficient, and reliable bus services, ultimately engagement, and infrastructure upgrades. 88 BOX 3.4: FINLAND’S MAAS IMPLEMENTATION BOX 3.5: LONDON’S MAAS IMPLEMENTATION Finland's pioneering MaaS implementation offers London's MaaS implementation leverages valuable insights for reducing traffic congestion unified APIs, open data policies, and established infrastructure to enhance multimodal transport. and carbon emissions. Outside India, Finland In London, the implementation of MaaS has been has been a pioneer in implementing MaaS. The marked by the use of Transport for London (TfL), Finnish government enacted the Future Mobility the city's transport authority, which has played Finland initiative which has helped tackle issues a crucial role with its strong open data policies, like traffic congestion and carbon emissions, particularly for scheduled transport data such as which are also prevalent in many developing routes and schedules. While there is an identified countries. Finland's MaaS’ success is due to strong need for further openness, particularly regarding booking APIs, London's infrastructure supports government support, strategic partnerships MaaS with established smart ticketing services with transport operators and technology firms, and a higher modal split, reflecting greater and a commitment to digital connectivity and citizen familiarity and willingness to use diverse transparency. By offering a convenient and modes of transport. Overall, London's MaaS sustainable alternative to private vehicle use, implementation benefits from a combination Finland's MaaS model provides valuable insights of strategic data sharing, policy support, and for other countries. infrastructure readiness. Sources: Sources: 1. Kamargianni, M., and R. Goulding (November 2018). The 1. Modern Diplomacy (2019). How Finland Can Serve as an mobility as a service maturity index: Preparing the cities for the Example for Mobility as a Service Adoption in Indonesia. mobility as a service era. Transport Research Arena 7. Zenodo. TOC CONCLUSION and interagency coordination for achieving a city’s long- term sustainable mobility goals. Chennai’s approach This note established the various dimensions of MMI of CUMTA as the lead agency coordinating across based on international experience and the initial government agencies for advancing MMI provides steps and plans in Chennai along these dimensions. a replicable template for other cities to adopt. The While the MMI’s dimensions are common across cities, actual implementation and realization of the benefits exact solutions may vary across cities based on their of MMI in the form of increased public transport share local contexts. Establishing these systems requires a is a work in progress and will require follow through on systematic effort involving detailed technical analyses implementation of the initiatives described in the note. 89 CHENNAI’S URBAN MOBILITY TRANSFORMATION Endnotes 1 Ravi Gadepalli is a Consultant at the World Bank. 2 Jai Malik is a Young Professional at the World Bank 3 Verma, Ashish, Harsh Vajjarapu, ABD Harihara Subramanian, Gayathri (2021). Evolution of Urban Transportation Policies in India: A Review and Analysis. Transportation in Developing Economies. 7. 10.1007/s40890-021-00136-1. 4 The World Bank (2023). The Path Less Travelled: Scaling Up Active Mobility to Capture Economic and Climate Benefits. Mobility and Transport Connectivity. Series. © Washington, DC: World Bank. 5 Grotenhuis, Jan-Willem, Bart W. Wiegmans and Piet Rietveld (2007). The desired quality of integrated multimodal travel information in public transport: Customer needs for time and effort savings, Transport Policy, Volume 14, Issue 1, Pages 27-38, ISSN 0967-070X. 6 Poliak, Miloš & Mrnikova, Michaela & Jaskiewicz, Marek & Jurecki, Rafał & Kaciakova, Barbora (2017). Public Transport Integration. Communications - Scientific Letters of the University of Zilina. 19. 127-132. 10.26552/com.C.2017.2.127-132. 7 Arora, Shivam (2019). Evaluating the failing transit ridership of the Delhi Metro. 10.13140/RG.2.2.34982.65603. 8 Krygsman, Stephan and Martin Dijst (2001). Multimodal Trips in the Netherlands: Microlevel Individual Attributes and Residential Context. Transportation Research Record. 1753. 11-19. 10.3141/1753-02. 9 Chowdhury, Subeh, Yuval Hadas, and Vicente Gonzalez, and Bart Schot (2018). Public transport users' and policy makers' perceptions of integrated public transport systems. Transport Policy. 61. 75-83. 10.1016/j.tranpol.2017.10.001. 10 Smart Cities Dive (2017). Blog. Christopher C Berggren. Urban Transportation: Stockholm’s Marvelous Mix of Transit Modes. 11 Faster Capital (2024). Presentation. Government Transport Tech Revolutionizing Public Transportation: How Government Transport Tech is Driving Innovation. 12 Figures in this paragraph are taken from the Comprehensive Mobility Plan, Interim Report, CUMTA, 2024. 13 Covers GCC, CMDA, CMRL, MTC, Railways, and other ULBs in CMA. It does not cover expenditure for providing private (cars, two wheelers) or shared mobility (rickshaw, shared rides) services not offered by public transport companies. 14 Overview of Expenditure, Funding and Financing for Urban Transport in Chennai, World Bank Analysis (2020). Internal document. 15 Draft Comprehensive Mobility Plan (CMP) of Chennai Metropolitan Area (2019). 16 Draft CMP (2024). Chennai Master Plan Visioning exercise, Chennai-Climate Action plan, Road safety project. Document not TOC available publicly. 17 The World Bank (2023). The Path Less Travelled: Scaling Up Active Mobility to Capture Economic and Climate Benefits. Mobility and Transport Connectivity Series. © Washington DC: The World Bank.. 18 Ollivier, Gerald,   Ashish Ghate,   Bankim Kaira, and Prerna Mehta (2021).  Transit-Oriented Development Implementation Resources and Tools, 2nd Edition. © The World Bank, Washington DC; Pulido, Daniel, Georges Darido, Ramon MunozRaskin, and Joanna Moody (eds) (2018). The Urban Rail Development Handbook. Washington DC: The World Bank (Chapters 12,13,16).. 19 Transport for London (2024). 20 OECD/ITF (2018). Frederic Lloveras Minguell. Discussion paper. Public Transport Governance in Greater Barcelona.. 21 Translink (2024). 22 The World Bank (2022). Blog. Joanna Moody; Bianca Bianchi Alves. Mobility-as-a-Service (MaaS) can help developing cities make the most of complex urban transport systems—if they implement it right. 23 World Bank. 2019. Blog. Leonardo Canon Rubiano & Georges Darido. The ticket to a better ride: How can Automated Fare Collection improve urban transport? 24 MoHUA, NPCI, IUT & ITDP (2023). White paper. NCMC - Tap & Transit, Pan India with RuPay National Common Mobility Card. 25 CUMTA. 2024. RFP NO. – CUMTA/9112/TICKETING/2024, Dt. 01.03.2024. Selection of a Service Provider to Develop and Operate a Mobile Application for Multi-Modal Journey Planner & QR based Unified Ticketing in Chennai Metropolitan Area. 26 UITP definition of Mobility as a Service 90 Photo credit: CUMTA 4: DESIGNING SUSTAINABLE COMPLETE STREETS IN INDIAN CITIES Jaishree Jindel1, Dr GS Sameeran,2 BV Babu,3 Shyam Srinivasan, Gerald Ollivier, and Kasinath Anbu4 These trends have led to concerns about road safety, INTRODUCTION social inclusion, and sustainability. For instance, wide roads originally designed to service longer distance trips Internationally, city and street designs are evolving and passing through low density developments have to adapt to urbanization and the changing become part of the city and are used by diverse road ecological balance. Dense urban structures and TOC users and pedestrians, increasing road safety concerns; sustainable transport options play a key role in future 50 percent of all road safety fatalities are pedestrians, urban development. Thus, cities around the world cyclists, or motorcyclists, and 93 percent occur in low- are embracing the concept of Complete Streets for and middle-income countries. Women are particularly improving mobility, safety, and urban environment, vulnerable as they walk more, form 60 percent of enhancing livability and mitigating climate change. This pedestrian casualties, and use more public transport.5 is in line with the famous inverted ‘mobility pyramid’ for As cities continue evolving, ensuring safe mobility and prioritizing sustainable mobility, which gives priority managing interactions amongst the hierarchy of roads to the pedestrians, then to bicycles, followed by public and streets, adjacent land uses and contexts is essential. transport, shared transport and finally to private vehicles (Figure 4.1). This note documents the application of the Complete Streets are designed to enable seamless, Complete Streets approach by GCC on selected streets in safe, and convenient commute and access for all Chennai. Chennai’s experience offers several takeaways regardless of age, gender, and abilities. The concept which may be useful for other cities in developing aims to achieve inclusive, compact cities through the countries, looking at transforming their streets and rejuvenation of streets and neighborhoods, linking the enhancing urban environments. infrastructure design with the function of the streets, surrounding land use and densities, and enhancing BACKGROUND safety and climate resilience. The design principles extend to both above ground and underground With rapid urbanization, cities and street designs infrastructure. Above-ground, the focus is on promoting need to adapt to become safe, inclusive, livable, and non-motorized modes through equitable distribution of climate resilient. Cities have grown to accommodate space, speed management, improving access to public changed demographics, lifestyles, and land uses as transit modes, multimodal integration, and enhancing a response to managing increasing sprawls which, road safety. Underground, the focus is on ensuring combined with inadequacies in public transport, increased availability of streets and shifting utilities walking, and cycling facilities have driven motorization. underground in a planned and integrated manner for 91 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 4.1: MOBILITY PYRAMID seamless movement and enhanced livability in the neighborhood. A typical Complete Streets cross section is depicted in Figure 4.2. MOBILITY PYRAMID Global evidence suggests that Complete Streets WALKING approaches yield a range of direct and indirect benefits. Complete Streets help promote an equitable CYCLING & MICROMOBILITY distribution of public space, encourage modal shifts to public and non-motorized transport, and reduce use of personal motorized vehicles. Complete Streets PUBLIC TRANSPORT support calming the neighborhood traffic by promoting compact development and shifting short trips to active mobility modes. They also enhance street vitality and SHARED CARS & SHARED RIDE safety perceptions by increasing the number of eyes on the streets, improve air quality, and economic activity. Most importantly, research6 shows that Complete Street PRIVATE CARS designs result in fewer crashes, injuries, and deaths of pedestrians and cyclists especially women. Complete Streets often incorporate nature-based solutions such as PLANE bio swales and permeable pavements for reducing urban heat islands, absorbing rainwater, mitigating climate Source: SHARE-North change impacts, and promoting health and equity. The FIGURE 4.2: TYPICAL COMPLETE STREETS CROSS SECTION TOC Source: DPRs for Mega Street, GCC. 92 BOX 4.1: INTERNATIONAL EXPERIENCE WITH COMPLETE STREETS POLICIES AND GUIDELINES To further the Complete Streets approaches, cities and several international agencies like Austin City Hall, National Association of City Transportation Officials (NACTO), have formulated policies and design guidelines. Austin City’s Streets Policy states: ‘A Complete Streets approach provides a unique opportunity to thoughtfully integrate and advance multiple objectives for our community, now and in the future, while delivering maximum benefits from both public and private investments.’ NACTO’s design guidelines have recommendations on street elements like lane width, pavement, curbs, speed management elements, bus priority elements, street furniture, nature-based stormwater management elements for application and categorizes them as per street hierarchy, usage, and development challenge. Chicago and Washington cities have taken the guidelines further by incorporating performance measures like evaluation and benchmarking tools. For instance, Washington city tracks revitalization on under-invested corridors based on five main goals: economic health, safe and multimodal transportation, community building, historical assets, and sustainable design. Chicago’s Complete Streets Manual (2013) moves away from a vehicle throughput focused level of service (LOS) paradigm and recommends using no minimum vehicle LOS and instead prioritizes pedestrian LOS, emphasizing on no pedestrian delays of more than 60 seconds. Sources: 1. Urban Street Design Guide, National Association of City Transportation Officials, date unspecified 2. Complete Streets, Washington State Department of Transportation (2022). https://wsdot.wa.gov/construction-planning/complete-streets 3. Chicago Complete Streets Design Guidelines, Department of Transportation (2013). net effect is a better urban environment and enhanced for motorized traffic, pedestrians and bicycles, and health and quality of life. For instance, living on a street reclaiming motorways for walking and cycling were TOC with 10 more trees can increase health perceptions to implemented. Amsterdam and many other cities the same degree as USD 10,000 more in annual income in Netherlands are now known for the quality of or as being 7 years younger.7 their streets and neighborhoods for walking and cycling, façade gardens, and nature-based solutions Complete Streets approaches are often supported by integrated in street design for improved climate policies and street design guidelines. Box 4.1 presents resilience (Figure 4.3), Amsterdam recently reduced selected international examples of such guidelines. the traffic speeds to 30 kmph for 80 percent of the city Cities across the world such as Amsterdam, Tokyo, roads and experts anticipate 20 to 30 percent decrease Tianjin, and Lancaster, California have seen benefits in severe accidents along with noise pollution due to from Complete Streets implementation. Research traffic being reduced by 50 percent.10   suggests that designing a street for walking and cycling • Tokyo, Japan. Japanese cities like Tokyo adopted an (wide footpaths, pedestrian refuge, traffic-calming measures, and treatment for people with disabilities) High-res images required alternative approach of separating cars and people can reduce pedestrian risks by as much as 28 percent.8 For example, in Long Beach, California, the focus was on FIGURE 4.3: A STREET IN AMSTERDAM providing mobility through all modes of transportation and encouraging multimodal travel. One year after construction, bicycle volumes increased 33 percent and pedestrian activity also increased by about 13 percent.9 Details from these cities are: • Amsterdam, Netherlands. Growing economy and https:// increased vehicular traffic in the 1970s led to ~3,300 road crash casualties including 400 children in 04/ams 1971 and led to intense public protests. By the mid- improve 1980s, interventions for promoting people-friendly for Ams streets such as car free Sundays, segregated lanes Source: https://shorturl.at/CeF88 https://www.andrewalexanderprice.com/blog2019100 93 for Amsterdam CHENNAI’S URBAN MOBILITY TRANSFORMATION https://www.andrewalexanderprice.com/blog20191002.php - for Tokyo FIGURE 4.4: A STREET IN TOKYO, JAPAN FIGURE 4.5: A STREET IN CA, USA Source - https://shorturl.at/KtBxR Source: https://shorturl.at/Lbwf1 on wide streets into lanes and developed narrow • Lancaster, California United States. In 2010 the city streets as shared streets with less than 30 km per hour invested US$ 11.5 million to revamp its car-oriented speeds for vehicles.11 These narrow neighborhood https://www.cnu.org/publicsquar Lancaster Boulevard design in central downtown to a streets were developed on a human scale with little lively, pedestrian-friendly road (Figure 4.5). According or no parking spaces such that car users found it streetscape-spurs-downtown-turn to estimates by the California Redevelopment uncomfortable and inefficient to drive through them Association, within four years the street attracted US$ and the streets were therefore friendly for pedestrians 130 million in private investments and generated US$ and cyclists. The no-parking policy indirectly improves 273 million in economic output. During 2007-2012, street safety by nudging people away from purchasing collisions reduced by 33 percent and injuries by 67 cars that might otherwise be involved in crashes, and percent, tax revenues from the street doubled with TOC by increasing visibility on streets. Along with this, the opening of 48 new businesses and creation of 802 integrating walking and cycling with metro and high- permanent jobs plus 1,100 construction jobs.13 speed rail networks has also helped Japan drastically reduce road accidents since the 1960s12 (Figure 4.4). APPROACH IN CHENNAI • Tianjin, People’s Republic of China. Tianjin, the 2024 Sustainable Transport Award winner, stands out as a transformative initiative focused on implementing Relevance in the Indian context Complete Streets at scale in a megacity, contrasting especially in Chennai with the common trend of limited progress in urban With increasing urbanization, the burden of walking and biking infrastructure. Once a leading motorized vehicles on roads and associated biking city, Tianjin’s shift towards car prioritization concerns of road safety and emissions are becoming led to a decline in walking and biking conditions. The challenging for Indian cities. Cities need to plan Urban Transport Improvement Project, with a total for efficient and safe mobility for newer areas being cost of US$145 million, including a US$100 million developed and the older areas undergoing alteration World Bank loan, marks the largest investment in and gentrification. Complete Streets approaches with the improving streets for non-motorized transport in the range of benefits described above are therefore highly World Bank’s history. Tianjin expanded a program relevant in the Indian context. The subsequent sections of Complete Streets across six urban core districts, of this note discuss the approach taken by Chennai, and enhancing 132 km of roads and improving accessibility on how Complete Streets approaches are being adopted around 96 metro stations. This led to 175,000 and to change the status quo. 261,000 additional daily trips by metro and walking and cycling respectively (2022), and an overall 34 Chennai is working on reducing road safety concerns percent bike mode share (2020). Economic vitality and Complete Streets approaches can be helpful. The increased by 18 percent in the improved streets as major road network in Chennai city is 2,780 km14 long compared to 3 percent in non-improved streets. with a ring-radial pattern including four major national 94 highways (originating in the core city). These witnessed faced at least one flood every 10 years, and according to 7,580 crashes (2018) which reduced to 3,452 (2022). historic data this interval seems to be narrowing. Since Between 2012 and 2022, Chennai had an average of 1,150 2000, the city experienced major floods in 2005, 2015, road crash fatalities annually, second only to Delhi.15 Many and 2023. Increased paved road surface, reduced soak roads (for example, the Grand Southern Trunk Road and zones clubbed with frequent extreme weather events the Inner Ring Road) which were once peripheral to the have aggravated the problem. Integrated utility and city have now become part of the core city and function infrastructure designing of the streets with concepts of more like urban arterial roads. These were constructed material circularity, blue-green infrastructure, soak zones based on highway design codes, and now need to evolve or nature-based solutions have major potential. Chennai’s with their new functions. Pedestrians are increasingly urban environment and livability also face high concerns having to access economic and social opportunities due to approximately 3,000 metric tons of debris per day along or across these roads, and high traffic volumes and from construction activities being illegally dumped in speeds with limited pedestrian friendly infrastructure public spaces. Promoting material circularity, life cycle (such as footpaths, at grade crossings), have resulted in cost assessments, and sustainable, green procurement acute road safety issues; 65 percent of these roads pose as part of Complete Streets, will help lower the carbon a high crash risk for pedestrians.16 Pedestrians also make footprint and further the city’s re-use/milling policies. up a higher share of fatalities (34 percent) along these Bengaluru has incorporated material re-use guidelines in roads compared to the average across CMA (33 percent). the building byelaws and design guidelines. Many cities (Refer to Technical Note 5 on ‘Road Safety’ for more such as Paris, Singapore, Rotterdam, and New Orleans details). have transformed existing open/vacant spaces such as city parks, playgrounds and post-industrial zones into Local roads in Chennai city (for example, Monegar water-prudent landscapes using green interventions Choultry road and Mint Street) are centers of cultural (Box 4.2).19 and commercial activity and are commonly used by TOC pedestrians and cyclists. However, these roads have Complex institutional arrangements are in place limited NMT infrastructure (footpaths, cycle lanes, and for streets and associated works in Chennai. GCC is pedestrian refuge), resulting in users (particularly with responsible for major arterial roads barring highways more than 5 km long trip length) shifting to vehicular (state and national), collector roads, and neighborhood modes. While road crash fatalities are lower relative streets totaling over 370 km along with stormwater to the major arterial roads,17 non-fatal road crashes systems, streetlights, city parks, and waste management are common and mostly involve two-wheelers and within municipal limits (426 sq km and population of pedestrians (45 percent of these roads pose high crash around 7.1 million). The Highways and Minor Ports risks for pedestrians).18 Department, a state level agency is responsible for the design, implementation, and management of highways Public transport coverage, availability, and reliability is even if they are within city limits.  CUMTA is the nodal limited. The daily ridership of Metropolitan Transport agency for planning and delivery of integrated seamless Corporation (MTC) bus services reduced from 4.8 million transport in Chennai. It was established in November per day in 2015-2016 to 3.2 million per day by 2019- 2010, by the Government of Tamil Nadu through a 2020. A World Bank study estimated that in the Chennai Statutory Act and its jurisdiction extends to the whole Metropolitan Area, residents can, on average, access only CMA covering Chennai, Kancheepuram, Tiruvallur, 30 percent of the jobs in 60 minutes by public transport. Chengalpattu, and Ranipet. (Refer to Technical Note 8 This was attributed to uncoordinated growth of the on ‘Strengthening Metropolitan Transport Governance’ public transit network with city sprawls, inconvenient for more details). CMDA is the nodal planning agency first and last mile connectivity, and lack of multimodal for Chennai  responsible for planning, coordinating, integration. (Refer to Technical Note 2 on ‘Augmenting supervising, promoting, and securing the planned Bus Service Delivery’ and Technical Note 3 on ‘Multimodal development of CMA. Two major utility agencies Integration’ for more details). are the Chennai Metropolitan Water Supply and the Chennai is prone to flooding and deploying nature- Sewerage Board (CMWSSB) which is a statutory board based solutions promoted in Complete Streets of GoTN which provides water supply and sewage guidelines can help. In the last 50 years, Chennai has treatment in CMA and the Tamil Nadu Generation and 95 CHENNAI’S URBAN MOBILITY TRANSFORMATION BOX 4.2: INTEGRATED BLUE-GREEN-GREY SOLUTIONS UNDERTAKEN AS PART OF GREEN STREETS PROGRAMS An 11-acre rooftop park in Bangkok’s commercial district directs runoff into a retention system reducing pressure on underground drainage and sewer systems. TOC Benthenheim Water Square in Rotterdam, an example of integrated Green street section in Sheffield with permeable lane surfaces, multi-use blue-green-grey solution, a conventional play and sports planters, and rain gardens to enable stormwater management. areas with permeable surface that doubles as an unconventional stormwater catch basin. The Bishan-Ang Mo Kio Park, Singapore uses blue-green infrastructure for flood control, biodiversity management, microclimate control and adds a high-quality public space asset to the city for recreation and educational use. Source - https://shorturl.at/7rKoA 96 Distribution Corporation Limited20 (TANGEDCO) which is FIGURE 4.6: MAP OF ROUTES WITH FOOTPATH the electrical power generation and distribution public UPGRADES, CHENNAI sector undertaking for the state, including CMA. Chennai’s experience with Complete Streets Recognizing the need for upgrading public spaces and the pedestrian environment, GCC18 has undertaken a range of measures with Complete Streets principles embedded. In 2014, Chennai became the first city in India to adopt an NMT Policy which proposed for GCC to dedicate 60 percent of its transport budget for the development and maintenance of walking and cycling networks in the city. Between 2014 and 2018, GCC established a dedicated Special Projects Department for greater focus on the implementation of NMT projects. Around 80 technical staff were trained on Complete Streets by ITDP in collaboration with Anna University (a local university). Decision makers and engineers also visited Indian and international cities to learn from best practices first-hand. The city has adopted progressive street design guidelines with NMT as priority.21 GCC transformed over 140 km of bus route roads into safe TOC and accessible corridors benefiting at least half-a- million people daily (Figure 4.6). GCC designed NMT Source: GCC. infrastructure for selected neighborhood clusters through the Chennai Street Design Project and created a vibrant pedestrian plaza at Pondy Bazaar in T-Nagar Pondy Bazaar and other street improvement projects, under the Smart Cities Mission. An impact assessment and is playing a vital role in building the capacity of GCC of the plaza in Pondy Bazaar showed that around 15 engineers. percent of the pedestrians accessing the space had The Mega Streets program aligned with Complete shifted from other modes or had been generated by the Streets approaches, aims to rejuvenate streets street improvements, and the economic benefits due and neighborhoods by linking above ground and to increased property rents was 20 percent.22 GCC also underground infrastructure with the function, land developed 17 km of cycle tracks in the city in June 2018 use, and densities along selected road segments. The under the Smart Cities Mission. program aims to achieve transformation in five key areas: The success and experience of the Pondy Bazaar project i. Promoting walkability by doubling the length inspired GCC to scale up the initiative to multiple of uninterrupted footpaths with adequate width neighborhoods and take up a city-wide network and increasing the number of at-grade (signalized) level approach. To do this, GCC is working towards pedestrian crossings, especially close to mass strengthening coordination with other line departments transit nodes. Pedestrian facilities will be universally and utility agencies, holding consultations with the accessible with ramps and tactile paving. Measures public, shopkeepers, vendors, and civil society, and such as lane diet at relevant places, traffic calming building the capacities of its engineers and planners. measures, and clear segregation of pedestrians and The Institute for Transportation and Development Policy vehicle users, enhance road safety. (ITDP) India has had a long-standing partnership with GCC and has supported the city in preparing the NMT ii. Facilitating access to and usage of public transport policy23 and Street Planning Manual,24 implementing modes through augmentation and integration of 97 CHENNAI’S URBAN MOBILITY TRANSFORMATION pedestrian infrastructure near transit nodes, and clear signages for improving wayfinding. Re-alignment of BOX 4.3: CITY-WIDE STRATEGIES TO MITIGATE bus stops, bus priority measures, and improvements URBAN FLOODS THROUGH NATURE-BASED in the first and last mile for streamlining access and STORMWATER MANAGEMENT public transport usage. Vancouver and Copenhagen offer examples of iii. Enhancing uninterrupted safe walking space city-wide strategies to mitigate urban floods and livability by shifting utilities underground, through nature-based stormwater management. constructing public toilets and convenience Vancouver’s hybrid rain city strategy focuses facilities, and adding greens and street furniture for on adaptive management; stormwater enhancing the vibrancy and attractiveness of these infrastructure is flexible and adapts to varying areas to the public. rainfall conditions. Its 2019-2022 capital plan has identified an operating budget of US$70 million iv. Improving climate resilience through enhanced to implement green rain infrastructure, ensuring focus on nature-based solutions along with a phase-wise delivery of the initiative. Similarly, engineering design. Constructing stormwater Copenhagen’s cloud burst plan integrates urban drains and allowing excess water to slow-soak- planning, integrated blue-green-grey solutions, store with the help of bio swales, connecting road traffic, and hydraulic analysis with sound slope with open spaces (parks/forest/temple ponds) investment strategies to reduce flooding and along the streets, and incorporating other nature- improve urban livability. The plan conceived 300 based solutions. Vancouver and Copenhagen projects of varying sizes and complexity, out of offer examples of city-wide strategies to mitigate which the St. Kjeld’s neighborhood was selected urban floods through nature-based stormwater as the first climate adaptive community for pilot management (Box 4.3). implementation of integrated blue-green-grey infrastructures. TOC v. Promoting efficient lifecycle management of assets Source: Living with water: integrating blue, green and grey by using recycled material for construction and infrastructure to manage urban floods, WRI India. reducing construction waste, wherever appropriate. For ensuring the longevity and sustainability of interventions, the contractors’ scope will include five VANCOUVER RAINFALL TARGET: CAPTURE AND CLEAN 90% OF RAINWATER IN THE CITY years of maintenance with appropriate KPIs. INTENSITY OF RAINFALL Cycling also has a potential role in Chennai in enhancing RAINSTORMS last mile connectivity. Internationally cycling is an make up 20% of Vancouver’s EXTREME RAINSTORMS important component of active mobility. There are LIGHT SHOWERS make up 70% rainfall. make up 10% of Vancouver’s rainfall. of Vancouver’s rainfall. cyclists even in cities with hot weather conditions, 20% 10% like Singapore given its potential to facilitate last mile 70% connectivity and short distance trips. While the cycling mode share in Chennai is low at 1 to 2 percent, the move to include 11 km of cycling paths in the design of Mega Streets and neighborhood level planning for developing a network of walking and cycling lanes, are steps in the right direction. For facilitating cycling, the streetscape in Chennai could be enhanced with traffic calming measures at the neighborhood level, segregated cycling lanes leading to mass transit stations, and improving the quality, width, and continuity of footpaths for shared use Plants and solls Rain is absorbed Rain is drained absorb and clean and cleaned by safely by our by cyclists. For encouraging the use of bicycles, a strong rain where it falls, returnng it to our plants, solls and returned to our sewer system. waterways and waterways by our network of cycling lanes will be important to explore as atmosphere. sewer system. part of CMP under preparation. This can be explored in future phases. 98 These five areas of transformation were converted into combined with frequent property entrances, ramps or a detailed set of KPIs. The KPIs comprise of 15 heads and steps, and encroached footpaths, waterlogging in and 45 parameters drawing from various guidelines such around, prevented seamless connectivity for commuters. as the Complete Street Planning Manual of Chennai, Unregulated on-street parking and overhead cables Indian Roads Congress (IRC) guidelines, NACTO street disrupted the streetscape, and poor lighting made it guidelines, and nature-based solutions concepts into socially non-inclusive. As a result, even though the street designs for arterial and non-arterial streets. These KPIs is a major retail hub in a residential area, women and provide a clear basis for tracking inputs and outcomes children did not use the street to the same degree as for achieving Complete Streets objectives. men. Mega Streets and network planning undertaken The Complete Streets approach was systematically simultaneously. GCC is upgrading 12 km of local roads applied to KNK road. As shown in the illustrations in as a pilot, with support from the World Bank under Figure 4.7, interventions were planned along each of the Sustainable Urban Services Program (SUSP) of the the five key areas of transformation. Noteworthy design Chennai City Partnership (CCP) with an aim to scale features include pedestrian priority street design, up based on the learnings from this phase. The Mega compact junctions with table-top street crossings, Streets are spread across six neighborhoods - Adyar, dedicated vending zones, augmented, and integrated Anna Nagar, Mylapore, Nungambakkam, Tondiarpet, and underground utilities, and more greenery. Similar Velachery, covering diverse locations in terms of age of approaches are being applied to other roads besides infrastructure and socioeconomic status. Neighborhoods KNK, as illustrated in Figure 4.8. and streets were selected based on a combination Spatial representation of various datasets was of qualitative and quantitative parameters like the undertaken for the visual assessment of issues and existing state of infrastructure (land use, pedestrian design recommendations. An as-is mapping of roads volumes, accessibility of public transport, and accident was done based on primary and secondary data on TOC hotspots), transformation potential, potential number of road features, motorized and non-motorized traffic beneficiaries, ease of implementation, and stakeholder volumes, road crashes, public transit stops, paratransit buy-in. Network level integration potential and impact services, trees, buildings with land-use and heights, assessment of a wider infrastructure were undertaken and public conveniences. This was used for evaluation with the help of the integrated geographic information issues considering the location, function, and future system (GIS) base maps. Sample streets were mapped to uses of each street. This as-is assessment was studied understand the scale of interventions like walkways, cycle in connection with the proposed design solutions networks, stormwater drainage, and utility sequencing keeping in mind the existing design, policy guidelines, at the network level with ITDP’s support. Neighborhood and KPIs. Alternate design options were prepared level plans (with ~50 km of streets for upgrade) were for each street and junction, followed by an impact prepared and one street within each neighborhood assessment. Consultations with GCC, utility departments was selected for implementation at a time to minimize (planning agencies), and the Greater Chennai Traffic disruptions to residents and commuters. Design KPIs Police (enforcement agency), were done for selecting were set to implement and monitor the project (Table a preferred design, followed by walking audits of the 4.1). streets. The agreed designs were shared with stakeholder The KNK road in the Nungambakkam neighborhood is utility agencies for respective cost estimations and vetted an illustrative example. The road has a meandering width through public consultations to include end-user needs even over a short section of 650m, with the narrowest and perspectives. section at just 10m, and the widest section at 30m, Throughout the process, extensive stakeholder paved from property line to property line. Designing consultations were undertaken for addressing a consistent road section, with adequate space for stakeholder concerns. Perception surveys and focus sidewalks, bicycle/bus lanes, and parking (especially group discussions (FGDs) with vulnerable community for two and three wheelers) while allowing for dense groups were prioritized even during the planning phase commercial activity along the road was difficult. High of the project. During the design phase, FGDs and mixed vehicular traffic with pedestrian traffic, poor one-to-one discussions were held with street vendors, pedestrian crossings, and speed calming measures, 99 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 4.7: ILLUSTRATION OF KNK ROAD KNK road (Current) KNK road (Proposed) Source: GCC. Resident Welfare Associations (RWAs), disability support and implement comprehensive street re-development NGOs, and commercial and residential property owners, projects. Inter-agency coordination across multiple including women, on design, social and environmental agencies and different hierarchies is always challenging aspects. Stakeholder consultations with utility agencies and time consuming, yet it is a pre-requisite and and traffic police were undertaken to discuss and seek is essential for connected development. Further, approval for interventions on provision of CCTV cameras, standardization of data collection and sharing of digital public conveniences, vending zones, parking, and traffic data/utility survey (of GCC and other agencies) is needed TOC management. for integrated planning, delivery, and management of infrastructure. An attempt at digital integration through Lack of existing data and updated maps for IT-based solutions for data sharing, planning, and underground utilities limits the efficiency of sequencing infrastructure projects will be pursued under Complete Streets. Mega Streets in brownfield locations the Digital Chennai initiative to be led by CUMTA. (Refer entail shifting or relaying of existing operational utilities, to Technical Note 9 on ‘Institutional Setup for Leveraging which is a major challenge as it not only involves Data’ for more details on Digital Chennai). inconvenience during construction but also safety risks and requires provisions for service continuity and future Sound contract management and cross learning. planning. The challenge is compounded by little or no Through open competitive bidding GCC procured data on the 3-dimensional location, capacity, age, or six qualified architectural and urban design firms for conditions of underground utilities. Implementation different neighborhoods. Each firm had diverse expertise: of urban services projects (from metro rail to roads to ranging from street design to compact cities with Transit water supply and sewerage projects), rely on effective Oriented Development (TOD), providing for active modes coordination and inter-agency communication. This and public transit, road safety, use of nature-based helps minimize unplanned and unbudgeted changes solutions, material recycling, utility planning, gender resulting in project delays and expensive cost over-runs. inclusion, community engagement, and implementation Therefore, under Mega Streets, GCC ensured that the experience in other Indian cities. While managing contractors would collect the 3D as built coordinates of multiple different agencies and ensuring coordinated the utilities and enable integration of the data with their and coherent outputs across agencies was a challenging existing GIS platform. task, GCC turned it into an opportunity to: (a) bringing Inter-agency coordination throughout the project in design innovations and variety to mundane looking lifecycle – planning, designing, construction, streets with complex problems, (b) promoting cross supervision, and maintenance – will be key. GCC learning amongst agencies, and (c) developing a pool of put special emphasis on bringing together various qualified consultants. stakeholders and line departments to effectively plan 100 FIGURE 4.8: TRANSFORMATION ENVISIONED ALONG OTHER MEGA STREETS UNDER SUSP KNK road (Current) KNK road (Proposed) Anna Nagar (Current) Anna Nagar (Proposed) TOC Pulla Avenue (Current) Pulla Avenue (Proposed) Eldams Road (Current) Eldams Road (Proposed)) Source: GCC. 101 CHENNAI’S URBAN MOBILITY TRANSFORMATION TABLE 4.1: DESIGN KPIS FOR MEGA STREETS UNDER SUSP Attribute Key Performance Indicator Unit Pre-design Post- design Walkability Barrier free footpath - greater than or equal to Km 16.85 20.83 1.8m width (LHS and RHS) Cycling facilities Segregated cycle lane (and cycle docking Km 0 11.11 facilities) Inclusive design Tactile pavers and warning tiles coverage, Km 0 31.4 locational signages (LHS and RHS) Bus priority Bus stops located within 25 m from junctions Nos. 74 85 measures with safe pedestrian crossings at the intersection Road safety Traffic calming measures: Table-top crossings, Nos. 0 118 signages, narrowing carriage ways (LHS and RHS) Gender safety Treatment at intersection (total) Nos. 2 231 and security At-grade 0 217 Pedestrian refuge islands 2 14 Multimodal Stands for IPT/last mile connectivity modes Yes/No No Yes integration (autorickshaws, cycle rickshaws, e-rickshaws) TOC should be in the multi-functional zone minimum 25m from the bus stops Signages Number of mandatory and regulatory signages Nos. 51 656 Clean & green Trees of native species on the sidewalk Nos. 2,253 4,060 Resilience Bio swales along the corridor (length) Km 0 1.5 Augmenting institutional capacity and processes. trips), better micro-climate, and reduced emissions. Traditionally road construction has been about moving There will also be economic savings with modal shift and vehicles and addressing road throughput or volume by associated benefits due to the improved pedestrian and capacity ratio, whereas Complete Streets is about moving multimodal facilities. Mega Streets contribute to reducing people and moving them safely. With the experience of road traffic fatalities, increased use of non-motorized and pedestrianizing bus route roads and Pondy Bazaar, GCC public transit along corridors, improving accessibility has gained insights on furthering healthy streets. The city to jobs and livelihood options through sustainable has also benefitted from the presence of local champions transport, and reduced risk of flooding. Comparable like ITDP to bring in sectoral knowledge and innovations, projects in Tianjin (China) and Karachi (Pakistan) achieved together with international and national expertise. post-project economic returns of 53 percent and over 16 percent respectively.25 These interventions enhanced travel safety, reduced congestion and pollution, and EXPECTED IMPACT improved walkability and amenities. The Mega Streets projects have the potential to The transformation potential of developing 50 km of generate a range of economic benefits through Mega Streets across the six selected neighborhoods improved walkability for existing pedestrians, safety in Chennai, based on the design developed by GCC, benefits from reduced road accidents, overall reduced with World Bank support is shown in Figure 4.9. SUSP motorized travel by encouraging shorter trips (walking supports implementation of the first 12 km. The rest of 102 FIGURE 4.9: EXPECTED IMPACT OF 50 KM OF MEGA STREETS Inclusive design Improved cycling - network length 1 to 132 treated intersections 0 to 11.1 kms Priority, level crossing, refuge island, railing and guide rails, etc. with At-grade Ramps, Cycle lanes Table-top Crossing Pedestrian Refuge Islands Improved walkability Enhance Climate - % walk trips Resilience making the streets Table-top Improved Road Safety 100% accessible by addressing flood 1.5 X prone areas and adding 1.5 km of bio swales crossing increase 0 to 97 Min. footpath 1.8 m 45 to 70 Nos. Bus stops with safe 2815 Native trees pedestrian crossings 439 1.5 km Bio swales wide (from 16 km to 33 km) Additional 26 Recharge wells 114 to 1,140 waste bins 4 Percolation Signages wells Improved MMI - PT Improved Livability & TOC riders along the corridor Economic Activity - Increased business opportunities 22 Additional 121 Additional Public toilets vending spaces 2 MMI projects for women Source: For information the World Bank internal assessment and source for graphics https://thenounproject.com/ the streets may be implemented in the future based on and without the proposed interventions. The indirect the availability of funds. benefits include time and effort savings for vehicular and pedestrian traffic, which can be attributed to avoiding Using the Pedestrian Environment Review System’s inconvenience of frequent excavations for laying and re- (PERS),26 direct benefits to pedestrians were laying of utilities,27 however, the exact quantification of estimated as time and cost savings. The improvements this is difficult. were converted into benefits by relating them to the value of walking time, reflecting the average income in Further, the city plans to monitor and update its Chennai. Additionally, savings in GHG emissions were Mega Streets guidelines based on implementation also estimated based on the modal shift to walking experiences of demonstration projects and for latest or non-motorized and public transport induced by developments in the sector like blue-green infrastructure, the infrastructure upgradation and urban design. nature-based solutions, utility integration and GIS Approximately 109,000 tons of GHG emissions over mapping, material circularity, and public realm creation. 20 years was estimated as the difference in emissions Additionally, to continue the momentum towards a generated from the traffic on the project corridors with livable, connected city, Chennai intends to mainstream 103 CHENNAI’S URBAN MOBILITY TRANSFORMATION the redevelopment of existing streets and development timely implementation. Standardization for surveys, of new ones based on Complete Streets principles data formats, and digital mapping and data sharing through inclusion of specific street development in its protocols need to be developed across agencies, CMP, guidelines in the master plan, and neighborhood with a differentiated approach based on financial and TOD plans and adoption by other urban local bodies and economic assessments for greenfield and in CMA. redevelopment projects. Interventions in brownfield locations require a higher level of coordination across agencies and adoption of a systematic approach TAKEAWAYS FOR OTHER CITIES from planning to implementation. Complete Streets also tend to be geographically distributed, and under • Each street should be analyzed to reflect the the ambit of different urban local bodies, making it context in which it is positioned currently with difficult to implement quickly. The use of IT systems provisions for the role it is planned to play in supported by a nodal planning and/ or coordination the future. Development of Complete Streets agency could help. Therefore, while cities may is a combination of above and underground embrace an incremental approach towards planning transformation that needs to be contextualized (pilot neighborhoods or modest utility improvements based on the unique characteristics of each street aimed at reducing road cuts will help achieve a major (character, function, history of utility upgrades, and positive impact on active mobility and livability) priorities). A one-size-fits-all solution is unlikely to ensuring integration and connected development is succeed. While some streets may warrant shifting a must. of utilities in ducts, some may need trenches and • Neighborhood level planning and implementation others can do with simpler solutions. The above- of Complete Streets should be pursued for ground transformations for mobility have significant integrated network level effects. While Complete socioeconomic benefits, and immediate visibility for Streets implementation can be done one street at TOC citizens. Like Chennai, detailed assessments of the a time, cities achieve a greater impact by ensuring current issues and correlation with the proposed connectivity of walking, PT accessibility, inclusion, solutions will help refine the functions based on the and utilities by network creation. Retro-fitting context and land use of the street. network of streets in existing neighborhoods needs • Gathering data on underground utilities for coordination, planning, and most importantly improving the efficiency of Complete Streets. Issues ensuring least disruptions to existing services and on Mega Streets in brownfield locations pertaining to inconvenience to residents and users. Compared shifting or relaying of existing operational utilities to retrofitting, developing Complete Streets and are compounded by little or no data on the  exact networks in greenfield areas is a lot less complicated location (3-dimensional), alignment, capacity, age, or and less money and time consuming; thus, cities conditions of underground utilities. Documentation, benefit by preparing walking/ cycling master plans spatial mapping, and sharing standardized data and incorporating such approaches as part of local through effective coordination and inter-agency area development plans. Network level planning for communication is important for implementing both above ground transformation and underground integrated projects with minimum unplanned utilities needs to be incorporated at various levels of changes impacting overall efficacy and efficiency. city and metropolitan region planning (master plans, • A framework for integrated utilities and local area plans, TOD plans) and there is a need for streamlined inter-agency coordination is developing a supporting ecosystem like guidelines, essential for scaling up Complete Streets M&E of pilots, policy for low carbon construction, and approaches. Integrated above and underground nature-based solutions (for example, blue-green- mapping, planning and development is an emerging infrastructure). field in India, with extensive conversations being • Need to ensure what is built also gets maintained undertaken at various levels including the national and enforced for higher economic benefits and level. Cross-sharing of data and the central repository sustained gains. Most cities work to maintain of utilities, road and other assets will help in faster and a fine balance between limited resources and 104 adequate maintenance of the assets. Like in Chennai, sharing, training, site visits, and regular workshops Complete Streets designs should include elements on technical and emerging concepts tailored to and material with limited maintenance and factor different stakeholders (decision-makers, engineers, in the maintenance of the interventions proposed consultants, and contractors) are important. as part of overall project cost. Further, maintenance Agencies can substantially benefit from partnering should ensure that the sidewalks remain free from with think tanks (like Chennai and ITDP and C40) and encumbrances like unauthorized parking, vendors, expert organizations available locally, for regular and overhead wires, and other misuse. Adequate prompt hands-on support. Also, external experts on- enforcement and awareness building is needed for boarded as program management support or quality this. Further, cities could capitalize on IT-based digital supervision early in the project cycle can help in solutions to connect design, development, and asset planning and implementation. management efficiently. Technology solutions will • Community ownership of the interventions is increasingly support integration with road safety for critical for implementation, maintenance, and inclusive asset management, nature-based solutions scalability. Community involvement from being for climate resilience, and a life cycle approach for end users only to also being the caretakers of the efficiency of construction. interventions has always benefitted interventions • Lifecycle Cost Assessment (LCA) Approaches and and cities. Chennai historically has had highly Green Public Procurement (GPP) can improve engaged communities, which have helped address sustainability of Complete Streets. As more issues such as waste segregation, illegal parking, people migrate from rural to urban areas in search and traffic volunteering.28 Similarly, agencies in other of better economic opportunities and quality of life, cities can ensure higher ownership, acceptance, the demand for housing, infrastructure, including and better maintenance (must for scalability also) roads and commercial spaces escalate. This surge of Complete Streets by leveraging communities TOC in construction activities leads to a greater demand by liaising regularly with different stakeholders for virgin construction material, a corresponding (shopkeepers, RWAs, street vendors, pedestrians, rise in construction and demolition (C&D) waste and cyclists) for the efficient planning and execution generation, and illegal waste dumping adding to of street development projects. Many cities around pollution and GHG emissions. Adopting low carbon the world have prepared robust communication construction and a circular economy approach for plans29 to engage proactively with the public and construction and demolition waste are untapped have developed dedicated detailed links for the opportunities for cities for reducing the waste community to share their feedback. management burden, thereby contributing to the country’s climate mitigation targets while leveraging private sector expertise and resources. Cities keen CONCLUSION on these could start by finalizing the rates for a C&D based input for construction. At the same time cities To meet growing urbanization and mobility demands, could undertake LCA assessments of key raw material cities increasingly need to focus on dense walkable green used in street construction and evaluate alternates to development with integrated land use and transport for ensure the least impact. Lastly, in their procurement greenfield areas. The existing areas will also need efforts methods cities could encourage measures (design, to redevelop and retrofit streets and roads. Complete construction, and maintenance techniques) Streets approaches are key to this and will help improve promoting sustainability and green development walkability, road safety, inclusion, and decarbonization. under GPP. The experiences from GCC and Chennai offer valuable takeaways for other cities on planning, designing, and • Institutional strengthening and capacity integrating streets. building. Institutional strengthening by knowledge 105 CHENNAI’S URBAN MOBILITY TRANSFORMATION Endnotes 1 Jaishree Jindel is a Transport Specialist at the World Bank 2 Dr. GS Sameeran was the then Joint Commissioner (Works) at the Greater Chennai Corporation. 3 BV Babu is the Superintending Engineer (Special Projects, Smart City, Buildings & Registration of Contractors) at the Greater Chennai Corporation. 4 Kasinath Anbu is a Senior Consultant at the World Bank. 5 Ardila-Gomez, Arturo, Bianca Bianchi Alves, and Joanna Moody (2021). Decarbonizing cities by improving public transport and managing land use and traffic. Washington DC. 6 Ardila-Gomez, Arturo, Bianca Bianchi Alves, and Joanna Moody (2021). Decarbonizing cities by improving public transport and managing land use and traffic. Washington DC. 7 Kardan, O., P. Gozdyra, and B. Misic et al.(2015). Neighborhood greenspace and health in a large urban center. Sci Rep 5, 11610; World Green Building Council (2015). Blog. Elspeth Holland. Living near trees can make you feel younger and richer. 8 Smart Growth America (2021). Dangerous by Design. 9 UNLV (2021). White paper. An Economic Summary on the Benefits of Complete Streets. 10 Bloomberg (2023). Article. Sarah Jacob. Amsterdam to Cut Speed Limits 40% to Improve Road Safety. 11 Strong Towns (2019). Journal. Andrew Price. Lessons from the Streets of Tokyo. 12 Bloomberg (2022). Article. David Zipper. How Japan Won its ‘Traffic War.’ 13 CNU Journal (2016). Blog. Robert Steuteville. New streetscape spurs downtown turnaround. 14 Source: CMDA. 15 Transport Research Wing, Ministry of Road Transport and Highways, New Delhi (2023).Road accidents in India 2022. 16 International Road Assessment Program star ratings; source DIMTS road safety study for the World Bank and Chennai (2021-22). 17 With less than half the fatality rates of 2.7 for arterial roads. 18 As indicated by a WB analysis based on International Road Assessment Programs star ratings. 19 WRI (2020). Blog. Sahana Goswami and Ashwathy Anand. Living with water: integrating blue, green and grey infrastructure to manage urban floods. 20 https://www.tangedco.org/en/tangedco/ TOC 21 Complete Streets Planning Manual, prepared for Greater Chennai Corporation by ITDP (2020). 22 As per site survey analysis and assessment by JLL, India (2021). 23 Chennai Non-Motorized Transport Policy (2014). 24 Complete Streets Planning Manual, prepared for Greater Chennai Corporation by ITDP (2020). 25 ICR reports of the projects (the World Bank). 26 Well-established methodology in London for estimating benefits to pedestrians based on improvements in street design. 27 Given limited data and a standard methodology for comparison, indirect benefits have not been included in the economic evaluation. 28 The Hindu (2023). Article. Team Downtown. Model initiatives from residents’ associations in Chennai over the years. 29 Walk Sacremento (2016). Working paper. Partnership for Active Communities “Complete Streets” Communications Plan. 106 Source: The New Indian Express 5: ACHIEVING URBAN MOBILITY RESILIENCE Rashi Grover,1 Shyam Srinivasan, and Gerald Ollivier billion.2 Cyclones in 2020 (Nivar and Burevi) caused flash INTRODUCTION floods and disconnected most of the road network (see Box 5.1). Urban mobility resilience is a critical aspect of urban resilience. It refers to the ability of a city’s transportation This note presents the approach adopted in Chennai systems to withstand and recover from disruptions, to assess climate change vulnerabilities and identifying whether caused by natural hazards, accidents, or other measures for strengthening urban mobility resilience. unforeseen events. Urban mobility resilience ensures that The Chennai example offers useful takeaways for other cities can withstand disruptions, keep people connected, cities facing similar challenges. TOC and recover swiftly, contributing to overall stability and well-being. This note focuses on Chennai, which, similar to coastal BACKGROUND cities across the world, is increasingly vulnerable to India is one of the most vulnerable countries in the impacts of natural disasters and climate change. the world to climate change and ranks fifth on the The city is increasingly facing extreme weather events Global Climate Risk Index Report 2020. Rapid climate that have a severe impact on lives, livelihoods, and change has induced severe stress, including water stress, infrastructure. The floods in 2015 and 2020 are illustrative heatwaves, and droughts, severe storms, flooding, examples. In 2015, a devastating flood claimed 422 lives and associated negative consequences for health and and caused damage and loss to property worth Rs. 146 BOX 5.1: CYCLONE NIVAR (2020) AND ITS IMPACT ON CHENNAI Cyclone Nivar, a very severe cyclonic storm, struck portions of Tamil Nadu and Andhra Pradesh in late November 2020. Starting November 23, 2020, Chennai, and other parts of northern Tamil Nadu saw gusty winds touching 60-70 kmph and experienced continuous downpours. The India Meteorological Department (IMD) had recorded 163 mm of rainfall in Chennai by November 25, 2020. Water stagnation was reported in 53 places in Chennai. Power cuts occurred due to fallen trees. The cyclone left a trail of uprooted trees, damaged houses, and broken electric poles. Three people lost their lives, and three more were injured across Tamil Nadu. Vulnerable areas were evacuated, and people were shifted to relief centers. In terms of overall impact, Cyclone Nivar caused approximately US$600 million in damages in the affected regions. Despite the challenges, authorities worked to restore normalcy and mitigate the cyclone’s effects in Chennai and neighboring areas. Sources: Cyclone Nivar - Wikipedia; Cyclone Nivar: Several parts of Chennai inundated, Chennai News - Times of India (November 5, 2020); Cyclone Nivar: Glimpses of the Path of Destruction Left by Cyclone-Induced Rains, Winds (PHOTOS), Weather.com (November 27, 2020). 107 CHENNAI’S URBAN MOBILITY TRANSFORMATION livelihoods. Although India’s Nationally Determined FIGURE 5.1: CHENNAI’S TOPOGRAPHY Contribution (NDC) commitments focus more on climate change mitigation than adaptation, climate change- induced and natural hazards are expected to increase in intensity and frequency over the next decades. More than 800 million people, or 45 percent of the region’s current population, lives in locations projected to become moderate to severe climate hotspots by 2050.3 By some estimates, more than half of India’s population is highly vulnerable to the impact of climate change. Infrastructure development should therefore contribute to climate change mitigation goals, while also ensuring resilience to climate risks. India has taken several initiatives for addressing the issue of climate resilience in urban mobility. The National Action Plan on Climate Change (NAPCC), released by the Prime Minister in 2008, outlines a strategy for climate change adaptation and enhancing the ecological sustainability of India’s development path. The plan includes eight National Missions that focus on promoting an understanding of climate change, adaptation and mitigation, energy efficiency, and natural resource conservation.4 The National Urban TOC Transport Policy (NUTP) aims to provide a sustainable Source: SRTM (shuttle radar topographic mission) Digital Elevation Model, transport system in urban areas. It emphasizes the need Greater Chennai Corporation and open street map for a shift from personal vehicles to public transport, non-motorized transport, and intermediate public This note focuses on Chennai’s exposure to two main transport. The policy also focuses on the integration of categories of extreme weather events: floods (fluvial, land use and transport planning and the development pluvial, coastal)7 and heatwaves. Figure 5.2 presents a of urban transport infrastructure. This provides an timeline of extreme weather events in Chennai. opportunity for systematically integrating resilience in planning concentration of activities and flows, while • Violent storm surges and flooding during the also considering interdependencies with other critical northeast monsoons from September to November. infrastructure systems (power, health, telecom).5 Although some level of local flooding is an annual phenomenon in parts of the city, extreme flooding Being a coastal city makes Chennai6 more vulnerable events are becoming increasingly frequent. Events to the impact of climate change. Much of Chennai is low such as heavy rainfall, high tides, storm surges, lying, and the terrain is flat, limiting options for natural cyclones tsunamis, and sea level rise contribute drainage, as seen in Chennai’s topography in Figure 5.1. heavily to coastal flooding, with severe impact on the The average elevation is around 6.7 m above mean sea public and infrastructure. level, with the highest point being at 60 m (200 ft). This is a significant contributor to the region’s exposure to • Heatwaves typically occur in summer. There has flooding. been a marked rise in the number, frequency, and intensity of hot days (over 40 degrees C) in recent There are various agencies implementing traffic and years. Heatwaves, without concomitant increases transportation schemes in CMA. While long-term in precipitation, and improper management of planning and coordination is done by the nodal agency, groundwater, can lead to water shortages and CMDA, several other departments/agencies are involved increased stress for plants, particularly in arid regions.8 in looking after various functions for planning, operating, and regulating the different modes of transport. 108 FIGURE 5.2: TIMELINE OF EXTREME WEATHER EVENTS IN CHENNAI 1883 1976 1987 1996 Tsunami Floods Earthquake Floods 2005 2004 2001 1998 Heavy Floods Indian Ocean Major Floods Stampade, cyclone Tsunami Earthquake Fanoose TOC 2008 2010 2011 2012 Cyclone Cyclone Cyclone Cyclone Nilam Nisha Jal Thane Mild tremors 2020 2019 2016 2015 Cyclone Nivar Drinking Cyclone Nada 100 year Cyclone Burevi water crisis Cyclone Vardah Flood event Mild tremors 2023 Cyclone Michaung 109 CHENNAI’S URBAN MOBILITY TRANSFORMATION APPROACH IN CHENNAI Indo-German Center for Sustainability, to discuss and plan for better disaster management and socioeconomic Chennai is adopting a multi-faceted approach for development under urbanization and climate change.10 disaster risk management in urban mobility that The city has also been developing  city resilience includes infrastructure improvements, coordination strategies  to better prepare for climate induced among various agencies, and strategic planning for extreme events or natural hazards.  This includes resilience and sustainability (Box 5.2). The Government innovative designs and interventions for  climate- of Tamil Nadu, working closely with the Greater Chennai resilient flood management, integrated urban planning, Corporation (GCC) and the municipal corporation in and enhanced municipal resource mobilization, which Chennai, has taken several steps for enhancing disaster can serve as models for other Indian cities vulnerable to risk management: climate and disaster risks.11 GCC has established an integrated command and  control center (ICCC)  for coordinating disaster A Systematic Approach for Improving management efforts (Figure 5.3).  This center plays a Urban Mobility Resilience crucial role in ensuring the serviceability of urban mobility The increasing frequency of disasters in cities like infrastructure and continuity of services during disasters Chennai underscores the importance of urban by coordinating with various agencies such as Traffic resilience against climate change, or climate Police and MTC.9 It manages weather and environmental resilience. Climate resilience is the capacity of a system, information that enables real time monitoring of rainfall, community, or interconnected systems to withstand, rainfall distribution, and inundation in subways through recover from a hazard, and adapt to the impact of climate flood sensors and flood cameras across the identified change. Climate change adaptation refers to the process inundation vulnerable areas in Chennai city. of adjusting to actual or expected climate change and Chennai has focused on improving its stormwater its effects (IPCC AR5). Development, adaptation, and TOC drainage system. Stormwater drains are provided resilience are inextricably linked. Inclusive development with rainwater harvesting systems at 30 m intervals for is foundational for building adaptive capacity and recharging the groundwater table in the city. The city has resilience, while adaptation reduces climate vulnerability also engaged in sustainable urban development practices and impact, and safeguards development. and has held workshops such as the one reported by the A systematic approach to building climate resilience is the need of the hour. This typically involves assessing and taking measures for managing disaster risks. According to BOX 5.2 - INITIATIVES BY CHENNAI SMART UNDRR, disaster risk is defined as, ‘the potential loss of CITY LIMITED (CSCL) life, injury, or destroyed or damaged assets which could CSCL is a specialized organization created for occur to a system, society or a community in a specific carrying out Smart City projects in Chennai. period of time, determined probabilistically as a function To address the pressing issues of flooding and of hazard, exposure, vulnerability and capacity.’ A hazard water scarcity in the city, CSCL has undertaken is defined as a dangerous phenomenon, condition that a comprehensive initiative that involves the may cause loss of life, injury or other health impacts, identification of 210 water bodies distributed property damage, loss of livelihoods and services, social across 15 zones in Chennai. The primary goal and economic disruption, or environmental damage. of this strategic undertaking is restoring and Vulnerability describes the propensity or predisposition enhancing these water bodies, thereby mitigating to be adversely affected, depending on the sensitivity of the adverse effects of flooding and alleviating the system and its ability to cope with a hazard. Exposure water scarcity challenges in the region. Through is considered a function of risk assessment referring to the restoration of these water bodies, CSCL people, property, systems, or other elements present in aims to contribute significantly to the overall hazard zones that are thereby subject to potential losses. resilience and sustainability of Chennai's urban However, the term exposure is a necessary, but not environment. sufficient, determinant of risk (Figure 5.4). 110 FIGURE 5.3: INTEGRATED COMMAND AND CONTROL transport infrastructure and services in the city. In this CENTER (ICCC) ESTABLISHED BY GCC study, risk was defined as a function of hazard and vulnerability. No new explicit exposure mapping study for understanding hazards and their exposure areas in CMA could be carried out as part of this study because of the high costs and time associated with such an exercise. However, exposure maps from existing studies by institutes such as the Indian Institute of Technology (IIT) Madras, Institute of Remote Sensing (IRS), Anna University, and the National Center for Coastal Research (NCCR) were used where applicable. Vulnerability of critical infrastructure14 in Chennai Source: Authors’ photo. Critical urban mobility infrastructure was assessed based on three types of vulnerabilities: physical, FIGURE 5.4: DISASTER RISK AT THE INTERSECTION systemic, and socioeconomic. Key results from these OF HAZARD, EXPOSURE, AND VULNERABILITY12 assessments are presented in this section. Physical vulnerability to floods HAZARD(S) VULNERABILITY was assessed for five broad Hurricanes, Tornadoes, Physical Thunderstorms, Downbursts, Capacities/Strength, categories of critical transport Earthquakes, Tsunamis, Floods Maintenance, Leading, Damage infrastructure - roads and road Timing & Duration Human Health, Education, elements, structures such as TOC Correlation and Intensity Wealth, socioeconomic and bridges/flyovers, freight transport Spatial Variation Political Factors and mass transit systems like suburban rail, MRTS, MTC and Chennai Metro Rail (Table 5.1). Specific criteria were used for RISK EXPOSURE Physical Damage, Physical designating an exposed element Economics Loss, Types, Characteristics, as critical, for instance, critical roads Death, Injury, Location, Distribution Epidemic, and road elements were defined Human Community Crises Demography, Census as roads/links in the urban road network in Chennai which caters to substantial traffic volumes and is critical for maintaining acceptable Source: Disaster Risk Management Through the DesignSafe Cyberinfrastructure. Int J Disaster Risk Sci 11, 719–734. service levels. The results showed that most of the bridges and An approach that considered these dimensions flyovers in the city were nearing their serviceability age, was applied in Chennai, albeit with modifications, suggesting scope for utilization of Intelligent Transport based on resource availability. In 2022-2023, a Systems (ITS), in integration with the Chennai Smart technical study on ‘Resilient Urban Mobility and Services City program, for reducing disruption to services during in Chennai’ was undertaken with funding from the disaster events. With three major water bodies crossing Government of Japan (GFDRR) and the World Bank, the city and most of the MRTS and metro rail systems built in close collaboration with government agencies, along them, special attention needs to be paid to the including CMDA, CMRL, GCC, and MTC. 13 The study accessibility of these stations for providing the minimum aimed to review the current state of work/activities operational ability during floods. Alternative routes for on flood risk and pandemics in Chennai and provide passenger and freight movement were identified along recommendations with options to undertake disaster roads that were comparatively more resilient during risk assessment (hazard and vulnerability) of urban disaster events. 111 CHENNAI’S URBAN MOBILITY TRANSFORMATION TABLE 5.1: DETAILED PHYSICAL VULNERABILITY ASSESSMENT Element How physical vulnerability was assessed Results of detailed physical vulnerability assessment Roads • Definition of a vulnerability index and determination • Of the 26 critical road links in of vulnerability indicators by measuring the network CMA (forming 5.9 percent of the performance in two situations: a) with the network total exposed road network in under normal conditions, before the occurrence of CMA) about 38 km (of a total ~60 a disturbance; and b) with the network subject to km) were found to have high disturbance on one or more of its links (interruption to very high vulnerability with or impaired capacity). The difference between the capacity reduction above 75 two performance indicators (generally total trip cost percent during extreme events. or time) is the value of the vulnerability index. • During a disaster, 35 percent of • Analysis of the vulnerability of a road network the network operated at a speed considering the importance of the roads based below 20kph compared to 26 on the volume of traffic as per the Comprehensive percent on normal days, with an Mobility Plan (2019) (arterials, sub-arterials, collector overall increase of 45 percent in roads), their relative level of exposure to floods of vehicle hours travelled, and of varied return periods, and the ratio of road length to 47 percent (from 0.47 to 0.69) in floods to total length. volume-capacity ratio. • The vulnerability assessment was flexible enough to consider both partially and fully damaged roads. Footpaths • Identifying the critical footpath network. • Of the total 850 km network TOC of footpaths in CMA, around • Conducting a spatial analysis for the identified critical 250 km (30 percent of the total footpath network, wherein the footpath network footpath network) was likely to was superimposed with flood depth maps. be inundated, with 6 percent in • Assessing the vulnerability based on their relative very high or high vulnerability level of exposure with floods of varied intensity. categories. Bus (MTC) • Rapid Visual Screening (RVS) for physical vulnerability • Six bus (MTC) depots/terminals depots/ assessment of critical urban transport buildings. were found to be critical out of 33 terminals MTC depots/terminals in CMA. • Public buildings chosen based on the inputs provided by local administration and self-assessment of the • Additionally, 29 bus routes (of the consultant. total 830 in CMA) have 20 percent or more of their length in the • The parameters chosen to represent the lumped critical network category. vulnerability of individual buildings to hazard events after consultations with civil and electrical engineers, Suburban • Two suburban railway stations fire and rescue officers, and town and country railway stations/ (out of 36 in CMA) and five MRTS planning officials. MRTS stations (out of 17 in CMA) were • Typical criteria (such as safety equipment, evacuation found to be critical. routes, fire alarm systems, electric insulation) used for vulnerability assessment of selected buildings for this study were defined across three categories: highly vulnerable, moderately vulnerable, and least vulnerable. 112 Element How physical vulnerability was assessed Results of detailed physical vulnerability assessment Bridges/flyovers • Identification of all bridges and flyovers which fell • 17 bridges (of a total 150 in CMA) within the realm of past floods inundating the study and 11 flyovers (of a total 38 in area. CMA) were found to be critical. • Framing a set of parameters, which will govern the vulnerability of such structures against floods with scouring being the chief criteria based on specifications of IRC:5-2015, Standard Specifications and Code of Practice for road bridges, IRC:45 - 1972, Recommendations for estimating the resistance of soil below the maximum scour level in the Design of Foundation of Bridges, and IRC:78 - 2000, Standard Specifications and Code of Practice for road bridges, Section - VII, Foundation and Substructure. • Typical criteria (such as age, location, scour history, structural characteristics) proposed for vulnerability assessment of selected bridges and flyovers were defined across three categories: highly vulnerable, moderately vulnerable, and least vulnerable. Freight routes • Mapping urban freight infrastructure facilities in the • Only 1.2 percent of the road city required to move freight. network of 11 critical freight TOC routes studied was categorized • Assessing commodity wise demands in different as critical, very high, or high in parts/zones of CMA based on the survey data vulnerability to floods. collected during the Comprehensive Mobility Plan for CMA (2019) and ranking priority supplies. • Linking the mapped freight infrastructure to the flood maps for identifying the critical facilities. • Assessing the importance of the critical links primarily for three critical commodities -- food supplies (perishable and non-perishable), medical supplies, and petrochemical goods, and then identifying alternate shortest detour routes in case of link failure. • Measuring the importance of a link by how many vehicles will be impacted when the link is completely disrupted. A systemic vulnerability assessment studied at risk and how quickly they might be affected, based accessibility as per the identified critical lifelines on the travel time in each link during a disaster event. during disaster events. Systemic vulnerability assesses The identified critical lifelines were overlaid with the the vulnerability of critical lifelines, that is, facilities that network during a disaster event and were assessed for play a major role in community response and recovery the accessibility levels of those critical lifelines. It was post disasters (for example, electric lines/power grids, observed from the isochronal analysis that travel to utilities, hospitals, police or fire lifelines, and rescue hospitals in certain areas was expected to take 20 percent lifelines). This was undertaken by developing isochronal longer than usual. Accessibility of the fire stations in six maps for understanding which parts of the city were (of the 28) areas was expected to take 26 percent longer 113 CHENNAI’S URBAN MOBILITY TRANSFORMATION than usual. Accessibility of three administrative offices, Based on this hazard analysis and three aspects the traffic control room, the Police Commissionerate, of vulnerability, a list of transport elements at risk and CMDA was likely to take 44 percent longer than in CMA was generated (Figure 5.6). Critical elements usual (Figure 5.5). falling under the Very High category of vulnerability as defined for that element were classified as ‘Risky Assets’, A socioeconomic vulnerability assessment was done while all other vulnerable elements were not found to be for understanding the impact of disaster events on risky but were vulnerable to different degrees. different strata of the population. Socioeconomic vulnerability analyzes the implications of climate change on different sub-segments of the population Recommendations for boosting based on literacy rate, income, and living standards. urban mobility resilience The Socio-economic Vulnerability Index (SeVI) was Based on the risk assessments, a comprehensive set used for assessing the socioeconomic vulnerability of of recommendations for improving climate resilience the urban mobility system, as per the formula: SeVI = of the urban mobility infrastructure was developed. Exposure x Sensitivity/Capacity. Flood hazard maps from Overall, enhancing climate resilience of urban transport existing models were used for identifying exposed road and mobility services should be a core part of the decision- networks, terminals, stations, and bus stops. The analyses making matrix for prioritizing projects, especially given showed that the central part of CMA, particularly the the magnitude of climate risks that Chennai faces. This core city under GCC’s jurisdiction had high to very high extends to policies, planning, prioritizing projects, and socioeconomically vulnerable zones when it comes to financing and requires strong inter-agency coordination. transport. The high job opportunities, labor population, and flood zonation of these areas make them more An overarching recommendation relates to financing vulnerable. Vulnerability in the southern and northern measures for enhancing climate resilience. Climate zones was exacerbated by deficiencies in stormwater finance in India is heterogeneous, fragmented, and decentralized with several public, private, national, and TOC drainage. international actors playing important roles (Jha, 2014). FIGURE 5.5: ACCESSIBILITY OF ADMINISTRATIVE BUILDINGS AND THE AIRPORT DURING A NORMAL DAY (LEFT) AND DURING A DISASTER EVENT (RIGHT) 114 FIGURE 5.6: OVERALL RISK ASSESSMENT OF URBAN TRANSPORT ELEMENTS Risk Assessment of Urban Transport Elements Roads MTC Depots/Terminals Sub-urban & MRTS Stations • Arunachala Street • Mandaveli Bus Deport cum • Chetpet sub-urban railway • 8th st. Terminal station • Anna Main Road • T Nagar Bus Depot cum • Kodambakkam sub-urban • VR Ramanathan Road Terminal railway station • Annamalai Nagar 1st Street • Ambattur Industrial Estate • Light house MRTS station • 14th Avenue • Pantheon Road • Mogaper Estate Road Bridges Flyovers MTC Routes • St. Andrews Bridge • Doveton Flyover • Route_15 • Laws Bridge • Pantheon Flyover • Ropute_15G • Harris Bridge • Thirumangalam Flyover • Route_S18 • Alandur Abraham Bridge • CMBT Flyover • Route_S15 • Santhome Bridge • Route_S147X Freight • Naduvankarai Bridge • Route_27B • Nungambakkam Bridge • Chennai ort to Maduravoyal to • Route_S86 • Saidapet Bridge ORR to Peripheral road • Manali Oil Refinery road • NH Bypass TOC The financing of resilience enhancement measures in for ensuring a minimal level of services and access to the urban transport systems in Indian cities requires critical lifelines; and (iii) measures relating to institutions different mechanisms from those used for regular and communications in and around disasters. investments and maintenance. For example, emergency lines of credit or emergency budget lines are required Structural recommendations for undertaking rapid repairs of modest scope without delay to enable the system to bounce back and reach Structural recommendations cover measures relating normal operations after flood disasters. Annual upfront to physical infrastructure, which are further divided allocations for disaster response and recovery funds into measures before and after disaster events. are needed to deal with the next layer of damages after The following measures can be undertaken before flood disasters—well-defined procedures for rapidly disaster events: accessing city-level and state-level reconstruction funds to deal with damages caused by catastrophic events. • Including climate resilience considerations such In addition, budget allocations for adaptation planning as vulnerability to floods in building codes and and climate-informed infrastructure development are standards for urban transport buildings (that is, advisable. Targeted insurance for specific infrastructure stations, depots, and terminals) for ensuring that assets may be considered. Prioritizing projects according urban transport infrastructure can adapt to climate to the highest cost-benefit ratio based on economic, change (Box 5.3). To successfully reduce vulnerability, environmental, and social factors (for urban transport building codes and standards must be well designed infrastructure) is therefore important. and periodically updated based on fresh estimates of climate change impacts. Further specific recommendations are organized along the following themes: (i) structural, referring • Building and retrofitting transport infrastructure to the construction and maintenance of physical for resilience: Even a rapid assessment can help infrastructure; (ii) data and technology, including how identify the weakest transport system components they could enable contingency measures during disasters in need of retrofit and upgrade to deal with floods 115 CHENNAI’S URBAN MOBILITY TRANSFORMATION prior to the rainy season can be the most effective BOX 5.3: ROBUSTNESS IN BUILDING CODES IN measure for enhancing the resilience of the CANADA transport system. The transport system’s risk Canada used historical evidence from the 1985 assessment can provide specific locations with Barrie tornado outbreak and found that many the highest flood risk to help target cleaning and of the damaged homes were not tornado-proof maintenance. Enhanced maintenance focused on due to the lack of anchorage. This was then pothole repairs, pavement sealing, bus stop repairs, implemented and included with modifications to and other weak points can help significantly with the Canadian Standards Association specifications traffic conditions during floods. for construction. • Implementing Nature based Solutions (NbS) by Source: Chennai City Partnership: Resilient Urban Mobility and retrofitting the existing streets or reconstructing Services in Chennai the streets to incorporate these measures. Based on the availability of space, local terrain, the regional in a changing climate such as bus depots, bridges, weather and climate, aquifer recharge potential, pumping systems, and electrical traffic management and the local ecology, various measures could be systems. However, sometimes the weakest used for the detention, retention, biofiltration, and infrastructure links – particularly for mobility – are infiltration of stormwater. Green infrastructure in a small but require a critical upgrade such as walkways heavily urbanized city like Chennai which has limited or sidewalks connecting to bus stops or metro open space and experiences high temperatures and stations (last mile connectivity). In addition, the heavy monsoons, will act as a buffer between the expansion or upgrade of the transport infrastructure streets and the drains, thereby reducing the load needs new standards to account for probable on the stormwater drains during peak floods. NbS climate change scenarios and their impact on floods, has been used for enhancing climate resilience and storm surges, and sea level rise, and make the new TOC addressing multiple urban sustainability challenges investments climate adapted. in cities such as Melbourne, Boston, Cape Town, Mexico City, and Malmö (Sweden).15 Box 5.4 shows • Proactive enhanced maintenance: Proactive how a project in Europe has applied NbS to urban maintenance and cleaning of the transport, development solutions. drainage, and stormwater infrastructure, especially BOX 5.4: INTEGRATING INFORMAL TRANSIT SERVICES: INTERNATIONAL EXAMPLES NATure-based URban innoVATION is a 4-year project, funded by the European Commission and involving 14 institutions across Europe in the fields of urban development, geography, innovation studies, and economics. Six cities (Barcelona, Utrecht, Leipzig, Malmö, Győr, and Newcastle) are partners in NATURVATION, which is helping realize the potential of NbS in responding to urban sustainability challenges.1 BiodiverCity delivered over 30 multifunctional green and blue NbS ’Passeig de Sat Joan’ was redeveloped into one of the first green across Malmö between 2011 and 2017 corridors in Barcelona, improving ecological and social connectivity within the city Sources: 1. https://naturvation.eu/. ‘Making Urban Nature Bloom: Four Years of Partnering for Nature-based solutions Across Europe’ by ICLEI – Local Governments for Sustainability, Europe. 116 After disaster events, there is a need for proactive nature-based solutions have been shown to be cost post-flood repairs of the transport infrastructure. effective in improving climate resilience, as will be In addition to the preparedness of the transport discussed under the results of the cost-benefit analyses system before disasters, it is equally important to plan below. Implementing sponge street types learning for repairs and reconstruction after floods. Proactive from international examples can help delay stormwater speedy repairs are vital for restoring the capacity of release and increase infiltration along street medians or urban transport and mobility systems and reducing the edges, sidewalks, curb sides and intersections (Box 5.5). economic and livelihood impact that these damages will cause for businesses and citizens. For reducing the Leveraging data and technology cost and increasing the speed of these post-disaster repairs, contracts must be procured before the rainy The smart use of data and technology can be a season, and rapid post-flood damage assessments powerful tool in enhancing climate resilience. The must be completed for issuing repair orders. A detailed resilience of the city’s transport and mobility systems post-disaster analysis - including a specific vulnerability requires continuous data gathering and analyses of analysis - is required to identify build-back-better changing conditions. The city needs data for identifying investments to continue enhancing the system’s the weakest links in the system where retrofits should resilience. be prioritized, areas for improving traffic management for better network resilience during disasters, changes Specific recommendations for resilience across different in urban hydrological response caused by urban locations for various urban transport elements have also growth, watershed land changes, and climate change. been provided (Table 5.2). Key recommendations related to data and technology include: Some of these structural recommendations are being taken up and implemented by GCC, including • Smart traffic management before, during, and via the Mega Streets program launched in 2020 to after flood emergencies: Smart traffic management TOC facilitate seamless mobility for safe walking and cycling, systems can incorporate resilience in their design in line with the draft 2014 National Urban Transport and operations by leveraging early weather warning Policy (NUTP) (Figure 5.7). GCC’s efforts at improving systems for predicting flooding levels and impact the stormwater drainage network were discussed on transit; informing traffic police and citizens of earlier. Under Mega Streets, GCC is also testing nature- the impact ahead of rainstorms; determining traffic based solutions for improving climate resilience. These management changes to avoid crippling blockages; include bio swales and connecting with larger open and informing special categories of users such as spaces along the streets for slow-soak-store. Such emergency vehicles, freight drivers, and school BOX 5.5: NEIGHBORHOOD GREENWAYS, PORTLAND, OREGON Over the last decade, the Portland Bureau of Transportation has worked to expand Portland’s network of Neighborhood Greenways, or bicycle boulevards, to encourage walking and bicycling. Greenways are streets with low traffic volume and speed where bicycles, pedestrians, and neighbors are given priority. Portland currently has over 70 miles of greenways. Portland’s operational performance guidelines for greenways include: • Reduce vehicle speeds to 20 mph or less using speed bumps. • Limit daily average to approximately 1,000 cars per day with the upper limit set at 2,000 cars by reducing auto cut-throughs using speed bumps and traffic diverters. • Provide ample opportunities for people bicycling and walking to cross busy streets, at least 50 crossing opportunities per hour, with 100 crossing opportunities per hour as the preferred level of service. • Guide bicyclists and pedestrians on the route using pavement markings and signages to let users know where the greenway goes and what is nearby. Source: Chennai City Partnership: Resilient Urban Mobility and Services in Chennai; Portland.gov “What are Neighbourhood Greenways?” 117 CHENNAI’S URBAN MOBILITY TRANSFORMATION TABLE 5.2: SUMMARY OF PROPOSED RESILIENT MEASURES PER URBAN TRANSPORT ELEMENT Element Return Periods No. Critical Unit Examples of Resilient Measures locations Road 1 in 25 years 27.8 Km Adopting micro-surfacing technology to ensure water networks does not seep into the road bitumen leading to potholes. 1 in 50 years 55 Km Constructing processed steel slag roads. 1 in 100 years 93.8 Km Constructing pre-stressed/reinforced cement concrete grade M-20 and above pavements with cement/lime soil base with provisions of a sand blanket. Storm drains 1 in 25 years 0.56 Km Construction of stormwater drainages along the entire road network within CMA, as per CPEEHO guidelines. 1 in 50 years 2.86 Km 1 in 100 years 3.58 Km Pedestrian 1 in 25 years 34.00 Km Adopting permeable pavement footpaths for all new footpaths footpaths to be constructed. Increasing the slope of 1 in 50 years 29.00 Km the combined kerb stone and gutter to 1 in 60 as per 1 in 100 years 26.00 Km IS: 5758. Structure-MTC 1 in 25 years 1 No. Conduit and wiring work for internal electrical depots installations, replacing/protecting telephone and data communication. 1 in 50 years 3 No. With most of the depots/terminals being at an elevation of about 10 m, wet flood proofing is an essential resilient TOC measure for all buildings in the area. Additionally, the depot requires major renovations and strengthening the workshop block including bus bays, service pits, and offices. 1 in 100 years 6 No. Retrofitting the following components of the upper structure for improving its resilience to stresses created due to any future floods in the city: • Fiber Reinforced Polymer (FRP) jacketing of beams/ slabs • FRP jacketing of beam-column joints Suburban & 1 in 25 years 0 No. No intervention proposed. MRTS railway stations 1 in 50 years 3 No. Adopting permeable surfacing parking lots, driveways or sidewalks include pervious concrete, porous asphalt, 1 in 100 years 3 No. pervious interlocking concrete pavers or grid pavers around the station building. Bridges and 1 in 25 years 1 No. Monitoring flood induced scouring of bridge piers using flyovers the Continuous Scour Monitoring Instrument. 1 in 50 years 4 No. Replacing the slab, girder of the bridge with a Pretension Steel Slab for better resilience. 1 in 100 years 9 No. Construction of new bridges/flyovers as per the existing traffic volume and loading and conducting a flood fragility analysis. Additionally, undertaking Rapid Visual Screening post disaster. 118 FIGURE 5.7: DR RADHA KRISHNAN SALAI - BEFORE AND AFTER Source: GCC buses through dedicated channels about route • Traffic Emergency Management Plans: A Traffic impacts. Integrated multi modal transport systems Emergency Management Plan is recommended in the event of disasters can help limit disruptions in for all Indian cities. It includes planning and transportation systems (Boxes 5.6 and 5.7). preparation before, during, and after emergencies. The plan determines the personnel and equipment required, communication protocols, and inter- BOX 5.6: INTEGRATED MULTI-MODAL agency coordination. During emergencies, the TRANSPORT SYSTEMS IN ZURICH plan will identify traffic control and management The ZVV system in Zurich is an example of action, emergency efforts at increasing roadway a successful integration of physical, policy, capacity, continuous public notification action, and TOC and technology interventions. Operated and emergency monitoring for adaptive responses. After financed by a public body under the authority emergencies, traffic management to allow for repair of the Canton of Zurich, this multimodal system and reconstruction – depending on the severity of delivers a ‘one ticket for everything’ approach the floods – will be required (Boxes 5.8 and 5.9). combining trams, boats, trains, buses, and cable cars. Intelligent Transportation Systems are • Asset management systems: A new, holistic, and integral to the functioning of the system, as is comprehensive approach to asset management is a governance structure that includes transport needed for optimizing existing infrastructure assets system operators, municipal authorities, and the and making them more resilient. This approach regional government. should seek to get ‘the best out of the asset’ over its life cycle, across functions and tasks and the entire Source: Chennai City Partnership: Resilient Urban Mobility and Services in Chennai infrastructure system/network. As infrastructure will be affected by environment social and governance BOX 5.7: THE RMIS PROJECT, DELAWARE Regional Integrated Multimodal Information Sharing (RIMIS) Project is a web-based information exchange network connecting highway operation centers, transit control centers, and 911 call centers in the Delaware Valley. RIMIS will enable agencies to receive messages about incidents, construction and maintenance activity, and special events that impact highways and transit. This provides an invaluable source of real time and archived information for transportation planners and first responders helping foster better communication and information-sharing between the many agencies in the region. Source: Chennai City Partnership: Resilient Urban Mobility and Services in Chennai; Transportation Systems Management and Operations (TSMO), Delaware Valley Regional Planning Commission. 119 CHENNAI’S URBAN MOBILITY TRANSFORMATION flood detection field devices. This could then also be BOX 5.8: TRAFFIC CONTROL CENTERS IN used for monitoring traffic and control transportation BEIJING systems such as traffic signals and VMS. Traffic control centers provide a centralized hub for These digital tools are expected to be incorporated in data aggregation, analysis, predictive modelling, the planned Digital Chennai initiative led by CUMTA. and decision-making across the transport Digital Chennai aims to strengthen the planning and network. Many cities operate control centers for delivery of infrastructure and mobility services in CMA individual modes or infrastructure types, such through digital tools and process change. as buses or highways. For example, the Beijing • The initiative will have as its base, an Integrated Traffic Control Center (BTCC) monitors a network Urban Data Exchange (IUDX), a unified repository of 50 smaller Operational Control Centers for the for all urban mobility, infrastructure, and spatial various rail lines operating in China. development data in CMA. Several use cases can be The BTCC integrates systems, including SCADA, built on this unified repository, including systems for operator information, CCTV, passenger data, disaster management and urban mobility resilience. decision support and incident evaluation to Existing systems such as ICCC and upcoming systems receive and aggregate real-time information such as an ITS being led by GCC can also plug into the while also sharing rail line data, rail line videos and IUDX downstream. reports with other stakeholders in the network. • An asset monitoring system (AMS) is expected to be The system links to an Incident Evaluation System built on top of IUDX for monitoring the condition that triggers automatic or semi-automatic plans of infrastructure and identifying critical assets in based on certain incidents, thereby ensuring need of repairs or replacement, to extend the life of that disturbances are resolved in a quick and the assets and optimizing the use of public funds. coordinated way. Some cities are exploring the Climate resilience and adaptation and road safety TOC use of cross-sectoral control centers that manage considerations is expected to be built into the transport demand across multiple modes decision-making matrix of AMS. simultaneously, or which bring together multiple city sectors to enhance the city’s management Institutions and communication capacity. An integrated approach to flood hazard management Source: Chennai City Partnership: Resilient Urban Mobility and in CMA will require interaction between various Services in Chennai disciplines, government departments, and sectors of the society. Synergy between the actions of various (ESG) risks, this approach allows identifying the stakeholders is needed for the effective implementation trade-offs between objectives and the enabling of an integrated flood management (IFM) approach. of more robust policy choices. Integrating capital The IFM approach entails various roles to be played planning, asset management, and resilience using by a complex set of actors to ensure coordination add-on modules to the existing asset management and cooperation across institutional and disciplinary system through incremental approaches is one of the boundaries (Figure 5.8). possible approaches to embedding resilience and Making resilience to extreme weather and natural sustainability considerations in asset management. disasters a part of the SOPs of agency planning for • ICT tools for flood warning: One such tool is the ensuring that resources are invested wisely, and integration of the existing Intelligent Transport services and operations remain effective. The SOPs System with a real time flood forecasting system should cover: (i) What is Transit System Resilience? for efficient mobility related decisions. Integrating describing different pathways that transit agencies traffic monitoring (CCTVs), water level sensors, and in Chennai should take for improving resilience; (ii) proposed street level sensors will further enable traffic action plan for charting the transit agencies’ path to operators at the Traffic Management Center (TMC) resilience; (iii) a step-by-step plan to help align public to activate flood warnings remotely or be alerted transit agencies in Chennai as part of a broader resilient when the warning systems activate through the community; and (iv) standalone tools and resources 120 BOX 5.9: FULL VIRTUAL TRAFFIC MANAGEMENT CENTER, OKLAHOMA The Oklahoma Department of Transportation (ODOT) in partnership with the University of Oklahoma Intelligent Transportation Systems Laboratory, designed and deployed a low-cost, fully virtual traffic management center (TMC). The virtual TMC consists of a geographically distributed fault-tolerant network of desktops referred to as ‘ITS Pathfinder’ or ‘ITS Consoles,’ which can control the intelligent transportation system (ITS) devices visible on the statewide private ITS network. Cost effectiveness: An integrated, multi-agency, centralized TMC will incur very high costs. As a result, ODOT opted for the low-cost, distributed, virtual TMC using commercial off-the-shelf desktop computers and an open-source GIS mapping software. Interagency Collaboration: Currently, there are 45 agencies participating in this endeavor. ODOT has in place a memorandum of understanding with each agency. ODOT provides stakeholder agencies with ITS consoles. These can be deployed even in rural areas if there is an internet connection capable of supporting a secure virtual private network. Source: Chennai City Partnership: Resilient Urban Mobility and Services in Chennai such as worksheets, templates, example questions, and coordinate with the transport departments to the same checklists. effect. The Traffic Management and Urban Mobility Resilience sub-committee is being formed as part of Capacity building and training programs for CUMTA and is envisaged to act as the nucleus of the institutions, as well as for local communities and institutional arrangement - coordinating, facilitating, and children, are recommended for addressing the gaps overseeing the activities of its constituents to meet the TOC identified in terms of the skills available on disaster objective of mainstreaming resilience in urban mobility. risk reduction and preparedness. These should engage For example, the state and city transport departments grassroot level organizations for data collection will coordinate with the stormwater drains department and mapping the environmental and public health of GCC on the identification of vulnerable areas and information. Capacity building and professional development of a priority action plan for addressing development are also necessary for involved professionals them. Further, inter-institutional arrangements and the such as road authorities, to better enable them to take coordination of plans and investments between these steps towards mainstreaming green infrastructure in departments will also be coordinated through CUMTA’s city planning and investment decisions. Specifically on resilience sub-committee. Through its stakeholder disaster risk management: (i) organizing training programs agencies the sub-committee will also undertake tasks for professionals in line departments and first responders like formulation of policy; setting up of norms, standards, on the incident response systems (IRS); (ii) developing an guidelines, SOPs, and service level benchmarks; integrated command center for risk management and developing plans, undertaking research studies; and DPR mainstreaming practices among the stakeholders, and preparation and tendering of works. (iii) investing in training and development of relevant personnel responsible for operating and maintaining existing and future ITS systems in Chennai, are all key. Training, both of agency personnel and of volunteers Through its stakeholder agencies the sub- who come to assist in times of particularly devastating committee will also undertake tasks like emergencies, is equally emphasized in traffic emergency formulation of policy; setting up of norms, management planning and preparation. standards, guidelines, SOPs, and service level Chennai is already taking steps for improving benchmarks; developing plans, undertaking institutional arrangements for urban mobility resilience. Various projects and plans that any research studies; and DPR preparation and department will undertake should consider how tendering of works. their work relates to transportation and mobility and 121 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 5.8: PROPOSED INSTITUTIONAL ARRANGEMENT FOR FLOOD MANAGEMENT WORKFLOW IN CHENNAI Define Management Objectives • collection of data GCC Understand Planning Context CMDA • population characteristics PRELIMINARY • property and infrastructure PHASE CSCL • institutional arrangements • planning instruments CONSULTATION PROCESS GCC Identity and Quality Flood Risk CMDA • estimation of hydro logic risk TECHNICAL • hydraulic model analysis ANALYSIS PHASE CSCL • mapping of existing flood hazard and land uses TNSDMA Identify Alternative Flood Management Options • combinations of structural and nonstructural measures GCC • evaluation of future risk MTC • consideration of how to manage residual risk CMRL MRTS APPRAISAL Bridges Department Appraise the Impacts PHASE CMDA • economic analysis • tangible and intangible social benefits and CSCL disbenefits TNSDMA • environment (adverse impacts and opportunities) • robustness, resilience to future uncertainty CMWSSB TOC Recommend Preferred Option FLOOD • refinement analysis MANAGEMENT CMWSSB • examination of assumptions • documentation of plan PLAN SDMA GCC APPROVAL AND IMPLEMENTATION CMDA Effective two-way communication with users is key. system’s resilience, as these construction activities will The resilience of an urban transport system should impact citizens in different ways. include not only the resilience of the infrastructure but should also support the resilience of mobility services and the resilience of users and their mobility needs. The EXPECTED IMPACT latter needs an effective two-way communication system between the transport agencies and citizens. This system To illustrate the impact of embedding climate can: (i) identifying the specific priorities and preferences resilience measures in urban mobility infrastructure, of users about where to enhance the resilience of the a cost benefit analysis (CBA) for fixing damages to urban mobility system, noting that these priorities are the Vadapalani bus stand during Cyclone Nivar was different for different groups of citizens – from two- conducted as a high-level assessment. The analysis wheeler drivers to women and persons with disabilities; (ii) included damage, recovery, and restoration costs, providing effective information channels to inform users including reconstruction of roads and walls, labor costs about options, changes, risks, and actions taken before, for retrofitting, reconstruction, maintenance, logistics, during, and after flood events in a way that is understood and operation costs for pumping out the inundated water. and usable by all citizens; and (iii) offer information and Greenhouse gas (GHG) emissions accounting was also seek feedback on specific investments for enhancing the undertaken as part of the CBA. The costs of the different 122 types of reconstruction were calculated with reference The cost benefit analysis showed the best effective to a schedule of rates from GCC and PWD. Suggestions measures in terms of sustainability, climate resilience, from the stakeholder departments on logistics, labor and less environment impact. The analysis can be done costs, and number of days were also considered. It was for other recommendations, but the availability of data identified during stakeholder consultations that flood and costs (damage costs, schedule of rates, miscellaneous inundation for prolonged durations on the roads was rates, and logistics) for different parameters of each the major cause of the damages to roads and walls. To recommendation is a challenge. address this, improved grey infrastructure solutions and nature-based solutions were considered in addition to regular reconstruction. TAKEAWAYS FOR OTHER CITIES Analyses show that nature-based solutions have the Chennai’s experience offers valuable takeaways for highest return on investments. A comparison (Table other cities looking at strengthening the resilience of 5.3) of regular reconstruction, improved grey solutions, their urban transit and mobility systems. and nature-based solutions, brings out that nature- based solutions perform the best. These are followed • Urban mobility resilience requires continuous by improved grey solutions and regular reconstruction, data gathering and analyses of changing which are ranked Low and Unacceptable in the tangible conditions. Indian cities are growing rapidly with new benefits categories respectively. Further, nature-based transport infrastructure and a rapidly changing urban solutions have the highest cost-effectiveness in terms of landscape. The resilience of a city’s transport and the difference between the net tangible benefit and the mobility system requires continuous data gathering cost of recovery from damages. These benefits include and analyses of changing conditions. Data permeates both tangible benefits that relate to reduction in damage the strategy for enhancing climate resilience at all costs and environmental protection, and intangible stages – before, during, and after disaster events. Before disasters, the city needs data for identifying TOC benefits to the environment (improved biodiversity), society (cleaner air), and infrastructure (improved the weakest links in the system where retrofits should groundwater table). be prioritized, and monitoring changes in urban TABLE 5.3: PERFORMANCE MATRIX FOR VARIOUS RECONSTRUCTION SOLUTIONS* Intangible Benefits (scores) Cumulative High Medium Low Unacceptable Intangibles not applicable Tangible High Nature Based Solutions (3.1 Benefits million) (INR) Medium Low Improved Grey Solutions (1.72 million) Unacceptable Regular Reconstruction (0.03 million) *Tangible benefits are as shown in the table. Intangible benefits are shown as high, medium, low, and unacceptable. Cost effectiveness = Net tangible benefits – damage costs (INR) Roof Material Damage costs Net tangible benefits Cost-effectiveness Regular reconstruction 24,76,000 28,700 -24,47,300 Improved grey solutions 17,22,000 -7,54,000 Nature based solutions 30,99,600 6,23,600 123 CHENNAI’S URBAN MOBILITY TRANSFORMATION hydrological response caused by urban growth, watershed land changes, and climate change for CONCLUSION taking proactive measures. During disasters, the Chennai is applying a multi-faceted, systematic city can leverage data for dynamically managing approach to building climate resilience - one that travel demand and traffic for maintaining access to offers valuable takeaways for other cities looking at critical lifelines. Post disaster, the city can undertake strengthening resilience in urban transport and mobility rapid assessments for prioritizing reconstruction and services. Prioritizing climate resilience in the decision- recovery efforts. making matrix for projects is the first essential step for enhancing the resilience of urban transport and mobility • Urban transport agencies require a mindset shift services. Structural measures that directly impact the and new skills for enhancing the resilience of the resilience levels of the urban transport system need transit and mobility systems. Climate resilience to be complemented with effective use of data and needs to become a core part of the psyche of urban technology, and stronger institutions, capacities, and transport agencies and should feature in day-to-day communications. Planning for urban growth, green decision making. To intervene effectively, agencies spaces, and land use is directly related to the magnitude need new skills including traffic modeling and impact and level of damage due to urban floods, and inter- prediction and management during floods; planning agency coordination at the municipal and, in some cases and execution of preventive maintenance, retrofit, the upstream river basin level is key to achieving success. and proactive post-flood repairs; catastrophic flood Urban transport authorities should not be passive actors preparedness and response plans; and post-disaster in this coordination – the information they collect on the damage and needs assessments. impact of floods on traffic and mobility is invaluable for other agencies’ plans and preparedness actions. TOC Endnotes 1 Rashi Grover is a Consultant at the World Bank. 2 Bandyopadhyay, C., M.K.Bindal, and M. Manna (2021). Chennai Floods 2015. New Delhi - 110 042. National Institute of Disaster Management (NIDM), Ministry of Home Affairs. 3 Mani, Muthukumara;  Bandyopadhyay, Sushenjit;  Chonabayashi, Shun;  Markandya, Anil;  Mosier, Thomas.  2018.  South Asia's Hotspots: Impacts of Temperature and Precipitation Changes on Living Standards.  South Asia Development Matters;. © Washington, DC: World Bank. 4 PIB. Ministry of Environment, Forest and Climate Change (2021). Press release. (Frequently Asked Questions (FAQs) National Action Plan on Climate Change (NAPCC). 5 Observer Research Foundation. 2020. Essay series. Young Voices. Towards climate resilience: Implications of green mobility initiatives for urban India. 6 Chennai Metropolitan Area, the focus of this study, encompasses the central city of Chennai and its suburbs distributed in Kanchipuram, Chengalpattu, and Thiruvallur districts. 7 Citizen Matters (2023). Article. Dr S Janakarajan. Chennai needs an integrated water management system to prevent floods and drought. 8 Future earth. 2019. Issue Brief. Andréa Ventimiglia. Heatwave. & UNEP. 2004. Environment Alert Bulletin. Impacts of summer 2003 heat wave in Europe. 9 The New Indian Express (2023). Article. Express News Service. Ahead of rain, corporation’s disaster plan identifies vulnerable areas in Chennai. 10 Indo-German Centre for Sustainability, IIT Madras (2016). Workshop report. Prof. Chella Rajan, Dr. Franziska Steinbruch, Dr. Christoph Woiwode. Beyond Disasters in Chennai – Risk Management and Sustainable Urban Development. 11 Asian Development Bank (2023). Video. Towards a Climate-resilient and More Livable Chennai. 12 Pinelli, J.P., M. Esteva, E.M. Rathje et al. (2020). Disaster Risk Management Through the DesignSafe Cyberinfrastructure. Int J Disaster Risk Sci 11, 719–734. 13 “Resilient Urban Mobility and Services in Chennai” by Taru Leading Edge Pvt. Ltd. and partner organizations – Urban Mass Transport Company Limited (UMTC) and GoAscendal. 14 The physical structures, facilities, networks, and other assets, which provide services that are indispensable to the social and economic functioning of society, and which are necessary for managing disaster risk. 15 Mccormick, K. (ed.) (2020). Cities, Nature and Innovation: New Directions. Lund University. 124 Photo credit: CUMTA 6: DEVELOPING GENDER RESPONSIVE URBAN MOBILITY ECOSYSTEMS IN CHENNAI Mitali Nikore,1 Sarah Natasha,2 Gerald Ollivier, Meera Sundararajan,3 and C. Vaishnavi4 30 percent to 50 percent women across 30 major cities INTRODUCTION citing public transport as their main mode of travel.6 Recent surveys in the Delhi-National Capital Region Decoding the meaning of gender responsive urban (NCR) showed that nearly 56 percent of the women mobility. Gender is a key socio-demographic variable relied on public transport, versus only 44 percent men that influences travel behavior but is often the least TOC (the World Bank, 2023). In a first effort made to gather understood. Gender responsive urban mobility requires information with respect to women’s travel patterns in civic agencies to understand the mobility needs of a city, a citywide perception study on women’s safety all genders and designing public transport facilities and mobility, conducted by GPL in 2023 showed that 40 which cater to these needs. Since such facilities are in percent of the travel undertaken by women was for work public spaces, there is also a need to improve access, while 36 percent was for buying household essentials affordability, and safety in public spaces. and 20 percent was for education. Bus was the most used This note establishes the need for gender responsive5 means of transportation, followed by autorickshaws. urban mobility solutions in Indian cities. It discusses Chennai has championed efforts to ensure the safety and the example of Chennai, where a Gender and Policy Lab convenience of women in public transport, by offering (GPL) has been established by the government to bring free travel on certain state-operated buses,7 providing this issue into focus. GPL has undertaken a range of women-only buses and metro coaches,8 installing initiatives for improving women’s safety and participation cameras and panic buttons on buses,9 and collecting in public transport and public spaces, following a gender disaggregated data,10 there is still a significant structured four-pillar framework. The Chennai approach need to deeply understand their requirements and could be instructive for other cities looking at advancing implement data-driven initiatives for making public the gender mobility agenda. transport services responsive to the needs of women and persons of minority genders. BACKGROUND Lack of safe public transport options deters women from stepping into public spaces. Women’s mobility Despite women being amongst their biggest users, is more likely to be impacted by unsafe experiences public transport systems across Indian cities do not and personal safety concerns. As a result, women are fully understand their needs. Across Indian cities, often hesitant to travel alone, particularly late at night. women are more likely to rely on shared modes of Even when a woman does not face direct violence, the transport as opposed to private vehicles, with between fear of what might happen,11 lack of effective grievance 125 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 6.1: GENDER SPECIFIC BARRIERS ACROSS THE PUBLIC TRANSPORT JOURNEY redressal mechanisms, and dysfunctional emergency FIRST AND LAST MILE helplines remain deterrents. CONNECTIVITY While Chennai is considered relatively safer for women among southern cities, studies highlight the • Deserted and lonely streets need for improved gender-sensitive infrastructure • Broken, obstructed and unshaded footpaths and awareness to address mobility restrictions and • High compound walls underreporting of harassment cases. Southern cities in • Absence of consistent lighting India, especially Chennai, are often regarded as relatively • Absence of safe cycling infrastructure safe for women. However, World Bank-supported • Ad-hoc fare charges by auto drivers studies, such as a gap analysis conducted in 2021 • Limited access to real-time information of vehicles to and a perception study in 2023, highlighted areas for pre-plan a journey improvement in ensuring women’s safety and mobility in Chennai. These studies revealed that safety concerns sometimes lead women to restrict their movements, WAITING AT STOPS AND particularly during certain times of the day when they STATIONS perceive harassment to be highest. The studies also • Bus-stops located in footpaths and isolated areas identified gaps in gender-sensitive infrastructure and a • Inaccessible and obstructed bus-stops with lack of awareness about helplines available to women inadequate lighting in distress, which may contribute to underreporting • Limited visibility at and around bus-stops due to opaque back panels of harassment cases. Addressing these challenges is • Absence of human activity at and around bus-stops essential to further enhance Chennai’s reputation as a and stations safe and inclusive city for women. • Absence of real-time information, route maps and help-line number Women face barriers in using public transport at every • Absence of clean toilets for women and TOC transgenders near bus-stops and stations stage of their journey owing to design elements that • Inadequate signage are not gender informed - during access and egress, waiting at stops and transfers, boarding and alighting, BOARDING AND and inside the vehicle (Figure 6.1). Women tend to travel ALIGHTING shorter distances within a limited geographical radius and are more likely to travel with dependents during • High floor of buses off-peak hours for unpaid care work, often referred to • Obstruction of bus-stops by on-street 2-wheeler as mobility of care. Moreover, given the need to balance parking household and work responsibilities, women typically • Crowded boarding which increases probability of combine multiple tasks necessitating several short trips, sexual harassment that is, trip chaining, rather than taking a unimodal, long • Large vertical gaps between the platform and trip from origin to destination. Consequently, they end coaches of sub-urban and metro rail up paying higher fares for frequently changing direction, modes of transport, and breaking their journeys. They also have off-peak needs that are often underserved. WAITING AT STOPS AND STATIONS Mobility barriers restrict women’s choices for education and employment. Several studies have found that mobility concerns about commuting safely • Crowded buses to workplaces, commuting during late evening hours, or • Harassment inside the vehicle commuting further than a particular radius are among • Absence of signage on help-lines and seat the most common impediments to women’s workforce reservations for women participation, education, and skilling opportunities. These mobility barriers can therefore impact women’s aspirations for work and education and ultimately their Source: The World Bank (2022). India - Toolkit for Enabling Gender financial independence and agency. Responsive Urban Mobility and Public Spaces. http://hdl.handle. net/10986/38199 126 Transport planning is not gender informed due to various systemic and societal factors. Government BOX 6.1: GENDER MAINSTREAMING IN agencies typically lack technical capacity such as URBAN PLANNING, CITY OF VIENNA gender mobility specialists, contributing to the lack of Vienna has carried out more than 60 initiatives understanding and consideration of the unique mobility that have used gender mainstreaming, including needs and patterns of different genders. Stakeholder street lighting projects, widening pavements consultations, which are crucial for inclusive planning, for buggies, additional seating, apartment are often limited and do not reach as many women complexes and social housing designed by and as men. This lack of representation can lead to plans for women, and improving the safety of shortcuts that inadequately address the needs of all genders. and alleyways by adding mirrors. Additionally, systems for collecting and analyzing gender- disaggregated data on travel patterns and behavior at the The key features include: city-level remain underdeveloped. Without such data, it • Gender sensitive transport planning: Large- is challenging to accurately understand and address the scale survey of gendered transportation use different mobility needs of men, women, and persons of was carried out, which resulted in a long-run minority genders. Current policies often fail to mandate focus on improving pedestrian access. the inclusion of gender perspectives in urban mobility • Gender budgeting: There is a legal obligation planning, resulting in insufficient resource allocation. to carry out gender budgeting. These gaps lead to a lack of comprehensive strategies addressing the diverse needs of all genders, perpetuating • Increasing women’s representation: There are inequalities in urban mobility. Vienna is a long-standing binding targets for a balanced gender ratio at example of gender mainstreaming in urban planning all levels of decision making. and its model can be adopted by Indian cities suited to • Gender-sensitive infrastructure in parks: local conditions (Box 6.1). Special focus is planned on safety features, TOC such as footpaths being clearly visible and parks being well-lit. APPROACH IN CHENNAI safety issues. A detailed gender gap assessment The Gender and Policy Lab in Chennai supported by the World Bank in 2021 revealed several Enhancing women’s safety in Chennai has been a areas which required attention by the implementing longstanding government priority. The Government agencies involved in the Nirbhaya program. Safety of India launched a national scheme for enhancing emerged as a major concern among women across all women’s safety, Nirbhaya, in 2012-2013. The scheme modes of public transport. Women shared facing sexual focuses on improving women’s safety in public spaces harassment at all times of the day and the harassment through improvements in policing (for example, more increased in the evenings and night. Pervasive lack of women officers, women’s distress helplines, better awareness of the 181 and 1091 helplines for women infrastructure for rape kits) and enhancing investments in distress compounded the challenge. Moreover, lack in safe urban infrastructure, and creating one stop of gender sensitive infrastructure on buses, metro rail, centers for survivors.12 Between 2015 and 2023, Chennai and at stations and terminals, including the absence was among 8 Indian cities implementing the Safe Cities of women’s toilets, difficulty in boarding/alighting, component of Nirbhaya, with a budget of nearly Rs and crowded vehicles emerged as key barriers to 425 crore allocated by the Government of India and their mobility. The assessment recommended the Government of Tamil Nadu. The Nirbhaya program establishment of a nodal agency for streamlining the was implemented through the collaborative efforts of interventions under Nirbhaya and coordinating across multiple organizations: GCC, MTC, the Greater Chennai implementing agencies for impact. Police (GCP), and the Social Welfare and Women’s GPL was established with a vision of enhancing Empowerment Department (SWWE). women’s safety and inclusion in Chennai city. It was A gender gap assessment for urban mobility established through funds from the Nirbhaya program ecosystems in Chennai revealed major women’s in February 2022 and became a nodal agency in GCC. 127 CHENNAI’S URBAN MOBILITY TRANSFORMATION GPL was operationalized as a part of the Chennai City Figure 6.3 summarizes GPL’s role and structure. Partnership between the Government of Tamil Nadu GPL’s organizational structure. GPL operates in a multi- and the World Bank, and officially launched in April 2022 stakeholder environment. The core GPL team comprises (Figure 6.2). The objectives of GPL are: of three full time experts including a team leader, a policy • Improving women’s access to opportunities by specialist, and a communications specialist. The team improving safety and gender responsiveness in supports a working group of high-level government public spaces and public transport through a multi- officials from different departments, responsible for pronged collaborative approach. setting the vision for the city. GPL is advised by a voluntary advisory committee comprising national and state-level • Mainstreaming gender inclusivity so that it becomes experts including academics and practitioners, as well as a process and a natural element in all city-level by a team of experts from the World Bank. planning and service delivery decisions. GPL is building a coalition of partners for gender Initiatives of the Chennai Gender and responsive urban mobility in Chennai. It plays a crucial Policy Lab – experience in the first role in convening government departments, civil society year organizations, elected representatives, and academic institutions with the objective of providing women Key elements of a gender responsive urban mobility with safe, comfortable, and accessible public spaces. program. The World Bank’s Toolkit for Enabling Gender Of note, it works closely with implementing agencies Responsive Urban Mobility and Public Spaces in India13 of the Nirbhaya program, GCC, MTC, GCP, and SWWE recommends interventions for addressing gender-based apart from CUMTA and CMRL for effective coordination barriers in urban mobility and public spaces under four and leveraging synergies even within the government. pillars (Figure 6.4) to be pursued simultaneously: TOC FIGURE 6.2: LAUNCH EVENT OF GPL (APRIL 2022) Source: The WB team. 128 FIGURE 6.3: KEY ROLES AND ORGANIZATIONAL STRUCTURE OF THE GPL TEAM Provide guidance to officials on integrating gender perspectives in design, policy, operations and maintenance of public spaces, transport and service delivery Design, plan and implement assessments, evaluation frameworks to understand the on-ground realities, implementation gaps and feedback systems on gender inclusion in the selected projects Design campaigns, communication strategies and training plans as per the needs and gaps of the program KEY ROLE OF THE TEAM Facilitate engagement between different government implementing agencies on shared goals Leverage the expertise of civil society groups and build Gender and Policy Lab as platform to facilitate more interaction between the public and government institutions Voluntary Working Group Advisory The World Bank (WG) Committee (VAC) TOC 1. Joint Commissioner of Police - GCP 1. Gender and Disability Urban Mobility Team 2. Additional Director - SWWED 2. Gender, Homelessness and Urban 1. Lead Transport Specialist 3. Deputy Manager Safety - MTC Settlement 4. Deputy Planner - CMDA 3. Urban Transportation 2. ET Consultant (Transport) 5. Assistant Security Commissioner - 4. Community Empowerment 3. ST consultant (Transport and RPF 5. Gender, Safer and Smarter Cities Gender) 6. Joint General Manager - CMRL 6. Addressing Gender Based Violence Main Other Government Government Institution Departments Greater Chennai Police, Social Welfare & Women’s empowerment, GCC HQ & Zonal Offices Metropolitan Transport Corporation, Chennai United Metropolitan Transport Authority, Chennai Metropolitan Development Authority, Chennai Metro Rail Limited Source: GPL Annual Report (2023). 129 CHENNAI’S URBAN MOBILITY TRANSFORMATION Pillar I Assessing the ground situation for understanding gender-disaggregated mobility patterns, safety concerns, and expectations of women commuters, policies, mindsets of duty bearers and right holders, and level of gender inclusivity in the built infrastructure and transport services. Pillar II Strengthening policies, supporting legislations, regulations, guidelines, plan documents, and other manuals, by suitably incorporating a gender lens. Pillar III Building the capacity of duty-bearers responsible for implementing policies, plans, programs, and projects and raising awareness among duty-bearers and rights holders at the community level. Pillar IV Improving the design of the infrastructure and introducing gender responsive services for improving the inclusion and safety of public transport and public spaces. GPL is exemplary in putting theory to practice. GPL under each pillar is presented in Figure 6.5 (based on its has structured its efforts on the four-pillar framework. A first annual report). brief snapshot of the key activities undertaken by GPL FIGURE 6.4: FOUR PILLAR FRAMEWORK – KEY ELEMENTS OF THE GENDER RESPONSIVE PROGRAM TOC 1 2 3 4 Assess the Ground Strengthen Planning Build Capacity and Raise Improve Infrastructure Situation and Policies Awareness & Services • A survey of city-wide • Recommendations • Campaign on • Ongoing support to safety perceptions for Tamil Nadu’s State bystander intervention MTC for enhancing Policy for Women’s - speak up and speak gender responsiveness • Safety audit – Empowerment, 2021 out against sexual among bus services, community led citizens • Provision of detailed harassment including gender usage for the safe mobility recommendations • Night cycling with over audits of bus shelters fellowship for the implementing 100 people cycling to and stops • Assessment of agencies of the reclaim women’s right • Gender usage audits of complaints made to the Nirbhaya program to the city public parks 1913 helpline to enhance women’s • Training programs • Gender usage audits of safety in public for key civic agencies foot over bridges and transport and public in Chennai including subways spaces GCC’s engineers, MTC, • Recommendations and CPL for gender informed homeless shelters Source: The World Bank (2022). India - Toolkit for Enabling Gender Responsive Urban Mobility and Public Spaces. http://hdl.handle.net/10986/38199 130 FIGURE 6.5: GPL’S ACTIVITIES ORGANIZED UNDER THE FOUR-PILLAR FRAMEWORK Pillar 1 Pillar 2 Pillar 3 Pillar 4 Strengthening Assessing the ground Building capacity and Improving existing planning and situation raising awareness infrastructure policies City-wide safety perceptions Recommendations Speak Up, Speak Out • 81 Bus stops have been survey for Tamil Nadu’s State Against Sexual Harassment sanctioned as the result of Policy for Women Gender Lab’s study on Bus • With an aim to understand Empowerment, 2021 • Bilingual safe mobility routes for a cost of Rs.12 gender differences campaign in Tamil and crores in mobility needs & • Highlighted English in MTC buses factors leading to lack linkages of gender over 2 days • 3 Pedestrian pathways of safety, a survey of responsive identified through the • Publicized panic buttons 3,000 respondents (2,400 urban mobility mobility study are being installed in buses women, 100 transgenders, with economy, prioritized and developed through street plays 500 men) was held at education, skilling, for a cost of Rs. 4 crores households, transit points, and elimination of • Bilingual informative • 16 gyms for women under public spaces violence against flyers with 5 key steps to the brand, ‘Empowher’ women follow if one faces sexual TOC • Based on the MTC’s havebeen established harassment distributed ticketing data, the top 10 across the city with Gender to over 600 persons routes spreading across Lab’s list of women friendly 250 locations covering • Initiated a city wide gym equipments as part 500 bus shelters and campaign in August of Mayor Announcement the surrounding 50m 2024 on bystander • 30 new parks developed ecosystem have been intervention using two under the TNHUB scheme assessed to prioritize short video films made adapted the Gender and infrastructure in these to build awareness. Policy Lab’s checklist routes Launched by the for gender inclusive honorable mayor • Consultations and infrastructure during the at a public park, the studies have been held to DPR process campaign incorporates understand usage of parks on ground and social • 176 Locations in 2023 and , public toilets, community media based initiatives 151 locations in 2024 have halls, beaches. to reach the public with been provided new lights the tag line “Thappunu based on 1913 dark spot therinja Pattunu Kelu” (If identification you think something is wrong, question it 131 CHENNAI’S URBAN MOBILITY TRANSFORMATION Pillar 1 Pillar 2 Pillar 3 Pillar 4 Strengthening Assessing the ground Building capacity and Improving existing planning and situation raising awareness infrastructure policies Safety audits – the citizens Developed inputs • Training for 162 high/ for safe mobility initiative for the Chennai higher secondary and was held where a group Intelligent Transport middle school teachers of 22 citizens were trained System to make it on implementing gender to undertake safety audits gender informed training for children across 47 locations in the city in classes 8th and 9th • 196 points closely studied through a gender club for security, cross verifying program conducted response time through 100 every week in the school police helpline • Impact assessment of the training in middle schools has indicates positive results in terms of knowledge TOC andbehavior change with more interactions between boys and girls and some parents reporting greater participation of male children in household chores. The program is now being implemented in 49 schools in the extended areas of GCC. Gender gap assessment Recommendations Night cycling ride with over of women workers in solid for gender informed 100 individuals cycling to waste management homeless shelters reclaim women’s rights to the city • Visits by GPL team to • Advisory provided the areas managed by to the Health the GCC contracted Department and companies engaged in the shelters team solid waste management • The grievance to understand the specific redressal process needs of solid waste in 1913 helpline management workers of has been improved which most are women . to capture 132 Pillar 1 Pillar 2 Pillar 3 Pillar 4 Strengthening Assessing the ground Building capacity and Improving existing planning and situation raising awareness infrastructure policies • In the year 2024, a joint gender -specific study has been conducted infrastructure by GPL in collaboration concerns from with the LEAD at KREA citizens University team to • A citywide understand the problems gender inclusive faced by women who work infrastructure in public spaces. This study manual covering that has covered a sample 16 infrastructures of 491 women including handled by the 411 women engaged in Urban Local body solid waste management, has been prepared 30 in platform based after audits delivery and 50 in postal and extensive services. consultations TOC Assessment of complaints Training programs for key every year made to the 1913 civic agencies in Chennai helpline • Gender mainstreaming • Almost 230,000 complaints training with GCC made to the helpline engineers between July 2021- July • Safety audit training for 2022 assessed to gauge GCC, MTC, CPL, and other women’s safety concerns agencies • Review of 181 helpline with the SWWE department Source: GPL Annual Report (2023). As an illustration of specific initiatives led by GPL, a wider teams at GCC, GCP, CMRL, MTC, and other relevant city-wide perception study on the safety of women stakeholders. Based on a survey of 3,000 respondents in public transport was completed in 2023. The study across Chennai, the results of the perception study broke illustrates GPL’s convening power and thought leadership many previously held myths about gendered mobility when it comes to understanding women’s perspectives patterns. This study now forms a bedrock for future on public transport and identifying concrete solutions planning for safety and inclusion related interventions in for addressing them. The GPL team conceptualized this the city. first-of-its-kind study in India in partnership with the Results from local area safety audits prompted the World Bank, consulting several implementing agencies installation of streetlights and public toilets, giving GPL in Chennai including the Social Welfare Department, the the momentum to initiate citywide improvements in a 133 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 6.6: KEY RECOMMENDATION AREAS FOR BUS SHELTERS AND STOPS Key Recommendations for Bus Shelters and Stops Ligh| Sea|ing Handrailv Bv vhel|er Emergenc— Rampv Signage name and nmberv bv nmberv Tac|ile Space behind Bollardv Wirev, Pedev|rian Toile| Bv v|op flooring bv v|opv elec|rical crovvingv vignv loca|ionv bo–ev and pro|rdingv Source: GPL Annual Report (2023). single comprehensive bus stop project. GPL conducted external stakeholders, shifting from evaluations to direct visits to numerous bus stops across the city and gathered investments and action. It will craft gender-focused TOC inputs from women for developing a comprehensive guidelines for all mobility and infrastructure initiatives manual on bus shelter design and locations. The and assist government departments in developing manual incorporates national accessibility guidelines gender-responsive budgets, with the goal of ensuring and includes recommendations from international that public spaces and transportation are safe, inclusive, sources on bus stop locations (Figure 6.6). These and accessible. Furthermore, GPL intends to strengthen recommendations have been integrated into the tender partnerships with external entities like consulates, for the construction, renovation, and maintenance of bilateral and multilateral financing agencies, academic modern bus shelters, with work set to commence shortly. bodies, think tanks, and the private sector drawing on their expertise and resources to enhance safety and inclusivity for women and gender minorities in Chennai. CURRENT IMPACT In the short term, the GPL team plans on working with GPL’s efforts are making Chennai city safer and more relevant city-level agencies on finding solutions to inclusive for women. Preliminary results (Figure 6.7) challenges highlighted in the Safety Perception study show that GPL has made substantial progress in its first undertaken in 2023, including increasing awareness year in identifying the primary factors contributing to of the 181 helpline, improving street lighting, visibility, the perceived lack of safety in the city. It is also working and walkability in the city, as well as devising clear towards standardizing gender-responsive elements in response mechanisms to incidents of sexual harassment. infrastructure design guidelines. Most notably, the GPL The GPL team plans to undertake a safety audit of key team has succeeded in raising awareness and enhancing areas identified as unsafe in the safety audit, and work the capacity of government agencies to understand with GCP for enhancing patrolling. Moreover, the GPL the necessity for gender-responsive urban mobility team also plans to increase cooperation with MTC to ecosystems in the city. expand services on bus routes frequented by women. In addition, the GPL team wishes to expand capacity Way forward for GPL. GPL aims to expand building activities for all agencies including both collaborations with various government agencies and technical and gender sensitization training. GPL is also 134 ţŨ FIGURE 6.7: GPL’S KEY ACHIEVEMENTS IN YEAR ONE 26 ţū Safeyipin has been priileged yo collaboraye Žiyh yhe Gender and Polic” Lab Žhich is a ~niq~e iniyiayie yo prioriyise Žomen’s righys and safey” Žiyhin ciy” planning. We Žere glad yo see s~ch an enyh~siasyic yeam yhay idenyified gaps in yhe yhe ~rban infrasyr~cy~re ~sing Safeyipin yools. More yhan ţşş safey” a~diys Žere cond~cyed and yhe commiymeny of yhe Lab and yhe corporayion yoŽards gender incl~sion is commendable. The GPL team has provided detailed recommendations to the Nirbhaya program As a result of all safety audits, plans to enhance safety at 65 locations for lights, Figure_4:_Screenshot_of_complaint_portal implementing agencies and different departments in the Government of Tamil for public 23anal—viv alvotoilets, 43 approach roads, 10 bus stops, 5 bus terminuses, and 18 . Wi|h an aim |o iden|if— |he challengev -Dr. Kalpana VisŽanayhů Fo~nderů Safeyipin The helped |o ve ci|ienv da|a v—v|emicall— and identify_Ddark_spotsD_in_the_city Nadu for enhancing women’s safety in public transport and public spaces. railway The ligh| submitted stations ne‘ v|ree| reqev| from to relevant ci|ienv authorities. |he ‘ere anal—ved and ŦŪť vch reqev|v ‘ere ven| faced b— pedev|rianv, evpeciall— ‘omen |o Elec|rical Depar|men|. The Elec|rical Depar|men| af|er erifica|ion vanc|ioned ŦŤŧ ligh| pov|v in ţŧŤ loca|ionv |o addrevv |heve dark vpo|v. ‘hile ving foo|-oer bridgev and pedev|rian vb‘a—v, GPL initiated a_study on_the_safety_concerns_of_footRover bridges_and_pedestrian_subways. The qev|ionnaire ‘av adminiv|ered in Englivh and Tamil. GPL v|died Ũ foo|-oer bridgev TOC and ŧ pedev|rian vb‘a—v acrovv onev coering |he ci|—. ţū The Electrical Department has successfully addressed inadequate street lighting A manual with a checklist for gender-informed bus stop design has been by sanctioning 425 new light posts across 152 locations, enhancing nighttime developed and adopted by MTC. visibility and safety. Wi|h an aim |o iden|if— |he challengev faced b— pedev|rianv, evpeciall— ‘omen ‘hile ving foo|-oer bridgev and pedev|rian vb‘a—v, GPL initiated a_study on_the_safety_concerns_of_footRover bridges_and_pedestrian_subways. The qev|ionnaire ‘av adminiv|ered in Englivh A |o|al of ŦŢŪ revponvev ‘ere and Tamil. GPL v|died Ũ foo|-oer bridgev docmen|ed conviv|ing ofbyrevponvev from and ŧ pedev|rian vb‘a—v acrovv onev The 1913 Helpline has improved its data collection recording the ŤŤũ female revponden|v and ţŪţ male gender of the complainants and introduced new categories for public coering |he ci|—. space safety concerns. revponden|v. Mov| of |he revponden|v fell nder |he age grop of ţŪ-ťŧ —earv, indica|ing more mobili|— de |o accevving Progress is underway with the refurbishment of two foot-over-bridges by GCC and a review of GPL’s recommendations for subway enhancements. edca|ion and engaging in grea|er economic ac|ii|iev. 135 Gender_and_Sanitation. This was conducted jointly w Settlement (IIHS) on May 19, 2022. 78 out of the 102 CHENNAI’S URBAN MOBILITY TRANSFORMATION ťŦ training. A survey form was also administered to cou access to civic infrastructure. Reaffirming |he cave of |aking a v|and againv| gender-baved iolence in pblic placev, GPL condc|ed a 2Rday campaign in December ŤŢŤŤ called ZSpeak_Up;_Speak_Out_Against_Public Harassment@[ The campaign encoraged ic|imv and b—v|anderv |o vpeak p and no| be vilen| in |he face of ve–al GPL’s checklist for inclusive park infrastructure is set for implementation by GCC’s haravvmen|. alvo pblicived I| committees Three internal complaints MTC’v have been established in GCC zones to Parks Department, including sexual harassment prevention training for park address workplace grievances. watchpersons. panic With b||on the spiritv—v|em to build inandel–e inclusive bvev Chennai, GPL orga |hrogh a v|ree| pla— b— in Gender_Inclusive_streets folk ar|iv|v. with World Ba partnership and Development Policy (ITDP). The event, held on Ju participants from GCC and the Chennai Unified Metro (CUMTA). The workshop trained these engineers on g for project planning, gender inclusivity by design, and redesign project. ťŦ As a result of all safety audits, plans to enhance safety at 65 locations for lights, Gender considerations have been incorporated in the Standard Operating 23 for public toilets, 43 approach roads, 10 bus stops, 5 bus terminuses, and 18 Protocols for Urban Homeless Shelters, and the criteria for NGO partnerships railway stations submitted to relevant authorities. have been refined. TOC Reaffirming |he cave of |aking a v|and againv| gender-baved iolence in pblic “Speak Up, Speak Out Against placev, GPL condc|ed a 2Rday Public Harassment” campaign in December ŤŢŤŤ called ZSpeak_Up;_Speak_Out_Against_Public Harassment@[ The campaign encoraged WHAT Ť-Da— Campaign ic|imv and b—v|anderv |o vpeak p and no| be vilen| in |he face of ve–al WHEN December Ťū and ťŢ, ŤŢŤŤ haravvmen|. I| alvo pblicived MTC’v panic b||on v—v|em in del–e bvev The pla” Žas er” informayie. Iy Ŧ Bv Depo|v |hrogh a v|ree| pla— b— folk ar|iv|v. WHERE gies ~s yhe confidence yo syand ~p (CMBT, Broad‘a—, Thiranmi—r and Gind—) againsy se“~al harassmeny. Man” yimes Že don’y speak ~p beca~se Že IMPACT don’y knoŽ Žhay yo do. NoŽů yhay Žon’y be yhe case. I knoŽ so man” Public awareness about women’s rights to accessing the city during late hours seen growth. Žho hae been syopped from has Žomen geyying ed~cayion and access emplo”meny oppory~niyies beca~se Citizen awareness regarding responses to sexual harassment on buses and the use of harassmeny ofsignificantly the 181 Helpline has increased. iss~es. This is a Želcome moe. In facyů yhese 600m_Citizens Sources: GPL Annual Report (2023); the WB team. “Speak Up, Speak Out Against Public Harassment” campaigns sho~ld be done in schools 136 as Žell. developing a gender handbook for urban planning that GPL’s activities and lent her support, particularly will bring together all the gender inclusive requirements for initiatives aimed at raising awareness amongst in infrastructure development for the city. communities. Similarly, considering the importance of Gender • Coordination is key to breaking down silos across inclusiveness in urban development, the Chennai agencies - essential for the cross-cutting efforts Metropolitan Development Authority (CMDA) intends required for enhancing gender responsive urban to evolve its Third Master Plan for CMA as a Gender- mobility. In addition to partnerships with the Nirbhaya inclusive plan. In this regard, CMDA has recently taken program implementing agencies, GPL activities were up a study titled ‘To formulate strategies for Gender also linked with the implementation of CCP.14 This Inclusiveness in CMA’.With the primary objective of allowed GPL to form partnerships with not only MTC mainstreaming gender-inclusive development in the (a Nirbhaya program implementing agency), but also Third Master Plan through spatial planning efforts. This with the Chennai Unified Metropolitan Transport study aims to develop practical and feasible strategies, Authority, the Chennai Mass Rapid Transit System, measures, and recommendations to foster an inclusive, and the Chennai Metro Rail Corporation, which are safe, accessible, and sustainable environment for all all involved in CCP implementation. Representatives genders in the Chennai Metropolitan Area (CMA). It will from these organizations formed a collaborative specifically focus on addressing gender disparities from working group to break down operational silos, a spatial urban planning perspective by assessing key allowing for mutual benefits from shared efforts. For areas such as the availability, accessibility, and safety instance, MTC plans to collect gender disaggregated of infrastructure, mobility, and public spaces/facilities ticketing data soon. Once collected, this data will be within the CMA. used by GCP to augment patrolling on routes heavily used by women, demonstrating a practical approach to leveraging shared data for improved safety and TAKEAWAYS FOR OTHER CITIES service. TOC GPL’s experience offers valuable takeaways for other • Continuous capacity building efforts are critical cities looking at strengthening gender responsive urban for equipping officials in implementing agencies mobility: with relevant skills and technical tools for gender mainstreaming. Over the last two years, GPL, in • New entities need a combination of technical partnership with the World Bank and several other knowledge, political will, and dedicated agencies, has organized gender sensitization training leadership to succeed. While some of the success and technical training on gender mainstreaming for factors relate to the technical expertise available officials from GCC, CUMTA, and MTC. both within the GPL team and through the support offered by the voluntary advisory committee and the • Gender mainstreaming becoming a standard World Bank teams, progress would not have been requirement for the clearance of all project possible without strong political will, leadership, and proposals is key to inclusive mobility. All collaboration between civic agencies. proposals, tender documents, studies, and policies regarding public transport and public areas were • City level activities that are well aligned with vetted by GPL to ensure that they incorporated state and national governments’ priorities are gender perspectives. In the last two years, GPL more likely to receive support and generate has contributed to the design of smart streets, bus political will. Linking GPL activities with state and stops, parks, and public restrooms by specifying national priorities through the Nirbhaya program requirements for gender sensitive infrastructure created a strong political will. The establishment and services in tender documents. Additionally, and functioning of the Gender Lab were in line with GPL is presently supporting CUMTA in the the flagship national level Nirbhaya program. This development of the comprehensive mobility plan, allowed GPL’s interventions to get high priority in the aiming to cater to the specific requirements of all implementing agencies. Moreover, being a young genders. GPL has initiated a significant project by woman herself, the Mayor of Chennai also prioritized commissioning the creation of a Gender Inclusive 137 CHENNAI’S URBAN MOBILITY TRANSFORMATION Design Manual, tailored to the local context in the equipped with schedules and financial plans. This Chennai metropolitan area. This manual is intended approach streamlines project execution, making the to serve as a comprehensive guide for infrastructure outcomes and requirements transparent to decision- project agencies, enabling them to incorporate makers. gender considerations in the planning, design, and construction of public spaces. These initiatives mark a critical step towards creating more inclusive and CONCLUSION equitable urban environments. Cities are innovation hubs with large markets that can • Gender disaggregated data is critical for attract investments, knowledge, and skilled personnel developing infrastructure and service and lead to innovations thereby generating economic enhancements for inclusive mobility. Under opportunities. It is projected that Indian cities could CCP, GPL has initiated processes for the collection contribute up to 70 percent of India’s GDP by 2030 and analysis of gender-disaggregated data, which (MoHUA 2021).15 There is a growing aspiration amongst includes surveys and focus group discussions women, girls, and other gender minorities to take involving both users and non-users across all genders. advantage of better employment, education, healthcare, Safety audits are being conducted to gather extensive and leisure that cities provide. Indian urban local bodies information about the utilization of public spaces and public transport authorities are also increasingly by women and individuals of minority genders, recognizing the gender-disaggregated needs of diverse leading to infrastructural improvements such as commuters and users of public spaces. enhanced street lighting and footpaths. In addition to this, GPL has mandated the collection of gender- GPL’s experience has shown that civic agencies disaggregated data in the tender for the automatic aspiring to launch interventions for developing gender fare collection system for MTC buses. This data will responsive urban mobility ecosystems and public spaces need dedicated institutional mechanisms. With strong TOC facilitate informed route planning, scheduling, and the implementation of gender-sensitive services. political will, steadfast leadership, and a dedicated skilled GPL scrutinizes data from surveys, audits, and group taskforce, cities can implement structured programmatic discussions, converting it into actionable projects interventions for achieving their long-term vision of safer and more inclusive cities for all. Endnotes 1 Mitali Nikore is a Consultant at the World Bank 2 Sarah Natasha is a Consultant at the World Bank 3 Meera Sundararajan is the Team Leader at the Gender and Policy Lab, Greater Chennai Corporation 4 C. Vaishnavi is the Policy Expert at the Gender and Policy Lab, Greater Chennai Corporation 5 Gender-Responsive Urban Mobility refers to the design, planning, and implementation of transportation systems and infrastructure that actively considers and addresses the diverse mobility needs and challenges faced by different genders. This approach aims to create inclusive, safe, and accessible transportation options that ensure equitable access for all individuals, regardless of gender. 6 OMI Foundation (April 2023). Ease of Moving Index - India Report 2022. 7 New Delhi, Punjab, Tamil Nadu, Karnataka. 8 New Delhi, Chennai, Kolkata, Pune, Indore, Hyderabad. 9 Tamil Nadu, New Delhi, Uttar Pradesh, Kerala, West Bengal, Bengaluru. 10 CRUT, Odisha. 11 Chakraborty, Tanika, Anirbhan Mukherjee, Swapnika Rachapalli, and Sarani Saha (2018). Stigma of sexual violence and women’s decision to work. World Development. 103. 226-238. 10.1016/j.worlddev.2017.10.031. 12 Ministry of Women and Child Development, India. 2015. Framework for Nirbhaya Funds. 13 The World Bank (2022). India - Toolkit for Enabling Gender Responsive Urban Mobility and Public Spaces. © Washington DC. 14 The Chennai City Partnership is a project initiated by the Government of Tamil Nadu in collaboration with the World Bank. The project aims to transform Chennai into a world-class city that is green, livable, competitive, and resilient to climate change and other shocks. 15 PIB India. Ministry of Housing & Urban Affairs (2021). Press release. Hardeep Puri. Atmanirbhar India will only be possible if our cities become productive. 138 Photo credit: Anantakrishnan 7: DEVELOPING A METROPOLITAN ROAD SAFETY ACTION PLAN: CASE STUDY FROM CHENNAI Krishnan Srinivasan1, Sudeshna Mitra2, Shyam Srinivasan, and Gerald Ollivier eliminating serious road trauma (Figure 7.2). This INTRODUCTION approach looks beyond road user behavior and the safety of motorized vehicles to inclusiveness and every Safety is at the heart of the sustainable mobility agenda, major element of the road traffic system, which affects and forms part of the UN Sustainable Development safety.4 It is particularly relevant to Indian cities where Goals (SDGs) (Figure 7.1).3 Road crashes are a global road safety issues abound, as do opportunities, levers, public health problem, particularly in fast-growing TOC and the drive to improve the situation. cities in developing countries. Rising urbanization and disposable incomes are leading to rapid motorization This note discusses a systematic approach to tackling without commensurate systemic changes to ensure the rising road crash fatalities in Indian cities based on safety of all users: pedestrians, cyclists, motorcyclists, and the Safe System principles and describes the relevance of four-wheeler occupants. road safety action plans to align stakeholders and impel action on road safety, using Chennai’s example. Cities worldwide are increasingly adopting the Safe System approach to push towards the goal of FIGURE 7.1: UNITED NATIONS' SUSTAINABLE DEVELOPMENT GOALS RELATED TO SAFETY 03 3.6 GOOD HEALTH Ensure healthy lives & WELL-BEING and promote well- By 2020, halve the number of global deaths and being for all at all ages injuries from road traffic accidents 11 Make cities and 11.2 SUSTAINABLE CITIES AND COMMUNITIES human settlements By 2030, provide access to safe, affordable, accessible inclusive, safe, resilient and sustainable transport systems for all, improving and sustainable road safety, natably by expanding pubic transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons. Source: United Nations 139 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.2: THE SAFE SYSTEM APPROACH space, and vehicles are often prioritized over vulnerable road users like pedestrians. Le a d e r s h ip g in g le d It is not all bad news. Some Indian cities have already ow Ta Kn r ge g successfully reversed their road crash situation n tS rri through concerted action. For instance, between 2013 et sfe t in n SAFE Tra g ROAD USE SAFE VEHICLES and 2022, New Delhi, Mumbai and Kolkata reduced their and road fatalities by 20 percent, 26 percent and 58 percent R &D respectively Comprehensive road crash data analysis and Funding ZERO ROAD its annual reporting10 and high-level monitoring have FATALITIES OR helped city agencies in these two cities with formulating ati n g SERIOUS SAFE SPEEDS INJURIES POST and implementing data-driven interventions under all valu CRASH CARE road safety pillars. Experience from developed countries Le g &E also shows that a systematic approach to road safety i g sla rin ti n can keep road crash trauma down, even as motorization i to g on M SAFE ROADS & ROADSIDES goes up. This suggests that there is room to correct the Co n at i rd i -o course of road safety in Indian cities. ting ng Promo Chennai’s road safety situation typifies that of other Source: Small and Addo-Ashong (2021) large cities in India in terms of a growing population, high levels of urbanization and motorization, and a BACKGROUND high number of fatalities. Eleven cities including the big metros of Chennai, Delhi, Bengaluru, and Ahmedabad accounted for half of all city fatalities in the country in Road safety scenario in Indian cities 2022 highlighting the need to focus on road safety in TOC India faces a mounting road safety problem. Road cities (Figure 7.4). crashes took 168,491 lives in India in 2022, causing At first glance, the road safety situation in Chennai immense social, physical, and financial distress to seems to have improved over time (Figure 7.5). The individuals, families, and society; 54,230 (33 percent) of number of reported road crashes and injuries in CMA11 these fatalities occurred in urban areas, with 17,089 (11 has more than halved in the last decade from ~10,000 percent) recorded in the 51 cities with a population over in 2013 to ~4,000 in 2022, but the number of fatalities a million.5 While the share of urban road fatalities in India has held steady, with an average of 1,150 fatalities in the is lower than that in the European Union (40 percent),6 same period. The severity of crashes and likelihood of urban road safety is a pressing concern considering that death has in fact risen over time, highlighting the urgent urbanization is set to almost double in India by 2030. need to tackle the road safety challenge systematically. The road safety apparatus in India has not kept ~4,000 in 2022, but the number of fatalities has held up with motorization trends. Rising urbanization, steady, with an average of 1,150 fatalities in the same disposable incomes, and aspirations, coupled with period. The severity of crashes and likelihood of death the low cost of motorcycles and lack of viable public has in fact risen over time, highlighting the urgent need transport options, has led to rapid motorization to tackle the road safety challenge systematically. (especially of two-wheelers). Between 2009 and 2019, Analyses reveal that vulnerable road users (VRUs motorization in India increased by 159 percent and - pedestrians, motorcyclists, and cyclists) are that of two-wheelers by 166 percent. Consequently, most at risk of death in road crashes in Chennai. road crash fatalities increased by 20 percent, with two- Motorcyclists made up 57 percent of all fatalities, with wheeler fatalities more than doubling over the same pedestrians accounting for another third (Figure 7.6). For period. During the last 60 years, the length of the primary motorcyclists, speeding and/or non-wearing of helmets and the secondary road networks7 increased annually by were key contributors. Speeding was a contributing only 2.95 percent and 1.93 percent respectively,8 whereas factor in 75 percent of all road crash fatalities, whereas the vehicle population grew at a CAGR of 11.05 percent not-wearing helmets was a contributing factor in 48 (Figure 7.3).9 This led to increased competition for road 140 FIGURE 7.3: MOTORIZATION VIS-A-VIS ROAD FATALITIES IN INDIA 1970-2020 Rapid Motorization 350000 India Vehicular growth 1970-2020 (’000) 300000 250000 200000 150000 100000 50000 0 1970 1975 1980 1985 1990 1995 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Cars, Jeeps and Taxis 2-Wheelers All vehicles Vehicle CAGR: ~11% Rising Road Traffic Deaths 200000 TOC India Annual fatalities (1970-2020) 150000 100000 NH Program 50000 0 1970 1980 1990 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 > 10-fold increase in fatalities Source: Road Accidents in India 2012 through 2020, TRW, MORTH, GoI, New Delhi, October 2023; WB analysis. percent of the fatalities (Figure 7.7). Most pedestrian Road infrastructure and limited facilities for VRUs fatalities were due to collisions with motorcyclists. are major contributors to fatalities. Based on Observational surveys revealed that nearly 40 percent the International Road Assessment Program (iRAP) of the vehicles exceeded posted speed limits in the city. classification, 89 percent, 70 percent, and 26 percent In 2022, 32 percent of the two-wheeler riders and 97 of roads are rated 1 or 2-star (on a scale of 1 to 5 with percent of the pillion riders did not wear helmets. This 1 carrying the highest risk), for pedestrians, cyclists, and points to a need to strengthen enforcement against motorcyclists respectively. The high instance of speeding speeding and not wearing helmets. suggests the need for speed calming measures. Almost 141 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.4: ROAD FATALITIES IN THE TOP 11 CITIES IN INDIA IN 2022 Cities that accounted for 50% of all road deaths in Indian cities with million plus population, 2022 60.00 1600 Fatality rate per 100,000 people 1400 Number of fatalities 50.00 1200 40.00 1000 30.00 800 20.00 600 400 10.00 200 0 Ahmedabad Agra Raipur Lucknow Allahabad Indore Kanpur Jaipur Bengaluru Chennai Delhi 2022 Fatalities Fatality Rate India - Urban Fatality rate India - Million plus city fatality rate Source: Road Accidents in India – 2022, TRW, MORTH, GoI, October 2022; WB analysis. half of the motorcyclist fatalities and 41 percent of which should help minimize safety risks to two-wheeler the pedestrian fatalities were due to impact with cars, riders.12 64 percent and 29 percent of pedestrian crashes trucks, and buses, highlighting the need for safer were at mid-block locations and junctions respectively, TOC infrastructure for these users. At the central level, the highlighting the need for better location and number of Indian Roads Congress (IRC) is now formulating a new pedestrian crossing facilities, and improved facilities and code for motorized 2-wheeler lanes. The Ministry of Road reduced speeds at junctions. The city can benefit from Transport and Highways (MORTH) recently proposed to safer infrastructure design for addressing VRUs’ diverse develop such facilities on state highways and urban roads, needs. FIGURE 7.5: CHENNAI ROAD CRASH STATISTICS, 2013-2022 Chennai crash statistics 2013-22 12000 10000 8000 6000 4000 2000 0 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 Crashes Fatalities Injuries Source: Road Accidents in India, TRW, MORTH, GoI, 2022. 142 FIGURE 7.6: ROAD FATALITIES BY USER TYPE IN FIGURE 7.7: CHENNAI ROAD FATALITIES - KEY CMA, 2019 CONTRIBUTING FACTOR CMA - Share of road fatalities by user type in CMA Chennai Fatalities - Key Contributing Factors 2-wheelers VRU 57% Speeding Pedestrians VRU 34% Non-wearing of helmets 3-wheelers 3% VRU Poor facilities for VRUs increasing Cyclists 3% runover risk by heavier vehicles Cars 1% Lack of adequate pedestrian facilities Trucks 1% Poor geometry, layout and roadside hazards Buses 1% 0% 10% 20% 30% 40% 50% 60% 70% 80% 0 10 20 30 40 50 60 Source: GCTP. Source: DIMTS Report on CRSAP, Feb 2023; WB analysis. Current efforts/initiatives/plans for efforts.13 Tamil Nadu’s road crashes came down by 7 percent between 2014 and 2019. Two-wheeler fatalities reducing road traffic injuries due to non-wearing of helmets fell by 28 percent from The Government of India, as well as the Government of 2018 to 2019,14 and emergency response times in urban Tamil Nadu have recognized the enormity and urgency areas came down by 4 minutes between 2016 and 2018 of the road safety challenge and undertaken a range (with an average response time of 14 minutes). of actions (Figure 7.8). Notable among these is the enactment of the landmark Motor Vehicles Amendment Key underlying issues Act in 2019 (see Box 7.1). The road safety challenges in India can be attributed TOC The reduction in road crashes in Tamil Nadu over to two key underlying issues: (i) rapid motorization the last decade is testimony to the government’s combined with a vehicle-first mindset, and (ii) gaps in BOX 7.1: KEY FEATURES OF THE MOTOR VEHICLES (AMENDMENT) ACT (MVAA), 2019 Road Safety Management: Mandates the creation of an independent apex body, the National Road Safety Board (NRSB), to set the national agenda and carry out the often-difficult coordination between the numerous agencies responsible for road safety in India and provide advice to the central and state governments on all aspects of road safety and traffic management. In addition, MVAA emphasizes the establishment of a nation- wide database that will highlight the cause of each crash. Safe Road Infrastructure: MVAA has provisions for holding all entities in road construction and maintenance - road agencies, contractors, consultants, or concessionaires - accountable for the roads constructed, including all new roads to undergo a safety audit during the design, construction, and operation stages. Vehicle Safety: Strengthens vehicle regulations to bring India on par with major car manufacturing nations, by giving authorities the power to recall vehicles or vehicle components that are not found safe either for occupants and/or other road users. It includes provisions for the setting up of automated fitness centers throughout the country, with a centralized monitoring/audit mechanism in place. Safe Road Users: MVAA streamlines the often-cumbersome systems for the registration of vehicles and the issue of drivers’ licenses and reduces the need for manual interventions by enforcement agencies. Post-Crash Care: Further strengthens the provisions of MVA to insulate Good Samaritans from harassment and prosecution when rendering emergency medical care/assistance, including transporting an accident victim to hospital, and provides for cashless emergency medical treatment. 143 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.8: EFFORTS AND INITIATIVES BY GOI AND GOTN IN ROAD SAFETY Road Safety Management Safe Roads Safe Users Post-crash care GOI has • GOI is developing/ GoTN strict enforcement of: GoTN has • Committed to the Brasilia revising road safety • Speeding/running red • Established emergency Declaration to halve road codes through the lights care and crash relief fatalities by 2020, and to Indian Roads Congress centers along several • Helmet-wearing the UN SDG 11.2. highways • Drunk driving • Enacted the Motor • Standard operating • Working hours of tourist/ Vehicles Amendment Act procedures for maxi cab drivers (MVAA), 2019 emergency care • Liquor shops along treatment • Adopted a National Road highways Safety Strategy 2018-30 • Overloading • Developed an integrated Road Accident Database • Use of mobile while (IRAD) driving GoTN has GoTN • Regular high-level reviews • Has earmarked 2% of its of crash statistics and Core Road Infrastructure TOC safety initiatives Development Program • Protocols for: outlays for road safety – Identifying/prioritizing road safety measures – Fatal crash investigation and reporting Source: Learning from road safety outcomes in Tamil Nadu. Presentation by Transport Commissioner of Tamil Nadu, Road Safety Webinar by Gujarat Transport, Roads & Buildings Departments and the World Bank (November 2020). Document not available publicly. institutional arrangements and capacity. These issues are inadequate public transport, grossly inadequate elaborated below. facilities for VRUs like regular spaced crossings, and a heterogeneous traffic mix. Improvements in connectivity Motorization and a vehicle-first mindset. Urban and better traffic flow for motor vehicles have been development patterns and rapid motorization, met with prioritized at the expense of VRUs and best practices in a mindset that prioritizes vehicle movement over the road safety. safety of vulnerable road users, are contributing to road safety issues in the country. Cities such as Chennai have Gaps in institutional arrangements and capacity. The expanded over the last few decades along national and road safety challenge is compounded by: (i) the absence state highways and bypass roads which were once on of accountable and legally mandated entities at the state their peripheries. These highways are now part of the and city levels; (ii) gaps in institutional arrangements and core cities, and function more like urban arterial roads, lack of inter-departmental coordination for road safety but were constructed based on highway design codes, management functions; (iii) low levels of enforcement; making them suboptimal for their evolved functions. The (iv) lack of technical capacity and limited exposure to best road safety challenge in India is exacerbated by rapid safety practices; and (v) limited use of data for decision- motorization, which is driven by growing urbanization making and benchmarking of road safety management and rising disposable incomes and aspirations, performance. 144 FIGURE 7.9: SETTING OF SPEED LIMITS IN CHENNAI POSTED SPEED LIMIT Maximum Speed allowed on a road section to be enforceable by law for overall safety Roadway The adjacent Traffic Other factors characteristics landuse Characteristics • Type of Terrain • Open • AADT • Lateral access • Functional • Residential/ • %age of MTW points/cuts Hierarchy Commercial/ • Presence of • Crash History Industrial VRUs • Footpath • Educational availability • Street lighting Source: Presentation on Guidance Note for Speed Management, DIMTS, Chennai (15 December 2023). In most cities in India, institutional arrangements for calming, and segregation of these modes by the district road safety are dispersed across different state and and city agencies. However, this is rarely done, exposing district-level entities with limited accountability for vulnerable road users to high crash risks. delivery of road safety results at the city-level. As such, In Australia, Netherlands, Norway, and Sweden, safety is not considered systematically in the design and speed limits are set based on crash types, impact operations of city road infrastructure. In Chennai too, forces, and the human body’s tolerance to withstand this is the case with road safety responsibilities spread those forces. The risk of a fatality for a pedestrian across the Highways and Minor Ports Department, TOC involved in a motor vehicle crash, for example, sharply Greater Chennai Traffic Police, and the State Transport escalates beyond an impact speed of approximately 30 Department. km/h (Figure 7.10). In OECD countries, speed limits in Institutional fragmentation has real implications for urban areas do not exceed 50 kmph with 30 kmph zones road safety policies and enforcement. An example in areas where vulnerable road users (including children) of this is the way speed limits are set in Indian cities. are particularly at risk.16 Ideally, the speed limit should be set by the road owning agency based on the functional class of the road, the FIGURE 7.10: FRAGILITY OF THE HUMAN BODY TO predominant adjoining land use, number of lanes, CRASH SPEEDS traffic volumes, crash density, traffic mix, and other road 100% environment features15 (Figure 7.9). The speed limits need to be reinforced by infrastructure treatment which controls motor vehicles to a safe speed and is enforced by the police. Fatality In practice, typically the design speed is taken as the risk posted speed limit, with little input from the works, transport, and police departments. The design speed Side Pedestrian Object Head-on is usually considered the maximum operating speed on Impact a road from the perspective of motorized vehicles, and 0% not based on all road users. As such, based on the current 10 30 40 50 70 110 IRC standards, highways will be designed for a certain Impact speed (km/hr) speed, based on their functional class, without regard Source: Job, RFS. and L.W. Mbugua (2020). Road Crash Trauma, Climate to the adjacent land use, road, and traffic characteristics Change, Pollution and the Total Costs of Speed: Six graphs that tell the story. GRSF Note 2020.1. Washington DC: Global Road Safety Facility, the or other factors. Safety of vulnerable road users is meant World Bank. to be addressed by reducing posted speed limits, traffic 145 CHENNAI’S URBAN MOBILITY TRANSFORMATION Determining a safe travelling speed for any road and urban planning. These action plans typically involve environment depends on the function, design, and use collaboration among multiple stakeholders, including of the road. Table 7.1 shows safe speeds for several road government agencies, law enforcement, transportation types and potential conflicts – safe meaning a speed at and health authorities, community organizations, and which 90 percent of the crashes that take place will cause other relevant entities. Australia, Japan, New Zealand, no serious injuries.17 Sweden, and several EU countries have successfully used RSAPs for improved road safety outcomes (Box 7.2). TABLE 7.1: TYPICAL SAFE SPEEDS FOR ROAD AND SECTION TYPES BOX 7.2: ROAD SAFETY ACTION PLAN Road and section types combined Safe speed 2022-2025, THE SWEDISH TRANSPORT with road users (kmph) ADMINISTRATION Roads and sections used by cars and 30 Under the guidance of the Swedish Transport vulnerable road users Administration, 33 authorities and stakeholders Intersections with possible side-on 50 worked to set forth what they intend to do over conflicts between cars the next four years to contribute to safe road traffic. That work resulted in the Road Safety Intersections with possible frontal 70 Action Plan 2022–2025. The action plan contains conflicts between cars a total of 250 measures, target six priority action Roads with no possible frontal or side- 100 + areas (speed, sober driving, safe cycling, safety on conflicts between vehicles and no for pedestrians (focus on falls), suicide prevention vulnerable road users present and leadership for road safety). The plan is an important display window for Swedish road traffic TOC The practical implications of this in Chennai are safety work and enables various stakeholders to that in residential and high pedestrian areas, find links between their own operations and those including junctions, motor vehicle speeds need to of others. This action plan is the second of its kind be significantly reduced to around 30 kmph. Speed since the Government decided to relaunch Vision reductions of just 5 kmph can reduce fatalities by up to Zero in 2016 and at the same time commissioned 30 percent.18 However, typically speed limits in Chennai the Swedish Transport Administration to lead (and other Indian cities) are set based on the design the collaborative efforts on road safety. The speeds for specific functional classes of roads, which Swedish Transport Administration is the issuer may be much higher than what is appropriate given the of the action plan and is responsible for contents urban context. and conclusions of the report, while each authority and stakeholder are responsible for the implementation of their own measures. Developing and implementing a Road Safety Action Plan International best practices A Metropolitan Road Safety Action Plan is essential for creating a safer and more efficient transportation Cities around the world have sought to resolve road system in urban areas. By addressing multiple facets safety challenges using the Safe Systems approach. of road safety and involving diverse stakeholders, The primary goal is creating a safer and more sustainable these plans aim to create sustainable, inclusive, and transportation environment. A Road Safety Action secure metropolitan environments for all road users. Plan (RSAP) is often the instrument through which this They typically encompass a programmatic and phased approach is implemented. RSAP is a strategic framework approach to crash risk assessment and management designed for enhancing road safety in a country, state, or (adapted from best practices) with targeted, multi- city. It is a comprehensive and coordinated effort aimed sectoral, and resourced actions in the short, medium, at reducing traffic-related crashes, injuries, and fatalities, and long terms for achieving targeted reduction in while also addressing various aspects of transportation 146 road crash fatalities. These are premised on a lucid and by 50 percent by 2030,20 in line with the Government road safety strategy with intermediate and final targets of India’s international commitment. It seeks to enhance and indicators, a phased action plan for achieving the the city’s institutional capacity, policy and monitoring targets, and a monitoring and evaluation framework for framework by taking multi-sectoral measures targeting: assessing the effectiveness of the implemented actions. (i) Institutional capacity for improved road safety management; (ii) engineering measures for safer roads; International best practices emphasize a holistic (iii) enforcement measures targeted at improving safer approach in the development and implementation of user behavior; and (iv) post-crash care measures. RSAPs in cities with a combination of institutional/policy, infrastructure, enforcement, post-crash care, and speed Key issues and deficits under infrastructure, management measures (Figure 7.11). All these should institutions, enforcement, and user behavior were be underpinned by systematic collection and analysis identified through a thorough analysis of available of accurate and up-to-date data on road traffic crashes, crash and non-crash data. For instance, the Road injuries, and fatalities, for identifying patterns and trends Accident Database Management System (RADMS) was and in formulating effective strategies and interventions. used for clear and accurate data on road crashes, and these were systematically categorized and analyzed through a combination of infrastructure risk rating using APPROACH IN CHENNAI the International Road Assessment Program (IRAP) star rating methodology and crash rates (Figure 7.12) to prioritize critical intersections and road corridors for Chennai’s Road Safety Action Plan safety improvements for each category of users (Figures Recognizing the impact of annual city road fatalities, 7.13-7.16). CUMTA initiated the development of a Chennai Road Safety Action Plan (CRSAP)19 in 2020, and adopted it in A total of 469 km of the riskiest corridors were 2023, with a vision of Safe Chennai Roads, free from prioritized for treatment. An analysis based on the TOC fatal and serious injuries for improving the road safety methodology in Figure 7.13 indicated that a combination outcomes in CMA. CRSAP aims to sustainably reduce of infrastructure measures such as mass action and road crash related deaths in CMA by 25 percent by 2026 capital-intensive treatments21 on the prioritized roads FIGURE 7.11: KEY ELEMENTS OF BEST PRACTICE ROAD SAFETY ACTION PLANS • Implement well designed features: • Implement safe speed limits – Intersections Safer roads Coordination Safer speeds • Install traffic calming measures: – roundabouts – speed humps – pedestrian facilities – roundabouts – dedicated motorcycle/bicycle – raised intersections lanes – raised crossings – roadside/central barriers – gateway treatments – traffic signals – lane narrowing – signs and line marking – 30 kmph zones for pedestrians • Regulatory maintain and repair – lower speed limits roads with safety standards • Have a dedicated hotline number • Enforce traffic laws for violations to for crash response Resources Road Safety Promotions deter unsafe behaviour, especially • Ensure a robust emergency medical Mnagement speeding, non-wearing of helmets response system to provide prompt and seat belts care to crash victims • Employ digital technology for • Provide first-responder training to automated enforcement the public • Implement public awareness • Conduct thorough investigations campaigns along with enforcement into the causes of crashes to inform drives to educate communities preventive measures about seat belt and helmet use, • Improve equipment and skills at Post-crash care Monitoring Safer road users avoiding speeding, and respecting trauma care units traffic rules Source: Authors’ illustration. 147 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.12: ANALYSIS OF CRASH DATA IN CHENNAI Comprehensive analysis of 470 km Findings: of high-risk, high volumes roads: • iRAP star rating and analysis • 55% of roads surveyed - below 3-star for • Crash data analysis pedestrians – Poor facilities for pedestrians to walk • Blackspot analysis alongside or cross the road (67% of • Road network characteristics and safety fatalities) assessment – High motor vehicle traffic speeds, which • Non-crash data analysis expose pedestrians to greater risk of injury • 35% of roads – below 3-star for cyclists – Speed • 26% of roads – below 3-star for 2-W riders – Helmet-wearing • Road network characteristics and safety – Seatbelt-wearing assessment – High number of fatalities due to non- – Mobile use wearning of helmets and speeding FIGURE 7.13: METHODOLOGY FOR PRIORITIZING ROADS FOR SAFETY IMPROVEMENTS IN CHENNAI Classified RToad Sections Road user wise Classified Road into Crash Density Bands Sections based on Star Rating • Very High Risk Bands TOC • High (Star rating 1, 2, 3, 4, 5) • Average • Below Average Select Road user wise road Select Very High and High sections that has Star Rating for Crash Density Corridors prioritizing critical corridors < 3 Perform Cross Classificaion Analysis to identify critical road sections with respect to Crash Density & Star Rating Crash Density High Category - B Category - C Category - D Very High Category - A Category - B 1 2 3 4 5 Star Rating List of prioritized Road Sections for detailed intervensions for • Pedestrians • Two Wheeler Drivers • Bicyclist, and others Source: Figures 7.13-7.16: Review and Findings Report 2, Consultancy Services for preparing road safety action plan for CMA, DIMTS (April 2022). 148 and junctions, reduction of average vehicle speeds by i. Safety performance targets: To achieve its vision, 2.5 kmph, and full compliance with helmet-wearing will CRSAP has set Safety Performance Targets (SPTs) result in a savings of 818 fatalities a year (or a 58 percent till 2030 targeting the factors contributing to road reduction from the current year’s fatalities). The benefit- crashes (Figure 7.17). cost ratio of the infrastructure improvements alone was ii. Improved institutional arrangements: Chennai 15:1, indicating a high return for an investment of about has taken meaningful steps to reduce institutional $75 million in mass action treatment. fragmentation and improve road safety governance. CUMTA has established a Road Safety Cell (RSC)22 Key elements of Chennai’s Road with the following responsibilities - oversight, Safety Action Plan interagency coordination, monitoring, evaluation, and reporting of road safety interventions, outputs, CRSAP comprises of four key elements: and outcomes (Figure 7.18). A Road Safety and Non- FIGURE 7.14: PRIORITIZED FIGURE 7.15: PRIORITIZED FIGURE 7.16: CRITICAL CORRIDORS FOR TWO-WHEELERS CORRIDORS FOR PEDESTRIANS INTERSECTIONS FOR IMPROVEMENT TOC FIGURE 7.17: CRSAP SAFETY PERFORMANCE TARGETS • 50% reduction in • At least a 3-star • 50% reduction in • 100% of motorcycle • 100% of all vehicles • 50% reduction in fatalities by 2030 infrastructure star vehicles exceeding riders correctly using occupants correctly drivers testing above • 25% reduction in rating (iRAP) for all the posted speed helmets by 2030 using seatbelts by the legal alcohol fatalities by 2026 road users by 2030 limit by 2030 • 60% of motorcycle 2030. limit by 2030 • 25% reduction in riders correctly using • 60% of all vehicles • 25% reduction in vehicles exceeding hetments by 2026 occupants correctly drivers testing above the posted speed using seatbelts by the legal alcohol limit by 2026 2026 limit by 2026 Source: CRSAP (February 2023). 149 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.18: CMA - ROAD SAFETY MANAGEMENT ARRANGEMENTS CUMTA Governing Body CUMTA CUMTA Executive SECRETARIAT Committee Road Safety Cell + CUMTA Road Consultants Safety & NMT Sub- Committee TOC CUMTA Road Safety Forum Source: CRSAP (February, 2023). Motorized Transport Sub-committee has also been was a 30 percent reduction in fatalities on 880 km of set up to oversee implementation of CRSAP and roads where speed limits were adjusted.24 Similarly, related road safety initiatives in CMA, which has been London saw a 25 percent reduction in fatal or serious conferring regularly on various road safety issues in injury crashes due to the introduction of 20mph the city. To maximize its impact, CUMTA needs to be zones.25 Paris and New York City have respectively fully empowered, and its capacity built for all aspects designated low speed zones for pedestrians and of road safety management, including the power to prioritized the treatment of left-turn pedestrian and set speed limits within CMA (Figure 7.19). bicyclist injuries under its Vision Zero initiative (Boxes 7.3 and 7.4). Closer home, fatality reductions of more The Road Safety Cell will evolve into a full-fledged than 50 percent and 22 percent on WB-financed safe road safety management unit within 3-5 years corridors demonstration projects on state highways (Figure 7.20) in Karnataka and Andhra Pradesh respectively, were iii. Interventions: Experience in OECD and developed achieved primarily due to a combination of road countries shows that roadside enforcement of speed, infrastructure, enforcement, and post-crash care drink driving, and seat belt wearing is extremely activities. Interventions need to be targeted for effective in deterring unsafe roadside behavior.23 In tackling the key contributing factors for crashes in the urban context, in Auckland, New Zealand there Indian cities. 150 FIGURE 7.19: PROCESS OF SPEED LIMIT SETTING IN CHENNAI 1 SPEED LIMIT SETTING State Transport Department District Road Safety Committee Instructs to set Speed Limit at approves the speed limits set by District Level District Administration District Administration Traffic Police Department (GCTP) set the speed limit and send it Help in fixing Speed Limit in for approval from District Road Urban Area Safwty Committee NHAI District Administration Fixes speed limit as pert Central publish the Speed limit in District Government Rule for roads outside Gazette urban area and villages TOC Chennai Port Trust Set speed limit within the limits of Port 2 DEVELOPING INFRASTRUCTURE TO SUPPORT SPEED LIMITS GCC (Greater Chennai Corporation) PWD provides road markings, road provides Speed Limit Signages signages, and speed breakers Source: Interim Report, Road Safety and Engineering Management for the CMA under UMSD, DIMTS (November 2023). Accordingly, the top four priorities that Chennai has locations for reducing pedestrian facilities. The prioritized to reduce its road fatalities are: city plans to implement these interventions along 469 km of the riskiest roads identified through • Safe roads and roadsides: CUMTA is considering the prioritization exercise. Considering that safety mass action and geometric treatment – wider is often neglected in street design, road designs footpaths, kerb extensions, pelican signals, speed were thoroughly vetted to improve facilities and humps/cushions and traffic calming measures, minimize safety risks for VRUs in line with IRC and tabletops and refuge islands, road narrowing, other relevant guidelines. Systematic templates speed tables, signalized pedestrian crossings, for what conditions warrant each type of measure school zone and gateway treatment, and improved have also been developed for city-wide replication road markings and signages at high crash risk (see Figures 7.21-7.24). 151 CHENNAI’S URBAN MOBILITY TRANSFORMATION BOX 7.3: PEDESTRIAN HEAD STARTS AND TURN CALMING AT INTERSECTION IN NYC The New York City Department of Transportation has prioritized the treatment of left-turn pedestrian and bicyclist injuries and started a turn calming program under its Vision Zero initiative. Between 2015 and 2022, the city installed almost 5,000 Leading Pedestrian Intervals (LPIs) at priority Intersections. These signals hold traffic for several seconds at the beginning of the pedestrian ‘Walk’ phase, allowing pedestrians or cyclists to establish their presence in the intersection before turning traffic is permitted to proceed Also, it has started a Turn Calming program, with several types of treatment at junctions. https://www.ptvgroup.com/en/products/traffic-engineering-software-ptv-vistro/knowledge-base/features- the issue of traffic penalties. It is also planning use-cases/leading-pedestrian-intervals - for the gray green picture BOX 7.4: LOW SPEED ZONES IN PARIS enhanced and random enforcement of the TOC https://altago.com/wp-content/uploads/Corner-Design-for-All-Users_Alta_Sept-2020.pdf limits and helmet-wearing using both fixed and Paris has designated low-speed zones known as OR mobile cameras for improving deterrence and “Zone de Rencontre," where vehicles must yield https://www.strongtowns.org/journal/2023/5/16/how-the-design-of-corners-affects-speed - the certainty of detecting and penalizing trafficthe for to pedestrians. These zones prioritize pedestrian crossroads picture offenders. safety by reducing vehicles speeds and enhancing pedestrian comfort and accessibility • Safe speeds: In November 2023, based on a study, GCTP mandated a speed limit of 30 kmph in all residential areas and a maximum speed limit for light motor vehicles of 60 kmph (which is still high by Safe System standards for arterials) in Chennai. Enforcement of these limits will help https://www.ptvgroup.com/en/products/traffic-engineering-software-ptv-vistro/knowledge-base/features- reduce speed-related crashes and fatalities in use-cases/leading-pedestrian-intervals - for the gray green pictureChennai significantly. However, speed surveys under a recent WB-GRSF study show that the https://altago.com/wp-content/uploads/Corner-Design-for-All-Users_Alta_Sept-2020.pdf maximum 85th percentile speeds for arterials OR in Chennai is 50 kmph. Therefore, a further rationalization of speed limits -may for https://www.strongtowns.org/journal/2023/5/16/how-the-design-of-corners-affects-speed the be needed crossroads picture based on the operational speeds and the factors mentioned above. Safe speed limits, along with their enhanced enforcement will help GCTP in reducing road traffic deaths and injuries due https://edition.cnn.com/2021/08/31/europe/paris-speed-limit-climate-change-intl/index.html • Safe road use: GCTP has already procured and installed Traffic Regulation Observation Zones on to speeding. CRSAP has detailed action plans several city roads with ANPR technology, red light associated with each set of interventions. As an violation and speed dome cameras at junctions example, Table 7.2 illustrates the action plan for for automating monitoring of traffic violations, speed management. minimizing human interaction and errors in 4 152 TABLE 7.2: ACTION PLAN FOR SPEED MANAGEMENT Targets • 50% reduction in vehicles exceeding the posted speed limits by 2030 • 25% reduction in vehicles exceeding posted speed limits by 2026 Rationale: A 5% reduction in average speed can result in a 30% reduction in fatal crashes26 Chennai Baseline: 27% of vehicles exceeding the posted speed limit (2021) Actions • Recalibrate posted speed limits on high-risk corridors • Digital enforcement through cameras at high-risk locations • Deploy a small fleet of mobile camera vehicles randomly rotated around hundreds of sites to tackle speeding and improve general deterrence • Use interceptors to target high-speed locations to generate spot challans • Conduct highly visible activity, which has been well publicized – advising motor vehicle drivers that they face a significantly increased risk of detection • Strictly apply roadside challans and license suspensions • Use speed display boards to inform motorists of their speed to slow them down • Run awareness campaigns through road safety videos at road transport offices • Demarcate low-speed zones around schools to reduce risks to school children Timeline • 48 months Funding • Road Safety Fund and GCTP budget allocations • Helmet wearing: Strict enforcement of helmet- toward targets, and delivery of actions by each wearing by GCTP has yielded good outcomes: responsible agency. Once an action plan has been a survey conducted under a WB-GRSF study adopted, there needs to be ongoing reporting by revealed that helmet compliance in Chennai each responsible agency against each action. This TOC improved from ~20 percent in 2019 to ~65 percent reporting task can highlight early implementation in 2022, resulting in a ~48 percent reduction in issues and allow the governing body to take decisions two-wheeler fatalities between 2019 and 2022. or provide direction regarding agency priorities. A However, while helmet wearing of the main rider quarterly report is recommended, and at least an has improved, about 78 percent of the pillion annual report is essential. Each of these elements riders do not wear helmets, and 36 percent of all needs to be identified as a part of the action plan riders do not fasten their chin clips. More than and overseen by the city’s road safety governance 90 percent of women pillion riders don’t wear structure. In Chennai, the reporting arrangements helmets. Strict enforcement of the helmets for have been proposed as shown in Figure 7.25. pillion riders including women will help reduce two-wheeler fatalities further. • Public awareness: Enforcement is most EXPECTED IMPACT IN CHENNAI effective when combined with public awareness The institutional set up in Chennai with representation campaigns for changing behavior. In this regard, from key stakeholder departments and systematic the Kutty Cops project launched in Coimbatore implementation of CRSAP provides a shift in focus that by GoTN for primary school children to play a aims to halve its road fatalities by 2030 and achieve the cop in their houses and ensure that their family SDG goals. members are responsible drivers and follow all traffic rules is worthy of emulation in Chennai and other cities. TAKEAWAYS FOR OTHER CITIES iv. Improved reporting, monitoring, and evaluation: • Robust institutions: Arrangements in the form of A robust monitoring and evaluation program is either a dedicated lead agency or committees at high important for supporting implementation. Ideally, level executive and operational levels are vital for this should help evaluate the strategy, performance 153 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.20: CUMTA - ENVISAGED FULL-FLEDGED ROAD SAFETY MANAGEMENT UNIT CUMTA Governing Board LEGEND ROAD SAFETY CELL EVOLVES INTO DEDICATED Staffing in ROAD SAFETY Member Secretary Staffing in Staffing in Phase-II Phase-I (Intermediate Phase-III MANAGEMENT UNIT (Immediate phase) (Advanced phase) BY 2028 phase) CUMCA Secretariat Management Positions Finance Strategic Urban Transport Digital Knowledge Road Safety Management Enabling Areas Planning Management Integration Management Management Division Support Staff Positions Transport Mobility and Safety strategy Transport Financial Human Resources Planner Specialist Transport and Planning Operations Management Development Researcher Specialist Expert Data Architect Urban Administration Safety promotion Planner and engagement Civil Engineer Legal Expert Information Technology TOC Safety monitoring Monitoring & and evaluation Evaluation Branding, Expert Training Expert Communi­cation Environmental and PR Specialist Environment and Social Cell Social Expert Source: Presentation to CUMTA Road Safety Sub-committee for discussion on CRSAP by the World Bank and DIMTS (August 2022). FIGURE 7.21: EXISTING SITUATION AND RECOMMENDATIONS FOR PEDESTRIANS ON GNT ROAD Recommendations: B2 : Table-top type (Unsignalized Raised) Cossing on divided road Km 0.1, 0.4, 0.6, 0.8, 1, 4.8, 4.9, 5.3, 5.6, 6, 6.2, 6.7, 7.3, 8, 8.4, 8.8, 10.2 Source: Road Safety Audit of Pedestrian Infrastructure and iRAP Star Ratings of Designs of roads in CMA, Presentation by Asian Institute of Transport Development, Chennai (December 2023). 154 FIGURE 7.22: CURRENT SITUATION AND RECOMMENDATIONS FOR PEDESTRIAN SAFETY ON VELACHERY BYPASS ROAD Sl. No. Road safety treatment tamplate Vhainage, km 1 B2 : Table-top types (unsignalize raised) 0, 0.4, 0.9, 1.2 Crossing on divided road 2 B4 : Table-top crossing at unsignalized 1.1 intersections on divided road 3 D2 : Pedestrian crossing at signalised 1.5, 1.8, 2 intersections 4 FP4 : Footpath - provision (no footpath exists) 0, to 0.3; and 0.06 to 2 Source: Same as that for Figure 7.21. FIGURE 7.23: CURRENT SITUATION ON GNT ROAD, ALONG WITH RECOMMENDATIONS FOR SHARED STREET WITH TRAFFIC CALMING TOC Source: Same as that for Figure 7.21. coordination, management, and delivery of all city may result in death or serious injury. Cities should road safety activities. also avoid building pedestrian over-bridges and subways to address the pedestrian-vehicle conflict, • Data-driven decision making: Accurate data on as these often fail to incorporate user behavior. incidence and type of crashes along with a detailed analysis and understanding of the crash’s contributory • Speed management: Safety needs to be directly factors and pedestrian and NMT volumes are essential provided for in cities by significantly reducing motor for policy decisions, prioritizing public health issues, vehicle speeds in high pedestrian areas and indirectly identifying interventions, monitoring trends, and by supporting safe motor vehicle movements on assessing intervention programs in cities. high-volume corridors. • Forgiving roads and roadsides: Cities should • Systematic, proactive assessment of roads: Cities aim to develop a road transport system which with highways passing through them should identify accommodates human error and reduces human and prioritize mass action road safety treatment for exposure to motor vehicle speeds/crash forces that 155 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 7.24: TEMPLATE FOR A SHARED STREET WITH TRAFFIC CALMING Road Improvement Shared Street with traffic Calming Shared Street Table-top crossing Speed hump Template No.: ST Shared street can be created on sections where the road width is inadequate for providing exclusive space for pedestrian to walk along. Shared street should have speed humps (or table-top type crossings) at the start and end and raised table-top type crossings at frequent intervals based on pedestrian crossing demand. Texurws pavement surfacing is also recommended on such sections. This is provided to create a safe, slow-speed section and is effective in lowering crash risk of VRUs. The crossing and traffic calming should have specifications as per IRC and should have adequate build quality. Typical drawing of a shared street with raised pedestrian crossing and traffic calming is shown below. Speed Humps: Speed humps should have dimensions as per IRC recommendations Texured Pavement: Texured pavement Improved Visibility: Transverse bar is suggested in the shared street area marking (TBM) should be provided for for speed reduction. better visibility. Road studs or RRPMs shall be provided on both sides of the Signage and Marking: Signage section along the edge line marking for and marking should be as per IRC better visibility during nighttime. Street lighting should be adequate TOC specifications Design Source: details Same for Figure crossing of pedestrian as that 7.21. at intersections is covered in IRC 103-2022 (section-6.7.1 and section-7). Transverse Bar Marking (TBM) as per IRC 99-2018 and MoRTH circular RW/NH-29011/01/2019-S&R (P&B). IRC 99-2018 (section-3 and 2.3.5). The designs should consider IRC manual on universal accessibility IRC SP 117-2018. FIGURE 7.25: ROAD SAFETY REPORTING ARRANGEMENTS IN CHENNAI STATE ROAD SAFETY COUNCIL CUMTA GOVERNING BOARD STATE ROAD SAFETY AUTHORITY* CUMTA EXECUTIVE COMMITTEE * Special Task Force on Road Safety in place to help establish State CUMTA ROAD SAFETY & Road Safety Authority NMT SUB-COMMITTEE CUMTA ROAD SAFETY CELL DISTRICT ROAD SAFETY DISTRICT ROAD SAFETY COUNCILS COUNCILS UNDER CHENNAI METROPOLITAN AREA Source: Same as that for Figure 7.20. 156 above-grade infrastructure and context-sensitive analysis of crash data for understanding key issues and design for the street below, especially where crashes contributing factors. It should comprise of targeted are dispersed across the road network. safety performance targets and interventions under each road safety pillar/theme, related institutional and governance arrangements, high-priority projects (both CONCLUSION infrastructure and non-infrastructure), and accountable agencies along with timelines and monitoring and Formulation, adoption, and implementation of a city evaluation arrangements. CRSAP is a unique example of road safety action plan along the Safe System principles an action plan that is concretely tied to a-priori defined is an essential first step for metropolitan cities in low- targets using multi-sectoral interventions, with potential and middle-income countries in reducing their road for replication in other metros across India. death tolls. The plan should be premised on a thorough Endnotes 1 Krishnan Srinivasan is a Consultant at the World Bank 2 Sudeshna Mitra is a Transport Specialist at the World Bank 3 United Nations Sustainable Development Goals 4 Martin Small and Tawia Addo-Ashong (2021_ Road Safety Strategies for African Cities: A Guide to Development. Washington DC: SSATP. 5 Transport Research Wing, Ministry of Road Transport and Highways, New Delhi (2023).Road accidents in India 2022. 6 ITF (2020). Best Practice for Urban Road Safety: Case Studies. International Transport Forum Policy Papers, No. 76, OECD Publishing, Paris. 7 Primary comprising National Highways that account for 2 percent of the total network, but with 40 percent of the country’s total road traffic and secondary comprising state highways and major district roads that account for about 3 percent of the road TOC network, with another 40 percent of the total road traffic. 8 Transport Research Wing, Ministry of Road Transport and Highways, New Delhi (2015). Basic Road Statistics of India 2012-13; WB analysis. 9 Transport Research Wing, Ministry of Road Transport and Highways, New Delhi (2023). Basic Road Transport Year Book 2019-20. 10 Delhi Traffic Police (2023). Delhi Road Safety – Data to Action. & Mumbai Traffic Police. 2015-2020. Mumbai Road Safety Annual Reports. 11 Comprising Chennai City, Avadi, and Tambaram. 12 The Times of India (2024). New Delhi. Article. Dipak K Dash. Ministry wants dedicated lanes for 2-wheelers to reduce crashes. 13 Learning from road safety outcomes in Tamil Nadu. Presentation by Transport Commissioner of Tamil Nadu, Road Safety Webinar by Gujarat Transport, Roads & Buildings Departments and the World Bank (November 2020). Document not available publicly. 14 Driven by a 58 percent increase in booking of cases for non-helmet wearing between 2018 and 2019. 15 Discussion on Guidance Note for Speed Management. Presentation by Delhi Integrated Multi-modal Transit System Limited, Chennai (15 December 2023). Document not available publicly. 16 OECD & ECMT. Transport Research Centre (2006). Speed Management 17 Wegman, Fred, Letty Aarts, and Charlotte Bax (2008). Advancing sustainable safety: National road safety outlook for The Netherlands for 2005–2020. Safety Science. 46. 323-343. 10.1016/j.ssci.2007.06.013. 18 The Times of India (2021). Mumbai. Article. Somit Sen. Above 60kmphfor Every 5 kmph the Risk of Injury Crash Doubles. 19 DT NEXT (2020). Article. Road safety action plan to bring down accidents, fatalities in Chennai, suburbs. 20 Chennai Road Safety Action Plan, Report submitted to Chennai Smart City Limited by Delhi Integrated Multimodal Transit System Limited (February 2023). Document not available publicly. 21 Comprising segregated on-road motorcycle and bicycle lanes, footpath improvements, pedestrian fencing, raised pedestrian crossings and refuge islands, signalized pedestrian crossings, curve and junction delineation, lighting, school zone treatment, traffic calming/speed management measures, crash barriers, and removal of roadside hazards. 22 The Times of India (2021). Chennai. Article. Chennai Corporation plans road safety cell to study accidents. 23 Turner, B., S. Job, and S. Mitra (2020). Guide for Road Safety Interventions: Evidence of What Works and What Does Not Work. Washington DC, USA: The World Bank. 24 Australasian College of Road Safety (2024). Press release. Speed management: it’s about saving lives. 25 Transport for London (2023). Press release. Roads across London to be made safer with 28km of new 20mph speed limits on TfL roads. 26 Save LIVES - A road safety technical package. Geneva: World Health Organization (2017). Licence: CC BY-NC-SA 3.0 IGO. 157 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo credit: CUMTA 8: STRENGTHENING METROPOLITAN TRANSPORT GOVERNANCE Shyam Srinivasan, Jeyakumar,1 and Gerald Ollivier action plans, proposing sectoral funding allocations, and INTRODUCTION coordinating across multiple agencies with a stake in urban mobility. With rapid urbanization comes increasing demand for public services such as transport, housing, water, The note traces CUMTA’s origins and journey so far, healthcare, and education. Cities around the world draws on international experience to explain some are grappling with this challenge with mixed results. In of its design choices, and looks ahead at CUMTA’s TOC the transport sector, urbanization has often resulted in future. In doing so, it offers useful takeaways for other increased private vehicle use, with attendant issues like cities facing similar challenges. congestion, air pollution, increased greenhouse gas emissions, road accidents, and a diminished quality of life. BACKGROUND In cities with sustainable transport systems, the An urban transport system requires a variety of recipe for success often boils down to governance. stakeholders for performing a range of activities. Urban Transport Governance refers to the systems and Based on a framework developed by Van de Velde (1999), processes through which diverse actors plan and deliver Kumar & Agarwal (2013) categorized the full range of transport infrastructure and services in a city. It is widely urban transport functions under three levels of activities: recognized in literature that urban transport governance Strategic, Tactical, and Operational, as explained below is of paramount importance with a direct impact on the and summarized in Figure 8.1. quality of urban mobility systems.2 • Strategic functions include defining the broad This note explores the question of urban transport objectives and service characteristics of an urban governance through the lens of Chennai, India, transport system. This could entail developing where a new nodal agency, Chennai Unified a transport vision and a comprehensive mobility Metropolitan Transport (CUMTA) Authority was plan, assessing infrastructure, and financing needs, recently operationalized. The establishment of CUMTA identifying financing sources, defining the role represents an attempt by the government to reduce of public and private sectors, and developing institutional fragmentation in the transport sector in institutional frameworks. Chennai. Once CUMTA assumes its full range of functions, it is expected to improve urban mobility planning and • Tactical functions include detailed planning at the service delivery through articulating a clear vision, project level and regulations. For infrastructure, identifying priority areas for interventions, developing this could involve demand projections and economic, 158 financial, environmental, and social assessments. while some critical functions are not clearly assigned. For services, this could involve network and route This is true of Chennai and many Indian cities, where a planning, establishing key performance indicators, plethora of agencies across all levels of government developing contractual terms, coordinating across (central, state, and city) have a stake in urban transport multiple operators, and monitoring and evaluation. governance. The rules of the game are defined by a Regulatory functions comprise of safety regulations complex framework of acts, rules, regulations, and (driver and vehicle licensing, setting and enforcing guidelines. Some aspects are governed by laws enacted traffic rules, and traffic management), and commercial by the Union Parliament and others by the state regulation (route permits for public transport services legislature. The Chennai case is illustrated in Figure 8.2. and fare setting). Critical functions like multimodal integration, common ticketing or integrated transport and land use were not • Operational functions cover infrastructure covered prior to the establishment of CUMTA. and services. Infrastructure construction and maintenance falls under this layer, as do public There is a strong need for decreasing institutional transport operations which can be further divided fragmentation in large cities. While it is not always into the operations of common and independent possible or necessary to have a single lead agency services. Common services are those required by all undertaking the full range of functions, the bigger the operators such as the provision and upkeep of bus and city, the stronger the value proposition of a single agency. passenger terminals, passenger information systems, revenue sharing across modes, accident recovery, dispute resolution and public relations. Independent APPROACH TAKEN IN CHENNAI services refer to the day-to-day operations of buses, metros, trams, and parking facilities. CUMTA’s Journey in Chennai In cities around the world, multiple agencies at The Government of India has long recognized the TOC different levels of government undertake these value of coordination. The National Urban Transport functions, which could lead to overlapping mandates, Policy (2006) identified the need for strengthening FIGURE 8.1: FUNCTIONS TO BE PERFORMED IN THE PROVISION OF URBAN TRANSPORT Strategic Planning and Policy Formulation Strategic Regulation Planning Tactical Safety Regulation Commercial Regulation Infrastructure Planning Service Planning Infrastructure / Facility Public Construction and Transport Operations Operational Maintenance Common services Independent services Source: Kumar and Agarwal (2013). 159 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 8.2: SPLIT OF URBAN TRANSPORT FUNCTIONS IN CHENNAI PRE-CUMTA CENTER Function Jurisdiction Submission Rail Operations Urban Transport Policy Grants Center IPT Policy State Metro Funding Grants TOD Policy Metro Rail Policy Bus Operations Region STATE Parking Policy City Tariff Policy Review Generation Centre and State NMT Policy Centre and City EV Policy Vehicle Registration & IPT Policy Revenue Generation Issurance of Licence PT Infrastructure State and City Fare Fixation Paratransit Road Infrastructure Center, State and City Bus Operations Budgetary Allocation Toolkits and guidelines Regulation PT Staff Training Bus System Planning Bus Regulation Schemes and Programs Urban Transport Functions are scattered across CITY all levels of government. Certain functions are Parking Policy PT Infrastructure exclusive to a particular level of government, while others are carried out by two or more levels of CMP Preparation Metro Rail Opetrations Road Infrastructure government. Parking Management Land Acquisition Crucial functions such as multi-modal integration, Traffic Management common ticketing, land use and transport Land Use Planning integration are not covered by any agency. NMT Policy NMT Infrastructure Road Safety TOC Source: Deloitte for the World Bank coordination across urban mobility agencies and • Legal basis functions. The national Metro Rail Policy3 of 2017 required • Jurisdiction cities seeking central assistance for metro projects to • Functions establish urban metropolitan transport authorities • Personnel profile and size (UMTAs) for cities. • Management structure and accountability CUMTA was established via a statute in November • Financing arrangements 2010, but it took 10 more years for CUMTA’s operationalization to begin in earnest. In September 2020, the CUMTA Act was amended to designate the Legal Basis Chief Minister of Tamil Nadu as the Chairman of CUMTA, The legal approach for forming a lead agency varies and the Minister for Housing and Urban Development based on context. The lead agency’s role is sometimes as its Vice-Chairman. This set the stage for the progress assumed by an existing government entity at the state with operationalization that has been achieved since or municipal levels. Alternatively, a separate entity can the World Bank-supported Chennai City Partnership: be established for performing the role, through different Sustainable Urban Services Program (SUSP) became approaches: (i) via dedicated legislation; (ii) by leveraging effective in February 2021. existing legislation applicable to commercial entities; (iii) via a government order in the absence of an explicit Today, CUMTA stands out as one of a handful of legislation; or (iv) agencies with different jurisdictions operational UMTAs across India. There were several key such as several municipal corporations, coming together choices that were made in the establishment of CUMTA to establish the entity. and continue to be made as it keeps on evolving. In this section, these choices are examined along six critical While each approach has its pros and cons, best- dimensions to be considered when setting up lead urban in-class international agencies have dedicated transport agencies:4 legislative mandates: 160 • Existing entities such as municipal corporations part of the urban extent, and in Singapore, which is an often have cross-sectoral mandates (education, island city-state, the mandate extends to the entire city. health, solid waste management), and transport may However, several other cities such as Paris (France) or not receive focused attention. State level transport Lagos (Nigeria) have travel demand across municipalities departments may not be attuned to the needs of the within a metropolitan region, requiring lead agencies citizens in a particular city. that can undertake infrastructure and service planning on a metropolitan scale. In such cities, municipalities • Where there are separate entities, government orders generally retain some local functions such as parking, or leveraging existing legislation for commercial traffic management, and the construction and entities may be more expedient. Establishing maintenance of local roads. committees via government orders could bring different stakeholder agencies to the table, but CUMTA is intended as a lead agency for the Chennai such committees are unlikely to endure without Metropolitan Area (CMA). CUMTA’s mandate was dedicated staffing. Corporate entities can operate originally limited to the pre-2022 CMA of 1,189 sq km, along commercial lines and therefore attract talent which excluded key satellite towns. In October 2022, but may not be able to assume regulatory or financial CUMTA’s mandate was expanded in tandem with the oversight functions. expansion of CMA to 5,904 sq km. With this, CUMTA can plan on a metropolitan scale, in close coordination • This leaves dedicated legislation as the preferred with four municipal corporations - Greater Chennai, arrangement for establishing a lead agency. While it Tambaram, Avadi, and Kancheepuram. takes time to draft and pass legislation, lead agencies formed this way are legally independent, and typically have their own staff and financial resources. Functions Transport for London, Land Transport Authority (LTA), The set of functions assumed by lead agencies varies Singapore, and Ile-de-France Mobilites are examples considerably across cities internationally. Going back TOC of lead agencies with legislative backing. to the framework in Figure 8.1, cities have found different ways of defining responsibilities for lead agencies, The approach adopted in Chennai follows considering the institutional landscape prior to their international best practices. CUMTA is backed by a formation, and the size and strength of lead agencies as statutory act. In November 2010, the Government of summarized in Box 8.1 and Figure 8.3. Tamil Nadu (GoTN) passed the CUMTA Act to establish the entity which would oversee, coordinate, promote, and CUMTA has adopted ‘Moving people and freight monitor the implementation of traffic and transportation seamlessly through an integrated, sustainable, measures in the Chennai Metropolitan Area (CMA). safe and resilient transport ecosystem’ as its vision. Although around 17 UMTAs have been established thus When fully operational, CUMTA will be a planning far, the number of UMTAs backed by legislation is much and regulatory body, performing mainly strategic and more limited, including Hyderabad, UTTIPEC (Delhi), and tactical roles in the hierarchy of transport functions, Kochi. This makes CUMTA one of a handful of UMTAs whereas operational responsibilities will continue to be backed by a dedicated act, out of 46 million-plus cities in helmed by line agencies. CUMTA’s steady state functions India.5 In September 2020, the CUMTA Act was amended are summarized in Figure 8.4. to designate the Chief Minister of Tamil Nadu as the Chairman of CUMTA, and the Minister for Housing and One of CUMTA’s key functions is developing and Urban Development as its Vice-Chairman. continuously updating CMP for CMA. CUMTA is in the process of updating an earlier draft of CMP which was restricted to pre-2022 CMA. CMP offers an opportunity Jurisdiction for CUMTA to establish itself in the institutional milieu. Jurisdictions of lead agencies vary based on context, CMP will set the long-term vision for urban mobility in ranging from single municipality to a metropolitan CMA and define a clear implementation and financing region. In cities such as Ahmedabad, the mandate of roadmap for its implementation, which CUMTA can lead agencies is limited to a single municipality, given subsequently administer and track systematically in the size of the municipality and that it covers a large conjunction with line agencies. 161 CHENNAI’S URBAN MOBILITY TRANSFORMATION BOX 8.1: FUNCTIONS ASSUMED BY LEAD AGENCIES INTERNATIONALLY In most cities considered, lead agencies assume strategic and tactical functions, notably strategic planning and policy setting and infrastructure and service planning. This is the case in Lagos, London, Paris, Singapore, and Vancouver. In some of these cities, the lead agencies only cover infrastructure and service planning for public transport (for example, Ile-de-France Mobilites, Paris), with the central government retaining control over national highways and municipalities over local roads. However, in some cases, the lead agency’s mandates also extend to roads such as LTA, Singapore. Lead agencies largely tend not to assume regulatory functions such as traffic management and enforcement, or driver licensing and registration. Traffic management and enforcement tends to be performed by law enforcement agencies, whereas driver licensing and vehicle registration functions tend to be performed by central or state level, rather than city level entities. Singapore, being a city-state is a notable exception in terms of driver licensing and vehicle registration. Responsibility of infrastructure construction and maintenance and common facilities for public transport such as bus stops and terminals vary. TfL, LTA, and Translink in Vancouver assume responsibility for such facilities, whereas in Paris and Lagos, these are left to either central or municipal entities. Lead agencies generally do not operate public transport services but retain responsibility for service planning. This reflects the difference in functions, with service planning undertaken with a focus on public transport as a public good, whereas transport operations are commercially driven. Across cities internationally, lead agencies tend to guide CUMTA’s advancement to subsequent phases of assume their functions over time, especially since operationalization. CUMTA’s staffing will be expanded as TOC they are formed in relatively mature institutional it progresses through the phases and reflect the multi- landscapes. CUMTA will be operationalized in three disciplinary nature of urban mobility. phases. Simpler and core functions of integrated planning and effective coordination have been prioritized up to Personnel profile and size now, with more complex functions requiring greater organizational strength to be added in the medium The staff strength of lead agencies needs to match and long term. Well-defined maturity triggers have their mandates. Given varying mandates across been developed in the operational document to agencies, staff strength can vary from tens of staff FIGURE 8.3: FUNCTIONS ASSUMED BY LEAD TRANSPORT AGENCIES ACROSS CITIES INTERNATIONALLY. SOURCE: KUMAR AND AGARWAL (2013) City Lead Strategic Transport Fare Infras­ Driver Traffic Infras­ Common Public Agency Planning Policy Setting tructure licensing/ Manage­ tructure facilities transport Planning & Service Vehicle ment & construc­ opera­ Planning regis­ Enforce­ tion & tions tration ment mainte­ nance Lagos LAMATA     X X X X X London TfL     X    X Paris IDFM     X X X X X Singapore LTA   X      X Vancouver TansLink     X X   X 162 (LAMATA, Lagos) to several hundred (Ile-de-France Management structure and Mobilites) to several thousand (TfL, LTA). Depending on accountability staff strength, entities either assume full control for a certain layer of responsibility such as service planning or Internationally, lead transport agencies typically have work with other entities/line agencies which may have a decision-making body led by a senior politician or their own teams performing such functions. bureaucrat, supported by a Chief Executive Officer (CEO) and a technical secretariat. In CUMTA’s case, the staff strength is expected to grow as it assumes greater responsibility. As of March CUMTA has a similar structure, with an innovation 2024, two years since its operationalization began in to smoothen decision making (Figure 8.5). Instead of February 2022, CUMTA had 17 full time staff. In phase II having a single governing board, CUMTA has adopted a (years 2 to 5), CUMTA will have 57 staff, and in a steady two-tier governance structure, with a governing board state, beyond 5 years, CUMTA is expected to have led by the Chief Minister of Tamil Nadu, and an executive around 100 staff. While these numbers were codified in committee led by the Chief Secretary of Tamil Nadu. CUMTA’s operations document prepared under SUSP, Overall, the two-tier structure ensures that all agencies the numbers could change based on CUMTA’s evolution with a stake in urban transport in CMA are represented over time. CUMTA’s envisioned staff strength reflects its at the highest levels on the governing board, while role as a coordinating entity. CUMTA will function as a devolving day-to-day decision making in line with the coordinating entity which will guide the efforts of line overall policy and strategy to the executive committee agencies. which would be easier to convene. • The governing board has the ministers of transport In line with its mandate, CUMTA staff have domain and housing and urban development as vice- expertise in transport and urban planning, data chairpersons and includes representation at the integration, environmental and social safeguards, secretary-level from key government departments gender, procurement, and financial management. TOC such as finance, transport, housing, and urban development. FIGURE 8.4: CUMTA’S FUNCTIONS IN THE STEADY STATE Mobility/Transport Plan Research Studies Digital Integration/Data Design Regulatory Management Frameworks & Approvals CUMTA will use the CUMTA will function as a Comprehensive Mobility think tank and understand CUMTA will leverage data CUMTA will amend and Plan to facilitate integration the technological advances for planning and decisions streamline regulations to of transport and land use that can be leveraged to on urban mobility. improve urban mobility planning and optimize. improve overall mobility service delivery. CUMTA will update systems. Comprehensive Mobility Plans regularly. Advocacy and Multi-modal Promote & Adopt Operations Sensitization Integration Innovative Funding Management Mechanisms CUMTA will engage CUMTA will promote CUMTA will oversee different stakeholders multi-modal CUMTA will explore transport operations and identity ways to ingtegration for alternative funding/ in the long run to reap provide coordinated seamless connectivity financing mechanisms operational efficiencies services to transport across transport modes to improve financial users. and modernize the sustainability impact of mass transit. Source: CUMTA Operations Document. 163 CHENNAI’S URBAN MOBILITY TRANSFORMATION • The executive board includes representation from FIGURE 8.5: CUMTA’S STRUCTURE finance, transport, housing, and urban development departments, as well as line agencies with a stake CUMTA Governing Board in urban transport such as GCC – a municipal led by Chief Minister corporation, CMDA, which is responsible for land-use planning for CMA, and public transport operators MTC and CMRL. CUMTA Executive CUMTA sub-committees have facilitated Committees coordination on cross-cutting issues. Since CUMTA’s led by Chief Secretary mandate is the coordination and stewardship of urban mobility in partnership with existing agencies, effective coordination mechanisms are an existential need. CUMTA has leveraged its sub-committees, on Multimodal CEO Integration, Road Safety and NMT, Digital Chennai, and Urban Resilience and Traffic Management, as convening platforms for bringing together different agencies for decisions on cross-cutting issues, including the mobility COO initiatives. Financing arrangements CUMTA Secretariat CUMTA Sub-committees International experience shows that it is extremely • Strategic Planning Division • Multimodal Integration important for lead agencies to have sufficient • Urban Transport Management • Road Safety & Non- financial wherewithal to carry out their coordinating Division Motorized Transport TOC • Fund Management Division • Urban Mobility Resilience role effectively. Control over budgeting and allocation • Knowledge Management Division and Traffic Management • Road Safety Cell • Digital Chennai of funds for the transport sector is a key complement to • Environment and Social Cell any legal mandate to perform a coordinating role. Across • Enabling Services (Administration, Human Resources, Accounts, IT) cities such as Singapore, Paris, and London, lead agencies • Digital Chennai Cell have their own sources of revenue such as license fees, Source: Authors’ illustration. congestion charging, and parking revenues, or a reliable source of subvention from state and/or central budgets. sources such as additional property taxes, additional CUMTA will eventually control funding allocations for development charges, and transfer and development the transport sector in CMA. In the initial stages, while rights charges, recognizing the added value brought CUMTA does not have any of its own revenue generation, by transport infrastructure to property valuations in the the finance department is expected to seek CUMTA’s city. The establishment of UTF will give CUMTA much concurrence for allocations to line agencies such as more control over sectoral funding allocations. This MTC, CMRL, and GCC. In the steady state, when CUMTA should be done once CUMTA is mature and has already has its own funding sources, it can fund urban transport demonstrated its value in the institutional landscape. Any projects directly out of its kitty, in addition to assuming control over funds, targeted by 2027, could be delegated sectoral funding oversight. to CUMTA after in-depth consultations with stakeholder CUMTA is currently funded out of state budgetary agencies for ensuring buy-in and alignment. allocations, but an Urban Transport Fund (UTF) under CUMTA’s control could enhance its role in the sector. NUTP recommends that cities establish UTFs for EXPECTED IMPACT ensuring dedicated funds for meeting urban transport CUMTA’s impact on the urban mobility landscape in needs in cities. In line with this recommendation, a UTF Chennai is emerging. Quantifiable impacts of any new is being mooted in Chennai to be placed under CUMTA’s institution materialize over time, and this is also true of control. The UTF could be funded through novel funding CUMTA. However, there are some encouraging signs. 164 The Government of Tamil Nadu is increasingly looking to getting CUMTA on its feet took a strong push from CUMTA to take on cross- cutting functions which are not the senior management in Chennai. The Government covered by existing agencies. Via the public consultation of Tamil Nadu also saw the value of milestones and exercises as part of the Comprehensive Mobility Plan, disbursement linked indicators under the World Bank CUMTA has become the face of the government for funded SUSP, to incentivize the achievement of key transport issues and has developed a strong social media establishment milestones. presence. CUMTA is also advancing several marquee • An organization is only as strong as its people. mobility initiatives in Chennai: As is the case in most organizations, the importance • Revitalizing the Mass Rapid Transit System given to an organization depends on its people. The (MRTS). CUMTA is playing a pivotal role in the government’s decision to appoint a seasoned officer eventual handover of MRTS in Chennai from the from the Indian Railway Service to head CUMTA is a Indian Railways to the Government of Tamil Nadu, signal of the important role that CUMTA is envisioned with the Chennai Metro Rail Limited as the operator. to play in the institutional landscape and has helped This is expected to improve integration of MRTS with open doors. CUMTA’s staff comprises open market Chennai Metro. hires and secondees from stakeholder agencies. A combination of fresh ideas and established public • Integrated ticketing. CUMTA is developing an sector networks has helped CUMTA start its work integrated ticketing application for improving user quickly. convenience for multimodal trips. • Road Safety. CUMTA has partnered with the • Lead agencies need opportunities to prove their World Bank on several studies and convened key worth. Governments need to manage the initial years stakeholders to deliberate on road safety issues via of a lead agency like CUMTA carefully for ensuring the road safety sub-committee. that they are firmly established in the institutional landscape. CUMTA is leading a range of initiatives TOC • Digitalization. CUMTA will soon be appointing a as described above, providing opportunities for consultant for developing system requirements for demonstrating thought and implementation the Digital Chennai initiative which aims to leverage leadership and value addition. urban mobility data for decision making and improving coordination on multi-year construction • It is a continuous process. Lead transport agencies projects. around the world took several decades to take shape and are continuously evolving. CUMTA too will evolve CUMTA sub-committees have facilitated coordination as it assumes its different functions and grows in on cross-cutting issues. Since CUMTA’s mandate is strength and visibility. the coordination and stewardship of urban mobility in partnership with existing agencies, effective coordination mechanisms are a must. CUMTA has leveraged its sub- committees on Multimodal Integration, Road Safety and CONCLUSION NMT, Digital Chennai, and Urban Resilience and Traffic CUMTA’s journey offers takeaways for other cities looking Management, as convening platforms for bringing at strengthening institutional coordination in urban together different agencies for decisions on cross-cutting transport. CUMTA owes its success so far to a clear vision issues, including mobility initiatives. and backing from the highest levels of the government, an operational roadmap with a graduated approach to CUMTA assuming responsibilities, and opportunities for KEY TAKEAWAYS FOR OTHER CITIES CUMTA to taste success and demonstrate its value to existing stakeholders. Bigger challenges are coming up CUMTA’s experience offers valuable takeaways for other such as assuming some control over funding allocations cities looking at strengthening their urban transport for the transport sector, a milestone under SUSP. In the governance. meantime, CUMTA continues to find its feet and establish • Fledgling agencies need strong champions. While itself as a key node in the urban mobility institutional CUMTA had legislative backing as far back as 2010, labyrinth. 165 CHENNAI’S URBAN MOBILITY TRANSFORMATION Endnotes 1 Jeyakumar is the Special Officer at CUMTA. 2 Kumar, Ajay and O.P. Agarwal (2013). Institutional Labyrinth: Designing a Way for Improving Urban Transport Services: Lessons from Current Practice; Kennedy, C., E. Miller, A. Shalaby, H. Maclean, and J. Coleman 3 Ministry of Housing and Urban Affairs, Government of India (2017). Metro Rail Policy 2017. 4 Kumar and Agarwal (2013). 5 Diagnostic Review and Report on Strengthening the CUMTA Act, Deloitte (2020), for the World Bank. Document not available publicly. TOC 166 Photo credit: CUMTA 9: DATA-DRIVEN URBAN FUTURES: PREPAREDNESS FOR LEVERAGING DATA IN INDIAN URBAN PLANNING Jai Kishan Malik, Shyam Srinivasan, and Gerald Ollivier This note discusses the vital governance mechanisms INTRODUCTION that underpin the effectiveness of mobility data platforms, exploring their intricate relationship with Two prominent trends have emerged in the realm technical features. of advancing urban mobility planning – smart cities TOC and harnessing big data. The fusion of these trends converges in mobility data platforms, pivotal portals Urban Mobility Challenges in India: designed to purposefully disseminate information for An Opportunity for Innovative enhancing city functionality. Big data, with its expansive Solutions and Big Data Integration scope and predictive capabilities, plays a pivotal role in creating efficient and sustainable urban landscapes. India is grappling with a rapidly growing urban It is important to clarify in this context that big data population, witnessing a 3.16 percent annual encompasses not just the enormous datasets typically increase, while the motor vehicle population is associated with the term, but also more traditional growing at an alarming rate of 9 percent per year. In data sources such as vehicle registration records, 2011, 31 percent of the country’s population, totaling network usage data, and transportation infrastructure 377 million individuals, resided in urban areas, a information, which have a vital role in complementing number projected to surge to 600 million by 2031. The and enriching our analyses. The challenges associated with handling vast datasets and coordinating with diverse stakeholders A transformative shift towards data-driven underline the critical role of governance frameworks urban planning is being led by the Ministry of in ensuring the success of mobility data platforms. The technical complexities involved in aggregating, Housing and Urban Affairs (MoHUA) in India modeling, and disseminating data necessitate a cohesive through its DataSmart Cities Strategy (DSC). governance framework. This framework extends beyond Recognizing the pivotal role of city data, DSC the realm of technological intricacies, emphasizing focuses on three pillars - people, process, and the need for coordinated efforts among diverse stakeholders, including platform developers, transport platform - for cultivating a culture of data usage service providers, authorities, and travelers. in governance. 167 CHENNAI’S URBAN MOBILITY TRANSFORMATION urbanization trend is expected to contribute significantly and collaborative governance structure at the city, state, to GDP, with urban areas reaching 70 percent of GDP by and national levels. MoHUA’s emphasis on a privacy- 2030.1,2 However, the surge in private vehicle ownership, first approach aligns with NDSAP, ensuring responsible exemplified by the rapid increase from 55 million in data collection, processing, and sharing. This strategic 2001 to 326 million in 2020 is overwhelming the existing alignment with NDSAP reflects the government’s infrastructure.3 This surge, coupled with a population commitment to ethical data practices. density 13 times that of the United States and three For operationalizing DSC, MoHUA has established a times that of China, poses a critical challenge to urban robust digital infrastructure, including the National mobility and planning in India.4 Urban Innovation Stack (NUIS), comprising of core In addition to these challenges, India is also faced data infrastructure, enabling services, and an urban with transport governance challenges. For instance, solutions platform. Initiatives such as the Open Data as per NUTP 2018, the urban local bodies (ULBs) in the Platform (ODP), India Urban Data Exchange (IUDX), major cities must prepare a CMP to plan for local mobility India Urban Observatory (IUO), and the National Urban challenges adequately. However, an analysis by Verma et Learning Platform (NULP) exemplify practical steps taken al. (2021)5 explains how CMPs in Indian cities typically for implementing this strategy. ODP serves as a central establish targets (for example, increase in modal share repository for machine-ready data, IUDX facilitates of public transit by a specific percentage) but do not secure data access for planning, IUO manages data for present strategies for achieving those targets. Among analytics and decision-making, and NULP addresses other reasons could be that ULBs do not have the right training needs in the urban ecosystem. This holistic tools for monitoring mobility trends in their cities to be strategy, fortified by concrete platforms and informed able to devise effective strategies for achieving their by NDSAP, underscores the government’s commitment targets. to ushering in a new era of data-centric urban planning. The Government of India has recognized the value Other initiatives such as the National API policy, TOC of big data in enhancing urban mobility. In the recent National Geospatial Policy 2022, and the Consent MOVE summit,6 India declared that it is in the process of Management Framework by GoI send a clear signal rethinking its strategy for urban mobility. By embracing to state and city-level authorities to embrace a data- the use of big data for efficient urban mobility planning, driven culture. Through the establishment of governance India aims to introduce new technologies (for example, structures, promotion of data standardization, and the shared mobility) and improving public transportation for creation of a digital infrastructure, the government aims enhancing mobility in Indian cities. A transformative shift to foster efficient and effective urban planning, aligning towards data-driven urban planning is being led by the with global best practices. The multi-layered approach Ministry of Housing and Urban Affairs (MoHUA) in India outlined in DSC, integrated with diverse data policies, through its DataSmart Cities Strategy (DSC). Recognizing positions India at the forefront of leveraging data for the pivotal role of city data, DSC focuses on three pillars - transformative urban governance and underscores its people, process, and platform - for cultivating a culture of commitment to harnessing the power of information for data usage in governance. Underpinning this approach is sustainable urban development.7 A few global examples the appointment of city data officers (CDO) and forming of cities that have integrated big data in urban planning city data policies (CDP), promoting a non-hierarchical are given in Box 9.1. BOX 9.1: INTEGRATION OF BIG DATA FOR URBAN PLANNING: LESSONS FROM GLOBAL CITIES The incorporation of big data in urban planning has become a pivotal aspect of enhancing city functionality and sustainability. This box explores key initiatives in London, Singapore, and New York City (NYC) for deriving insights applicable to urban planning endeavors in India. Transport for London (TfL) has been at the forefront of integrating big data in transport and urban planning. Since 2014, TfL has implemented an open data strategy, publishing real-time information on various aspects of the transport system in popular and common formats (for example, XML, JSON) which has made data 168 accessible and usable for developers. This includes stations, facilities, transit status, disruptions, accessibility, fares, walking, cycling, and air quality. In addition, the agency also actively seeks partnerships with private companies like Waze, Apple, and CityMapper. This collaborative approach has enriched the transport data landscape, fostering an ecosystem where various companies contribute and benefit from shared data. The use of TfL’s data for transport planning spans real-time commuter information, route optimization, air quality monitoring, and infrastructure development for cycling and walking. There are now over 13,000 developers and 600 apps which are actively using this data stream as inputs in their projects.8 The Land Transport Authority (LTA) in Singapore has demonstrated a successful model for integrating big data in urban planning. LTA collaborates with entities like IBM Watson Lab and Microsoft for data analytics and real-time data sharing. The DataMall web portal serves as a repository for both static and dynamic/real- time information related to land transport. DataMall has led to the development of numerous third-party apps and transport business models. One example is the launch of the application Beeline which uses anonymized privately operated bus data as an input and provides demand driven bus routes. New York City collects and manages big data for city transport planning through its comprehensive Open Data initiative. Established in 2009 and legally mandated by 2012, the NYC Open Data portal has seen substantial growth, with over 3,000 datasets available. The success of these initiatives hinges on an active and powerful central authority including open data coordinators, the NYC open data team, and the chief open platform officer, which enables coordination across various institutes. Strategic priorities for NYC's Open Data initiative include improving user experience, strengthening the city’s capacity, and building communities. The initiative reflects a commitment to transparency, government efficiency, and data-informed decision-making. NYC Open Data has played a pivotal role in initiatives like Spatial Equity NYC, where citizens are empowered to TOC visualize inequalities in public spaces, health, mobility, and the environment.9,10 A common thread among these global cities is the emphasis on partnerships for leveraging the potential of big data for urban planning. London actively collaborates with third parties, fostering a vibrant ecosystem where various entities contribute to and benefit from shared data. Singapore, with its focus on innovation and business orientation, engages in partnerships with big international companies, aligning with national strategies. In the transformational phase, it is crucial for cities to recognize the need for collaborations and partnerships. While internal activities are essential, the dynamic landscape of urban planning demands a collaborative ecosystem. This is evident in the approaches of cities like London and Singapore, where the synergy between the public and private sectors propels the integration of big data into the fabric of urban planning. and a vital growth engine for the nation. Its 78.6 billion BACKGROUND USD economy is driven by the manufacturing of electronics and automobiles and providing IT services. Urban Planning Challenges in Chennai’s rapidly growing economy is also faced Chennai with many urban mobility challenges. Chennai is Chennai, a thriving metropolis, and the fourth- susceptible to natural calamities like floods, cyclones, largest urban economy in India is rapidly urbanizing. sea-level rise, tsunamis, heatwaves, water scarcity, and CMA is home to 10.9 million people. The metropolitan earthquakes in varying degrees. The impact of these area officially expanded its boundaries in 2022, and now events extends beyond immediate threats, influencing encompasses key economic satellite towns. This has the efficiency and longevity of urban mobility positioned Chennai as an innovation-driven economy infrastructure, particularly in the face of extreme weather 169 CHENNAI’S URBAN MOBILITY TRANSFORMATION events like floods that disrupt transport networks and supplied, and the status of properties with or without services. An origin-destination analysis done by Ukkusuri municipal water connections. Public transport-related et al. (2022 for the World Bank)11 indicates that economic data such as accessibility, vehicle numbers, terminals, activities remain concentrated near the city center, while schedules, and routes, are collected by CMRL, MTC, and the city is expanding, leading to longer trip lengths and the Railways. Property tax details, environmental data a surge in motorized trips. The mode share for buses from air quality sensors, surveillance feeds, rain sensors, and non-motorized transport has decreased, while and information on road works and infrastructure personal motorized vehicles, particularly two-wheelers, projects are maintained by GCC. Additional datasets have seen a sharp rise. This transition in transportation from GCP, GCTP, CMDA, and CSCL cover various aspects, modes has significant environmental consequences, including police stations’ locations, traffic signals, with transportation contributing 16 percent of the intersections, route optimization, master plan data, and greenhouse gas emissions in Chennai.12 Moreover, layers of mobility resilience and road safety. limited affordable housing and insufficient public The city can also potentially access datasets from transport coverage exacerbate the challenges, restricting third party data providers such as Call Data Records economic opportunities for a substantial portion of the from telecommunication companies. The utility of population who lack private transport means. such data sources was demonstrated through a World As Chennai evolves, integrating big data becomes Bank study on mobility patterns in Chennai, using pivotal for tailored and innovative solutions to anonymized smartphone data obtained from Unacast its unique challenges. Big data enables real-time Inc. and Quadrant. In practice, the city’s attempts at infrastructure monitoring for proactive responses to gathering and using such privately collected data for extreme weather situations, ensuring continuous urban regular decision making have not taken off primarily due mobility. It supports evidence-based policy formulation, to the cost of such data. promoting sustainable transport and bridging economic accessibility gaps. Despite the availability of valuable data across TOC different agencies in the city, there is a notable underutilization of this data for drawing insights and Challenges in Using Data Effectively creating actionable intelligence for city governance. In Chennai’s urban planning landscape, the task This lack of coordination among agencies leads to of data integration poses significant challenges budget and time inefficiencies, duplication of data due to the diverse nature of datasets spread across collection, frequent road cuts disrupting the public, various key stakeholders. The involved departments inability to prioritize key areas for investments in the city encompass a wide spectrum, including GCC, CMDA, (for example, road safety, climate resilience), and lack of CUMTA, CMRL, MTC, Southern Railways (SR), Tamil long-term planning in the city. Nadu e-Governance Agency (TNeGA), the Revenue and Disaster Management Department, CMWSSB, Tamil Many reasons are restricting data sharing among Nadu Water Supply and Drainage Board (TWAD), Tamil agencies operating in Chennai. First, the existing data Nadu Generation and Distribution Corporation Ltd collection efforts by various agencies are siloed. Second, (TANGEDCO), Greater Chennai Police (GCP), Highways the absence of a unified data repository and inconsistent & Minor Ports Department (HMPD), TNRSP, Torrent Gas, data standards exacerbate the problem. Third, the Water Resource Department (WRD), and academics and protocols and frameworks for sharing data in the city are think tanks relevant for the project. Additionally, other still in the nascent stages. Fourth, technical and human pertinent departments in the expanded CMA contribute resource capacity constraints pose significant roadblocks to the complexity of the data landscape. for organizations to embrace advanced technologies and improved processes. Finally, the lack of an integrated data The datasets critical for urban planning are rich and platform (geoportal) adds to the challenges, preventing diverse. TANGEDCO collects information on sector- seamless uploading, access, and utilization of data for wise consumption and demand, spanning industries, spatial planning, thereby resulting in fragmented urban commerce, transport, and households. CMWSSB gathers planning and service delivery. details on water consumption, including month-wise and year-wise metrics, total water supply losses, actual water 170 APPROACH IN CHENNAI the data generated through the delivery of the services provided by them. This process of data generation by Addressing these challenges requires a concerted multiple agencies at the city level requires an institution effort for establishing a unified data repository, at the metropolitan level that systematically synthesizes implementing consistent data standards, enhancing the data. The objective of this institution must be broader data sharing mechanisms, and developing robust than that of individual service-providing agencies in the data governance frameworks. The recent policies city for facilitating the integration of data from multiple issued by Tamil Nadu signify a positive step for addressing sources for more informed decision-making in the city. data-related challenges in Chennai. The Tamil Nadu The establishment of CUMTA in November 2010 State Data Policy 202213 released by the government marked a crucial initiative by GoTN for addressing emphasizes the pivotal role of high-quality data in the challenges of integrated and sustainable urban fostering good governance and informed decision- mobility in Chennai. CUMTA was created for filling making. Encouraging the use and sharing of open data, institutional gaps and resolving overlaps among various the policy aims to enhance transparency and citizen agencies involved in urban transport in CMA. This services. This comprehensive framework provides a move was aimed at streamlining efforts and fostering foundation for effective governance and promotes data- collaboration for enhancing the efficiency of urban driven decision-making. The policy document outlines transportation. The amendment to the original act in key principles and guidelines for leveraging data for the September 2020, placing the Chief Minister of Tamil benefit of the city and its residents. Nadu as the Chairman and the Minister in charge of the The Tamil Nadu government has also established housing and urban development department as the Vice- the Tamil Nadu e-Governance Agency (TNeGA), a Chairman, highlighted the government’s commitment specialized agency responsible for designing and to effective governance in the transport sector. As implementing the e-governance framework in CUMTA undertakes functions to oversee, coordinate, TOC the state. TNeGA has the technical capacity to store, promote, and monitor the implementation of traffic and manage, and analyze spatial and geographical data in transportation measures, including the promotion of different formats. The recent data policy in Tamil Nadu mass passenger transport systems, its role aligns with makes it mandatory for all government agencies in the the broader goals of optimizing urban mobility. The state to share their datasets with TNeGA. The Tamil Nadu formation of CUMTA is integral to the ongoing efforts for GIS (TNGIS) platform has been especially created for improving Chennai’s transportation landscape and its storing and managing spatial and non-spatial datasets functions resonate with the city’s endeavor to leverage from various agencies and using them for efficient data-driven solutions for enhanced planning and implementation of infrastructure plans in the state. decision-making.14 Drawing inspiration from the state level guidelines, Besides being strategically positioned to integrate Chennai has been a frontrunner in taking steps which data from the many agencies operating at the city will transform its governance structure and technical level in Chennai, CUMTA is also expected to have capabilities to prepare itself for using big data in urban the technical capacity to manage and analyze big planning. data. It is expected that CUMTA will play a pivotal role in capturing, consolidating, and coordinating the Data Governance: CUMTA’s role systematic storage and accessibility of digital data and maps related to mobility demand, supply, performance, Despite TNeGA, a metropolitan-level organization is and resilience. By establishing secure channels of regular required for data used in urban transport planning. data exchange and developing a digital data repository, The Government of Tamil Nadu has signaled the need CUMTA will ensure the effective collation and analysis for using data for transport governance through a of data from various urban transport agencies. The comprehensive data policy and facilitated the required agency will undertake big data analysis for enhancing infrastructure through the establishment of TNeGA at the transport, promoting cleaner modes, and facilitating the state level. However, services are often delivered at the emergence of Mobility as a Service (MaaS). Moreover, city level through departments like CMRL, GCC, and MTC it may explore data monetization, publish analytical that are also responsible for storing and administering 171 CHENNAI’S URBAN MOBILITY TRANSFORMATION reports through predictive and prescriptive analyses, overseeing the development of digital solutions for and will manage a command-and-control center. urban mobility and operationalizing the data policy for CMA. CUMTA adopts a tiered governance structure for effective decision-making and implementation. Tasks The Digital Chennai initiative centers around two such as policy formation, mobility plans, and plan reviews key components: the Integrated Urban Development are managed at the top level by the governing board. Platform (IUDP) and the Urban Project Planning The executive committee, the second tier, executes and Management (UPPM) tool. IUDP and UPPM on-ground plans, implements the governing board’s are expected to be pivotal components of the Digital decisions, proposes public transport initiatives, advocates Chennai initiative, focusing on transformative strategies technology solutions, provides suggestions, facilitates for urban mobility and spatial development. These tools coordination, and manages the transport fund. CUMTA is aim to revolutionize data integration and streamline also supported by sub-committees that provide strategic project management across agencies and departments knowledge on niche topics and undertake specific tasks in CMA. proactively. Sub-committees are topic specific, and their IUDP is expected to serve as a unified digital platform scope includes policy formulation, research studies, for the delivery of services in the city and project and program management. Currently CUMTA has sub- management. It will address key challenges such as committees on Road Safety, Multimodal integration, data discoverability, duplication, and security concerns. Traffic Management and Urban Mobility Resilience, and By integrating, storing, and sharing both spatial and Digital Chennai. non-spatial data, IUDP will facilitate modular analytics for a comprehensive understanding of the city services’ The Digital Chennai Initiative performance. It is planned that the tool will include CUMTA is leading a new initiative - Digital Chennai – various use cases, including monitoring mobility service focusing on conducting comprehensive studies and delivery, mapping utilities and transport infrastructure, TOC data collection activities, encompassing spatial and and enabling urban planning and emergency services. non-spatial data, emphasizing data’s crucial role in IUDP’s goal is establishing a comprehensive, multi- shaping urban development and transportation layered framework for data management within CMA. strategies. Under Digital Chennai, it is envisioned that This framework envisions multiple layers: data collection, effective data management can be achieved through processing and integration, AI & ML for simulation and adherence to carefully curated data standards, sharing analytics, and a decision-support layer with stakeholder- policies, and verification mechanisms for the reliability specific use-cases. While TNEGA’s TNGIS currently of the data. These standards and policies are pivotal for provides the data collection layer at the state level, the successfully leveraging data for planning and decision additional layers will be developed through the Digital making in Chennai. Chennai initiative. To enhance urban-level focus and leverage domain expertise, agencies like CUMTA, CMDA, CUMTA formed the Digital Chennai sub-committee and GCC will complement TNGIS’ capacity, particularly to facilitate coordination on this initiative. The sub- for urban and transport-specific GIS applications. committee is aimed at enhancing urban planning and infrastructure implementation practices. This includes The UPPM tool will be designed for enhancing project strengthening institutions in the delivery of sustainable planning, management, and coordination for multi- spatial planning, facilitating coordination between agency urban projects. It will address challenges like various implementing agencies to prevent conflicts, identifying conflicting projects in the early stages, lack of optimizing resources and time, and achieving efficient coordination, and insufficient data. By describing projects integrated infrastructure implementation practices. It in a GIS platform with real-time updates and KPI tracking, is also envisioned that the sub-committee will review the UPPM tool will provide a centralized solution for relevant studies, establish an integrated mobility data effective project oversight. The tool aims to streamline platform for storing and accessing various types of project documentation, improve coordination, and mobility data, and foster inter-agency coordination provide a standardized approach to infrastructure project on the digital aspects of urban mobility. Additionally, planning and monitoring. Furthermore, UPPM can be the sub-committee is positioned to play a key role in integrated with the PM Gati Shakti platform for macro- 172 level project management and planning. To create a addressing challenges related to data discoverability, comprehensive ecosystem, UPPM will also integrate with duplication, and security concerns, these tools could existing digital tools in Tamil Nadu, such as the TN tender revolutionize data integration and project management portal, eOffice, eMunetram, and TNGIS, facilitating practices across various agencies and departments in seamless processes for conceptualizing, approving, and Chennai. monitoring projects. Together, these initiatives are anticipated to lay the The IUDP and UPPM tools will offer practitioners a foundation for a data-informed approach to urban comprehensive, real-time, and integrated solution planning, contributing to enhanced sustainability, for data-driven decision-making and efficient project effectiveness, and resilience in the face of urbanization management. These tools will lay the foundation and climate-related challenges. for a data-informed approach to urban planning and infrastructure development in Chennai, contributing to Way Forward for Chennai enhanced sustainability and effectiveness. The slew of efforts in Chennai will set the stage for the city to use big data to facilitate intelligent urban planning. The following initiatives might be given priority by the EXPECTED IMPACT city under the Digital Chennai program for fortifying it even more: Chennai has taken many meaningful steps for facilitating the effective use of data generated by Chennai will benefit from a standardized template multiple agencies in the city for urban and transport for data collection and studies on urban mobility planning. This includes the formation of CUMTA, which planning. As part of the third master plan development is endowed with institutional powers to gather data process for CMA, the city has commissioned around 50 from various city agencies and the technical capacity to studies addressing various themes, including the built TOC store and analyze the gathered data. The Digital Chennai environment, economy, digitalization, climate resilience, initiative has clearly signaled to various agencies in and transportation services. Private organizations and the city, external consultants, and knowledge partners outside consultants are given charge of conducting about the city’s intent to collect data in a unified manner these studies. Chennai can leverage data gathered and use it for efficient transport governance. Finally, for effective urban planning by rapidly establishing the Digital Chennai sub-committee is working towards a unifying framework for integrating knowledge and developing tools like IUDP and UPPM which will bring the data acquired. This presents an opportunity for the the vision of Digital Chennai to reality. sub-committee on Digital Chennai to create a study The envisioned impacts include an efficient urban template so that the knowledge that is produced under mobility, promotion of cleaner modes of transport, these independent studies can be integrated and used and preparedness for MaaS. Moreover, the exploration more effectively. Furthermore, the format in which the of data monetization and the publication of analytical data is gathered and disseminated for these planned reports through predictive and prescriptive analyses investigations should be standard. are expected to contribute to informed governance and sustainable urban development. The Digital Chennai needs a structured set of protocols and Chennai initiative is expected to: i) facilitate successful a comprehensive framework for addressing the implementation of large infrastructure projects involving identified issues systematically. This objective may multiple agencies and planned in phases over many be realized through the establishment of a committee years; ii) lead to systematic management of assets in composed of decision-makers such as directors and the city (for example, roads, bridges); and iii) establish a general managers from relevant agencies. Empowered robust framework for selecting priority areas for the city with technical capabilities, this committee will undertake such as road safety and climate resilience. a review of multi-sectoral and long-range projects and possess the authority to adjudicate on emerging The proposed IUDP and UPPM further underline issues and conflicts. Furthermore, the committee will Chennai’s commitment to efficient project oversight be empowered to formalize recommendations aimed and streamlined infrastructure development. By 173 CHENNAI’S URBAN MOBILITY TRANSFORMATION at enhancing coordination policies among diverse components of the Digital Chennai initiative, focusing agencies and refining the procedures for reporting key on transformative strategies for urban mobility and performance indicators. spatial development. Drawing inspiration from global cities like New York City, which has a comprehensive Chennai can glean valuable lessons from the Major Open Data initiative since 2009, Indian cities can Capital Infrastructure Coordination Office (MCIC) benefit from similar tools for addressing challenges founded in Toronto in 2008. MCIC uses GIS-based related to data discoverability, duplication, and tools for monitoring the planning of infrastructure security concerns. Tools like IUDP and UPPM can offer projects spanning multiple agencies in the city, thereby a standardized framework for data storage, sharing, identifying conflicts during the planning phase. However, and utilization, laying the foundation for a data- MCIC also has additional protocols for dispute resolution. informed approach to urban planning. For example, it has established agreements and protocols • Fostering partnerships with third-party private among participating agencies for prioritizing specific players: International cities like New York and project types based on their locations. Singapore actively collaborate with third parties, fostering vibrant ecosystems where various entities TAKEAWAYS FOR OTHER CITIES contribute to and benefit from shared data. A few international examples of cities that have successfully Based on the learnings from Chennai and other cities partnered with third-party private players are given in across the world, the following highlight the key guiding Box 9.2. Data monetization can be a strong incentive principles for urban planners in India who aspire to for governments to consider data partnerships. leverage big data for efficient urban planning: • Ensuring privacy concerns and making public data • Establishing a centralized agency with a clear accessible: After ensuring privacy concerns, making mandate and strong leadership: The establishment public data easily accessible to everyone is crucial TOC of CUMTA in November 2010 highlights the for transparency and citizen engagement. Cities importance of a dedicated agency with a clear like New York have successfully implemented Open mandate. CUMTA’s strategic positioning emphasizes the need for a centralized entity to oversee, coordinate, and promote integrated urban transport BOX 9.2: INTERNATIONAL EXAMPLES OF measures. Other Indian cities can draw inspiration PARTNERSHIPS WITH THIRD-PARTY PRIVATE from CUMTA in Chennai, and international examples PLAYERS like Transport for London (TfL) and the Land Transport Authority (LTA) in Singapore, which have Cities can learn from international examples successfully integrated big data in their transport and such as TfL in London, which actively engages urban planning by centralizing efforts and fostering in partnerships with private companies like collaboration among various agencies. Waze, Apple, and CityMapper, enriching the data landscape and fostering an ecosystem for • Enhancing technical capacity for driving the data shared data. Collaborations with third-party revolution: CUMTA’s focus on creating essential roles private players can contribute to technological such as the Mobility and Spatial Development Data advancements and innovations in urban Architect, Application & Software Developers, Cloud planning. Singapore, with its focus on innovations Specialist and the Lead Data Integrator underscores and business orientation, engages in partnerships the significance of enhancing technical capacity with big international companies. Indian cities can for successful data integration. These roles play a emulate this collaborative approach for leveraging crucial part in managing, planning, designing, and the potential of big data for urban planning. supporting data platforms, ensuring the adequacy, Partnering with private players can bring diverse accuracy, and legitimacy of the data. expertise, resources, and perspectives to the table, contributing to more comprehensive and • Developing tools like IUDP and UPPM: The innovative solutions. proposed IUDP and UPPM tools will be pivotal 174 Data initiatives, providing citizens with access to a mobility patterns for effective urban planning. Drawing vast array of datasets. Indian cities can adopt similar inspiration from global cities like London, Singapore, and measures for enhancing transparency, government New York, Indian transport and urban planners can glean efficiency, and data-informed decision-making. key takeaways. Firstly, the establishment of a centralized Striking a balance between data accessibility and agency, exemplified by CUMTA with a clear mandate privacy considerations is key to building trust and and strong leadership is pivotal. Secondly, enhancing fostering a collaborative approach in urban planning. technical capacity, as seen through CUMTA’s crucial role, drives the data revolution. Thirdly, developing tools like the Integrated Urban Data Platform (IUDP) CONCLUSION and Urban Project Planning and Management (UPPM) are essential for standardized data utilization. Fourthly, The evolving landscape of urban planning in India fostering partnerships with third-party private players, necessitates innovative approaches for tackling as demonstrated by international collaborations, can complex challenges and the integration of big data bring innovations to urban planning. Finally, ensuring emerges as a crucial paradigm shift. Traditional privacy concerns and making public data accessible reliance on actively collected data through surveys has strike a balance vital for transparency and citizen limitations, including small sample sizes and infrequent engagement. As Indian cities embark on leveraging big collection intervals. This technical note underscores the data for urban planning, these key principles will serve transformative potential of big data, acquired passively as a comprehensive guide for informed and sustainable from sources like mobile phones and social media, decision-making. offering continuous, real-time insights into human TOC Endnotes 1 Niti Aayog (2021). Reforms in Urban Planning Capacity in India. 2 McKinsey Global Institute (2010). India’s urban awakening: Building inclusive cities, sustainable economic growth. 3 Statista (2023). Number of registered vehicles across India from financial year 1951 to 2020. 4 United Nations. Department of Economic and Social Affairs (2019). World Population Prospects, Data Booklet. 5 Verma, Ashish, Harsha Vajjarapu, and Gayathri Harihara Subramanian (2021). Evolution of Urban Transportation Policies in India: A Review and Analysis. Transportation in Developing Economies. 7. 10.1007/s40890-021-00136-1. 6 PIB India. Niti Aayog (2018). Press release. MOVE: India’s First Global Mobility Summit 2018 to be inaugurated by the Prime Minister on 7th September. 7 WEF in colloboration with MoHUA, GoI and Deloitte (2020). Technology and Data Governance in Cities Indian Smart Cities at the Forefront of the Fight Against COVID-19. Insight Report. 8 Kriukelyte, Erika (2019) The transport sector in transition – different pathways of handling transport data in urban regions of Helsinki, London, Oslo and Singapore 9 NYC Office of Technology and Innovation & NYC Open Data (2023). Technical Standards Manual. 10 NYC Records and Information Services (2023). NYC Open Data - 2023 Progress Report. 11 Ukkusuri, S., S. Mittal, S., and T. Yabe (2022) Accessible and Resilient Transit Planning leveraging Big Data Analytics For Chennai Metro Transport. The World Bank. Internal document. 12 Analysis for C40 (2022). Based on the global protocol for community scale greenhouse gas emission inventories. 13 Information Technology Department, Government of Tamil Nadu (2022). Tamil Nadu Data Policy – 2022. 14 Deloitte (2021). Chennai City Partnership: Operationalization of Chennai Unified Metropolitan Transport Authority (CUMTA) prepared for the World Bank. Internal document. 175 CHENNAI’S URBAN MOBILITY TRANSFORMATION Photo © Gerlad Ollivier 10: PRACTICAL USE CASES OF LEVERAGING DATA FOR URBAN MOBILITY PLANNING Jai Kishan Malik, Shyam Srinivasan, and Gerald Ollivier Urban transport planning is increasingly enriched INTRODUCTION by a diverse array of data sources, extending beyond traditional research-oriented datasets. Table 10.1 Technological innovations are generating new data summarizes the broad categories of data sources that sources that could transform traditional transport can be leveraged for urban mobility planning. The planning. Data generation as a byproduct of automation categorization is inspired by OECD (2013)3 but tailored and digitization is emerging as a transformative force TOC to the specific case of urban mobility planning. The first with unprecedented opportunities in urban mobility includes data related to official registration or licensing planning. Big data not only presents a wealth of requirements (for example, vehicle registration data, information but also elevates the granularity of spatial license data). Data such as ticketing data from public and temporal details beyond the confines of traditional transportation and taxi ridership form the category of surveys. Its unique potential lies in identifying patterns commercial transaction data. The tracking data category previously elusive through conventional methods. The includes the sources of new data services made available raw nature of big data analyses, free from assumptions due to cell phone and internet use. These include data in purposeful data collection, facilitates a deeper from navigating smartphone apps, call detail records understanding of the movement of human beings data, and data from other kinds of tracking such as CCTV in time and space, offering insights into time-of-day images at traffic intersections. Data about the mobility dynamics and day-to-day fluctuations. Yet, it is important infrastructure such as roads, footpaths, and cycle paths, to clarify that in this context, big data encompasses not just the enormous datasets typically associated with the term but also more traditional data sources such as vehicle registration records, network usage data, and Chennai’s initial steps in leveraging big data transportation infrastructure information, which have a for urban mobility planning, while modest, vital role in complementing and enriching our analyses. are laying crucial groundwork for a data- Continuous monitoring, offered by some big data sources, introduces a dynamic dimension to transport driven future. These efforts, including the planning. The ability to detect unforeseen trends and development of KPIs, pilot studies using mobile changes (for example, natural disasters) provides a phone location data (MLD), and CCTV-based platform for more contingent planning, steering away from exhaustive upfront analyses. This opens the door pedestrian counts, are positioning the city on for trial-and-error approaches, leveraging continuous a trajectory like data-savvy metropolises like feedback for gradual policy adjustments through a series Seoul, São Paulo, and Singapore. of nudges rather than a sudden and drastic policy.1,2 176 can be critical in creating indicators such as accessibility facilities maintained by the agencies such as traffic measures or walkability scores of neighborhoods. signals and train service alerts, can inform smart urban Another dataset category includes information about planning. the delivery of services. For instance, many public This technical note aims to create awareness among transportation agencies worldwide distribute relevant urban mobility practitioners in India about the kind information about their transit system like schedules, of data analytics that can be conducted using these routes, fares, and transit details, through the General new data sources for informed and efficient urban Transit Feed Specification (GTFS). Having data in a planning. The following section showcases some of universal format is beneficial for benchmarking service the use cases of big data analytics, which has enabled a delivery and comparing across geographies. GTFS data smarter way to plan for urban mobility services. can also be made available in real-time. Finally, regularly updated, or real-time data on the status of assets and TABLE 10.1: CATEGORIZATION OF A TYPICAL DATASET USED IN URBAN MOBILITY PLANNING Category of Data Typical example in urban Specific links Typical owners of the mobility planning data Government and other Vehicle registration and transfer Vehicle registration in New Government-state level registration records data York Commercial Ticketing data at public Farecard Transactions Public transport transactions transportation on Public Transport in operators Singapore Taxi ridership data TNC data in Chicago Private taxi companies Tracking data Location-based database from Spectus, Unacast Third-party apps TOC smartphone apps Data from navigation apps Waze for Cities Third-party apps Call detail records data of Orange's Data for Third-party apps phone calls and SMS exchanges Development CCTV images at traffic Traffic Images Government-city level intersections Infrastructure data Data on cycling/walking lanes, Tfl data on active mobility Government- city level cycle parking, and signals Building activity/land-use data Building activity data, Government- city level Australia Road infrastructure Road infrastructure data Government- city level maintained by Singapore Public transportation data: bus/ Public transport Government- city level rail stops, locations and lines infrastructure data in Singapore Public toilets’ location data Tfl data on toilets Government- city level Service delivery data Operations data for public GTFS Government- city level transportation - fares, schedules, routes (real-time and static) Car park availability data Singapore's Car Park Third-party apps availability data Asset management Real-time operational status Singapore's dynamic data Government or private data of assets like traffic lights, train service providers lines, and train service alerts 177 CHENNAI’S URBAN MOBILITY TRANSFORMATION Typical Use Cases of Big Data Under the Chennai City Partnership, CUMTA and the World Bank5 outlined a data-driven and accessibility- Analytics in Urban Mobility informed mobility framework in CMA. This framework This section discusses the transformative potential of big includes six objectives – Green, Resilient, Inclusive, data and analytics in shaping urban mobility planning. Efficient Development, Safe, and Innovative – reflecting By exploring concrete examples from cities worldwide, the city’s development priorities. A suite of 70 indicators this section showcases the diverse applications and derived from international best practices and covering promising outcomes emerging at the intersection of big various dimensions of sustainable transport was data and urban planning. Specifically, the section covers suggested for measuring these objectives. Some of these five sets of use cases from India and internationally: (i) indicators will be integrated in the forthcoming update KPIs for smart cities, (ii) use of continuous monitoring and of CMA’s comprehensive mobility plan, emphasizing trial-and-error approaches for urban policy innovations, equity in transport access and public transportation (iii) machine learning and computer vision for road safety, modes including Chennai Suburban Rail and ride- (iv) big data for public transport in Sao Paulo, Singapore, hailing services. The selection of internationally used and Seoul, and (v) use of call data records for discerning KPIs is expected to facilitate comparisons and enable mobility patterns in Chennai. prioritization of crucial aspects of mobility. Additionally, the approach recommends using data standards and Case 1: Key Performance Indicators: real-time indicators, providing a holistic understanding Planning, Measurement, Real-Time of CMA’s mobility while facilitating informed decision- making. It is important to note the challenges that cities Insights, and Visualization for Smart face in this area. One of the key challenges is updating Cities and maintaining data and monitoring these KPIs. Cities and urban areas are complex and dynamically Updating the GRIDS KPI in CUMTA’s CMP every couple evolving. Big data, high-speed internet connectivity, and of years requires investment in data capture and data TOC advanced data analytics have led to the generation of processing. real-time KPIs in cities with fine spatial granularity. These KPIs have varying data requirements, and cities may KPIs offer a way for the cities to have measurable targets prioritize them based on development needs and for their long-term vision and periodically track the data availability. Some indicators can be calculated success of the initiatives taken for achieving their goals. using data from authorities and open data sources. For KPIs play a crucial role in urban mobility planning, example, in the Chennai framework, a KPI – connected fostering efficient resource allocations and strategic footpath network – requires a geospatial footpath network decision-making. Globally, investments in urban and locations of points of interest. These simple indicators transport underscore the critical role of mobility in can help identify areas that need improvements and driving economic prosperity. Notably, Singapore’s gaps in mobility. Indicators used at a later stage are more partnership with the International Telecommunication complex and require specific infrastructure or surveys for Union (ITU) in 2015 exemplifies the adoption of KPI gathering data. One example is the cost of congestion KPI, frameworks for measuring progress in becoming a Smart which requires traffic flow speeds along corridors during Nation.4 In India, data integration for urban mobility is in peak and non-peak hours. Such a KPI can be reliably its nascent stages, hindering comprehensive decision- generated using data like Waze for Cities data, described making. Addressing this challenge requires robust data in more detail below. Policymakers in cities can prioritize governance frameworks and governmental support indicators based on the needs of their cities and how for digital mobility solutions. By embracing KPIs and easily this data can be shared. advancing data governance, cities can navigate the A natural progression after cities start collecting KPIs complexities of urban mobility, fostering sustainable is the development of dynamic urban dashboards. development and enhancing citizen welfare. Well- These dashboards offer a comprehensive approach for structured KPIs can help cities track progress on urban collecting, storing, and displaying a diverse range of mobility goals, prioritize projects, and evaluate the real-time and trend data for key city metrics. Box 10.1 outcomes of discrete projects. illustrates the case of the CityDashboard in the United Kingdom. 178 BOX 10.1: DASHBOARD IMPLEMENTATION IN THE UNITED KINGDOM CityDashboard,6 is a data-driven website offering real-time metrics for various cities in the United Kingdom. Each city's live metrics are presented as widgets on the main page, continuously updated without refreshing (Figure 10.1). The platform collects data from third-party open data platforms and city data platforms, normalizes it, and archives it, providing users with an updated city overview without straining data sources. The data is served in CSV, JSON, or HTML widget formats, acting as a rudimentary API for different research and application projects. The platform supports 8 cities, including London, with the flexibility to add new widgets rapidly. It visualizes data on an interactive map. Using APIs from JQuery, OpenLayers, and Google, a variety of data providers are the source of the data used in the display. Viewers can watch real-time data on public transportation operations, traffic camera feeds, and the availability of public bikes. The dashboard also includes data from fields other than transportation - the stock market, weather, air pollution, river levels, electricity consumption, Twitter trends related to London, and the city's happiness index. Sydney’s CityDash7 showcases a highly advanced application for such dashboards. The backend API of CityDash is integrated with the real-time GTFS feed of Transport for NSWof creation dashboards’ ‘city for (TfNSW) (see Figure creating a transportation map1), which the displaying provide real-time locations with citizens real-time of different data modes of about various aspects of the city, such as weather, air pollution, and complemented by transportation such as buses, trains, ferries, and light rail. Furthermore, the integration of CityDash with Google Analytics generates data on how users interact with the platform, which is critical for generating insights into visualisation sites that create real-time maps, etc. (London Dashboard). how such platforms are being used by the public.8,9 FIGURE 10.1: SNAPSHOT OF THE CITYDASHBOARD IN LONDON TOC Source: Borrelli et al. (2016).10 Figure 1: The London City Dashboard (Source: http://citydashboard.org/london/) One of the goals for cities is streamlining data one of the KPIs measures how easily women access collection and investing in technical capabilities jobs using active modes and public transportation in that allow the development of dashboards like the Chennai metro area, at the level of transportation Such those ‘big data’ in London mechanisms and Sydney. provide Several Indian powerful cities ‘aanalysis means zones (TAZs). To of making carry sense the out this analysis, of, managing and on are now planning living the data in new utilizing in thefor city sources here-and-now’ dataset included (Kitchin, 2014: information maps containing p7). These on big TAZ generating and visualizing KPIs, albeit static, at a boundaries, population distribution, points of interest, data instruments provide the basis for developing a more efficient, competitive and high level of spatial granularity. For instance, in an road network, and GTFS feed from public buses and arguably sustainable ongoing engagement and transparent with Chennai, the World Bank but they city, railways. also Other KPIs raise measureconcerns about, the performance of for the example, demonstratedthe politics how the city of big can urbanvisual generate data,KPIs technocratic governance city in terms and of the resilience of city development the transport network, (assuming that all aspects of a city can be measured and monitored which is clearly using already available data. As seen in Figure 10.2, environmental impact, and safety. 11 narrow in scope and reductionist/functionalist), the corporatisation of governance and a technological lock-in, buggy, brittle and hackable cities, and the creation of panoptic 179 cities. CHENNAI’S URBAN MOBILITY TRANSFORMATION Create Learn Sign In Join the DataFam on January 30 for a free, virtual event focused on Community + AI. Register now → FIGURE 10.2: ACCESSIBILITY ANALYSIS FOR WOMEN IN CHENNAI Deeper Dive on Accessibility by Ali Al-Sammarraie 3. 30-Minute Neighborhoods Accessibility: 30-Minute Walking to Affordable 30-Minute Walking / Cycling Coverage to 30-Minute Job to Housing Ratio Accessible Jobs Population 1. Access to Jobs Transportation Modes Common Services (30-Minute neighborhoods disaggregated by Ward) (On Average) (general) 2. Low-income HH A… 3. 30-Minute Neighb… 4. Access for women… 14K 12K 10K 30-Minute Accessible Common Services 8K © Mapbox © OSM © Mapbox © OSM © Mapbox © OSM Filter by Q… 20% 100% Filter by Q… 20% 100% Filter by Q… 20% 100% 6K Quantiles (5, Adaptive) Lowest | Mid | Highest 4K 20% 100% 30Min-Accessible Common Services Heatmap (from TAZ 30Min-Accessible Transportation Heatmap (from TAZ 30Min-Job to Housing Heatmap (from TAZ geographical geographical centers) geographical centers) centers) 2K 0K Neighborhood Common Services Affordable Transportation © Mapbox © OSM © Mapbox © OSM © Mapbox © OSM © Mapbox © OSM View on Tableau Public Share Source: World Bank analyses. Details Case 2: Leveraging Continuous 0 573 trend of public participation in planning processes. The transparent, data-driven nature of continuous Monitoring and Trial-and-Error Deeper Dive on Accessibility Published: Jun 30, 2021 Updated: Dec 7, 2022 monitoring not only fosters public trust but also Approaches in Urban Policy encourages active engagement. Visualizations have Innovations Explore more data visualizations become a powerful tool, translating complex data Real-time data sources are enabling dynamic and flexible into accessible formats that resonate with the broader TOC policymaking. In the realm of urban policy innovations, public, fostering a sense of inclusivity in the decision- the conventional approach of exhaustive analysis before making process. As cities worldwide grapple with the implementation can be resource-intensive and time- complexities of urban mobility, this paradigm shift consuming. The Visualparadigm Vocabulary shift towards continuous The Tableau Chart Catalog towards #VOTD Tutorialscontinuous of visualizations monitoring emerges HR Attrition Dashboard | VOTD | as a beacon for #IIBAwards'22 monitoring, fueled by the wealth of real-time data from Andy Kriebel Kevin Flerlage more adaptive, citizen-centric Lilla Rasztik Pradeep Kumar G policymaking. sources like the Waze for Cities12 dataset, opens up new 7,804 4,003,933 5,241 332,829 4,900 133,046 4,103 239,286 avenues to adjust policies during implementation. Rather BOX 10.2: BOGOTA’S EXPERIENCE WITH DATA than committing to rigid, one-size-fits-all strategies, this DRIVEN TRAFFIC MANAGEMENT approach enables a series of iterative nudges—gradual adjustments based on ongoing feedback. Continuous Context: Bogotá faces significant traffic congestion monitoring facilitates a your trial-and-error methodology, (ranked eighth globally in 2021). To tackle this, the 10 hacks to make dashboard The Tableau Book of Calcs Superstore Dashboard World Happiness GREAT! - #VOTD allowing policymakers to adapt swiftly to evolving Sara Hamdoun urban city introduced Pico Priya Padham y Career Google Placa Certifiin cates1998, a pioneering Louis Yu dynamics. 3,816 117,447 3,388 394,325 vehicle restriction policy. Despite its success in 2,880 220,648 2,570 261,611 reducing congestion, air pollution, and accidents, This shift is particularly impactful in the context of it led to increased car ownership, particularly traffic management policies, as exemplified by Bogotá’s among high-income households. In 2020, the experience. Ivarsson and Stokenberga’s (2022)13 authorities introduced PyP Solidario, allowing car analysis of the city’s policy modifications in 2022, owners to pay for passes to opt out of restrictions, Sample Superstore - Sales 20 ways to design your KPIs | 12 Tiny Dashboard Upgrades Just the Data - World Happiness derived from real-time #VOTD the tangible data, highlights Performance | VOTD aiming to curb the Ann Pregler Career Certificates for additional car incentive Google benefits of this approach as explained Pradeep Kumar G in Box 10.2. Gbolahan Adebayo purchases by offering a cost-effective alternative 3,061 211,048 2,779 119,898 2,478 3,132 2,477 679,882 Furthermore, the anticipated types of data, enriched to buying new vehicles. with visualizations, align seamlessly with the growing English (US) Trust Blog FAQ About Tableau Products Careers Contact Us GAL TERMS OF SERVICE PRIVACY INFORMATION DATA POLICY UNINSTALL COOKIE PREFERENCES YOUR PRIVACY CHOICES © 2025 SALESFORCE, IN 180 FIGURE 10.3: HOURLY CONGESTION INDEX Analysis: A World Bank study created an hourly DIFFERENCE FROM OCTOBER 2021 VERSUS MARCH congestion index for major roads in Bogotá using 2022 AT 11:00 AM 29/01/2025, 11:55 Managing transport demand and traffic congestion: What can we learn from Bogotá? the Waze for Cities dataset to assess the impact of a 2022 policy modification in Bogotá. Changes in the Congestion Index14 hourly profile indicated altered travel patterns, with residents adjusting their commute times, resulting in reduced congestion during mid-day hours. Comparing October 2021 and March 2022, the analysis revealed a notable 11 percent average reduction in congestion on weekdays (Figure 10.3). Dataset: The dataset used, a part of the Development Data Partnership, offers valuable, frequent, and granular traffic data to government partners. With over 140 million monthly Figure 3: Hourly Conges on Index difference from October 2021 vs. March 2022 at 11:00 am drivers reporting incidents and irregularities, it Source: Ivarsson and Stokenberga (2022). The case of Bogotá shows that ambitious and well-designed vehicle provides billions of data points. Shared freely demand management policies can reduce tra�c congestion.  through the partnership since 2014, the dataset havecities Other been identified. facing These high congestion steps can range look at from Bogota's sensing experience includes traffic alerts, traffic accidents, and traffic for valuable lessons learned. Nevertheless, Bogotá should continue and classifying the physical environment to integrating improving forward-looking policies that targets congestion and irregularities, aiding public sector, transport, and all algorithms, climate new policycomputer change. A utilizing and dynamic, such vision techniques should be versatile urban planning. Analyzing this data using Google as image for customized speci�c travelsegmentation, classification, purposes, vehicle object detection, types, destinations, BigQuery, H3, and Dask facilitates informed travel corridors or particular timeframes. Cities action recognition, and scene awareness. Through worldwide should harness the power of technology and introduce smart, distanced- decision-making for planners. the integration of deep learning and computer vision TOC based charging to prioritize climate change and impose the full cost algorithms of travelling by car. risk factors the types of near misses and and their impact can be meticulously identified and analyzed. Case 3: Road Safety: Harnessing This comprehensive approach offers a transformative Machine Learning and Computer means  of automatically   quantifying  and analyzing   Vision for Near-Miss Detection and risks, providing valuable insights for policymaking in https://blogs.worldbank.org/en/transport/managing-transport-demand-and-traffic-congestion-what-can-we-learn-bogota 5/7 the realm of road safety. The seamless integration of Traffic Crash Prevention these algorithms creates a robust dataset that not only Advancements in machine learning, computer addresses existing knowledge gaps but also enables vision, and an analysis of CCTV images present more effective regression models for understanding a groundbreaking avenue for enhancing road causality and the impact of various risk factors on safety monitoring, particularly in the context of different types of near misses. Box 10.3 showcases one near misses and traffic crashes. In the past decade, of the implementations of computer vision algorithms.15 machine intelligence and computer vision have proven highly successful in pattern recognition, offering a Chennai has conducted some pilot studies for novel dimension to urban understanding. Computer implementing comparable algorithms in the city. The vision, leveraging technologies like CNN and deep city has created new models that can extract quantifiable learning, holds immense potential for understanding measures (for example, the number of pedestrians at a the intricate dynamics of near misses. By extracting crossing in one hour) from CCTV footage such as vehicle safety-related features from images, be it still images or counts and pedestrian numbers at traffic intersections multi-frame captures of complex daily life scenes, these (Figure 10.4). The aim of these pilot programs is to technologies can decode various layers of city elements, eventually replace manual traffic counts with automated including the built environment, human interactions, data collection processes. This is expected to lower the transportation, traffic, and natural infrastructure. cost of data collection and allow for more frequent data For constructing an autonomous and multifunctional collection. system for near-miss detection, seven critical steps 181 CHENNAI’S URBAN MOBILITY TRANSFORMATION FIGURE 10.4: CUMTA’S IN-HOUSE MODEL USED FOR CALCULATING PEDESTRIAN COUNT (LEFT) AND VEHICLE COUNT (RIGHT) FROM CCTV IMAGES BOX 10.3: ADDIS ABABA: USING IMAGE DATA FOR MONITORING ROAD SAFETY Context: In 2017, Addis Ababa, Ethiopia, faced a high annual road fatality rate of 25.3 per 100,000 people, surpassing the global average. In response, the Government of Ethiopia and the World Bank initiated the Transport Systems Improvement Project (TRANSIP) for enhancing mobility in Addis Ababa and also road safety nationwide. With over 70 percent fatal crashes involving pedestrians particularly impacting the poor, the project aims to redesign street infrastructure and implement road safety measures. Analysis: The impact evaluation's first phase was carried out by the World Bank,16 with an emphasis on road safety. Video footage from cameras placed at crossings designated for rehabilitation under the TRANSIP initiative was TOC subjected to computer vision analytics. They trained an image detection method via homography mapping of junction points. Then, crucial variables including car speed, traffic volume, the number of jaywalkers, and, most importantly, incidents like near-hits, near-collisions, and accidents were found using computer vision analytics. The purpose of this thorough investigation was to evaluate how well the TRANSIP program had improved traffic safety at specific crossings. Dataset: Video footages from cameras installed at the intersections. Case 4: Big Data Integration for Smart as analyzing mass GPS data. Applications in passenger behavior analysis encompass trip purpose, start time, Public Transportation in São Paulo, mode choice, frequency, duration, and route selection, Singapore, and Seoul utilizing technologies like automatic fare collection Public transport agencies are strategically investing (AFC) and automatic passenger counting (APC). in big data technologies for harnessing valuable Operation optimization involves dynamic scheduling insights and facilitating automation from sensor for meeting fluctuating demands, leveraging real-time data in smart public transportation planning. These data from AFC, and the automatic vehicle location (AVL) technologies span three key categories: data storage (for systems. Additionally, big data plays a crucial role in example, Hadoop, Data Lakes, and NoSQL databases), policy applications, informing strategic transit planning data processing (for example Spark, Hadoop, and data through insights into passenger travel patterns and governance), and data analytics (for example, Spark, habits. The integration of these technologies is paving cloud computing, edge computing, and artificial the way for transformative advancements in public intelligence). The Hadoop ecosystem, renowned for transportation planning.17 Boxes 10.4-10.6 illustrate the its reliable and scalable distributed processing, has integration of big data for smart public transportation in been extensively used in intelligent transportation São Paulo, Singapore, and Seoul. systems, enhancing processing efficiency for tasks such 182 BOX 10.4: SIGMA REVOLUTIONIZING SÃO PAULO'S TRANSPORT LANDSCAPE In the city of São Paulo, public transportation is used for about 8.1 million journeys every day or one- third of all trips. Of these, 63.5 percent—or 21 percent of all trips—involve using the bus system as the primary means of transportation. Enhancing the effectiveness of a network this size necessitates a significant amount of management, monitoring, and planning work. The bus services in the city are managed by São Paulo Transportes (SPTrans). SPTrans already follows a data-driven approach for transport planning. SPTrans collects electronic ticketing data and GPS fleet tracking from various modes of transportation in the city such as the São Paulo Metro and Rail systems (CPTM), the metropolitan bus network (EMTU), taxi services, and the São Paulo Municipal Transit Agency (CET). The data is currently stored in the Operational Control Center for Buses (OCC) and technicians in the agency generate insights on an ad hoc basis for monitoring the public transport system and transport planning in the city. Sao Paulo is planning to modernize OCC by equipping it with a robust platform - the Operational Management and Monitoring System (SMGO) – designed to automatically compile real-time GPS based operations data of the bus fleet in the city. Furthermore, OCC will be equipped with the capabilities - Georeferenced Information System for Mobility and Accessibility (SIGMA) - to perform data analytics and provide real-time performance indicators moving beyond location-based tracking. This will include OD matrices for each bus stop, indicators of the utilization of bus services by analyzing ticketing data, and the socioeconomic characterization of the user base by analyzing ticketing data, location data, and the socioeconomic zoning data of the city. The output from SIGMA will also be used for medium-term planning such as bus service route design, frequency setting, and connectivity with other modes of transportation. TOC BOX 10.5: SINGAPORE’S FASTER18 SYSTEM FOR INCIDENT MANAGEMENT Singapore has an efficient rail-based mass transit system managed by the Land Transport Operations Center (LTOC) – a unit under the Land Transport Authority (LTA), enabling the smooth movement of many living in the city-state. Like any other transport network in the world, the eventual breakdown of assets disrupting services is inevitable. The key to a resilient mobility system is in accurate prediction of breakdowns in advance and a well-designed set of protocols for mitigating the impact of the disruptions. In the longer term, good asset management with maintenance planning support is essential for reducing the severity and frequency of breakdowns and not overwhelm the maintenance staff of the transit network. Prior to 2016, LTOC relied on the qualitative assessment of the veteran staff for prioritizing areas for maintenance in the transport network and judging the impact of a breakdown if one occurred. This became impractical once the transit system in Singapore grew in size and complexity. With LTOC’s operations LTA has access to real time data on the condition of assets and public transport operations. LTOC collects real-time data from rail assets such as trains, signals, platform doors, power supply systems, sensors on tracks, and communication systems. Real-time data of passengers on the platforms is also collected from Wi-Fi network logins, cellular data, and fare cards from public transport and taxis. In addition, LTOC also stores and regularly updates data from management operations and scheduling and financial reports. With such real time data, LTA is better positioned to manage assets and enhance service reliability. LTOC developed two data analytic software systems for managing immediate breakdown events in the network thus managing assets in the longer term. The first system - Fusion AnalyticS for Public Transport Event Response (FASTER) – uses machine learning algorithms for processing real-time asset degradation data, ridership data, and linkages in the transport network for predicting disruptive incidents before they occur. FASTER also assesses the severity and impact of an incident and integrates data from other modes – roads and buses – to present a comprehensive view of the entire transport network. This allows LTOC staff to quickly respond to the situation. For instance, by deploying additional trains for handling the backlog of passengers. This intervention has increased the reliability of the rail transit service, which is a crucial factor in increasing the ridership of a transport mode. 183 CHENNAI’S URBAN MOBILITY TRANSFORMATION BOX 10.6: SEOUL’S TOPIS 19SYSTEM FOR TRAFFIC OVERSIGHT AND MANAGEMENT Seoul’s Transport Operation & Information Service (TOPIS) acts as an integrated nerve center for the city's traffic oversight and management. It functions as a robust system that collates information from several traffic-associated entities, which include systems for bus management, traffic card operations, automated enforcement, and coordination with national and city road agencies. As the driving force behind Seoul's Intelligent Transport System (ITS), TOPIS empowers the city's traffic networks with advanced IT solutions, supported by a dedicated team structured into several divisions that focus on different aspects of transport and traffic management. TOPIS is adept at harnessing a wide array of traffic-related data from its extensive traffic networks, ranging from bus movements and card system analytics to enforcement data. It taps into multiple platforms that work in conjunction for assessing the complexity of traffic patterns, deciphering congestion factors, and then dispensing necessary traffic updates to commuters and transport administrators. The system integrates cutting- edge information technology to lift the accuracy of its surveillance and management functions, capacitating a real-time feedback loop and fostering the innovation of user-centric traffic services and utilities. The implementation of TOPIS is pivotal in reshaping Seoul's traffic landscape, leading to a tangible improvement in urban transport’s effectiveness. Its refined management protocols have been instrumental in enhancing vehicular flows, curbing traffic mishaps, and effectively managing impacts from abrupt transit disruptions. Insights gleaned from comprehensive traffic data analytics enable proactive forecasting of travel patterns, fortifying the foundation for future transport-related policymaking. The ensuing public satisfaction and improved punctuality of Seoul's public transportation services underscore the system's far-reaching benefits, including a disciplined parking ethos propelled by automated enforcement processes. TOC The strategic integration of big data analytics in São Paulo, Seoul, and Singapore exemplifies the potential for transformative advancements in public transportation planning and traffic management, from real-time monitoring to incident prediction, optimizing services and enhancing the overall reliability and efficiency of urban transit systems. Case 5: Unlocking Urban Mobility algorithms. MLD offers many benefits when compared to traditional data collection methods – surveys – for these Insights: A Case Study from Chennai applications. First, owing to the increased penetration of using Mobile Phone Location Data mobile phones and internet connections in most places, New databases using mobile phone location data (MLD) MLD offers a much higher geographical coverage and are emerging as powerful sources of information in sample size than traditional surveys. Second, an analysis understanding travel patterns in each region. One of the using MLD can be done at any point in time, whereas most basic applications of using MLD is identifying the data collection through surveys tends to be time and origins and destinations (OD) of trips using clustering cost-intensive, limiting the frequency with which they algorithms. These eventually help in generating the OD can be used for data collection.20 matrices and travel flow distributions in a region at an The World Bank commissioned a study in Chennai to aggregated level. Another application is categorizing demonstrate the applicability of MLD in India. The study trips and activities made by individuals in MLD. This can used anonymized and privacy-enhanced smartphone be done using rule-based algorithms (for example, the location data obtained from Unacast Inc. and Quadrant, location of individuals at night at home and trips made covering 18 months from January 2020 to June 2021, from home in the morning hours on weekdays are work focused on the greater Chennai area. The analysis trips) and by combing MLD with points of interest data. aimed to evaluate movement behavior, considering the Other applications include the categorization of travel mode of travel, trip generation and attraction regions, modes (walking, cycling, car, public transit) used for and distances traveled for accessing new facilities and the trip with the help of neural networks and clustering 184 corresponding inequalities. The overall sampling rate groundwork for a data-driven future. These efforts, for the study area was approximately 0.23 percent including the development of KPIs, pilot studies using in January 2020, representing around 22,500 users. mobile phone location data (MLD), and CCTV-based Transit OD matrices were extracted from the mobile pedestrian counts, are positioning the city on a trajectory phone data in January and February 2020, involving like data-savvy metropolises like Seoul, São Paulo, and data cleaning, a trajectory analysis, modal split, and Singapore. As these initiatives mature, Chennai can k-means clustering to distinguish between walking, expect to see gradual but significant improvements in driving, and transit modes. The OD matrices were its transportation ecosystem. The KPIs will enable more then scaled up to account for representativeness and informed decision-making, guiding resource allocation an overall multiplier was applied for addressing data and urban planning strategies with measurable metrics. sparsity. The resulting transit OD matrix for an average The MLD studies, if expanded, could revolutionize weekday evening peak hour depicted flows between public transport planning by optimizing routes and origin and destination traffic analysis zones (TAZs). The schedules based on actual travel patterns, potentially study observed high-density flows along the diagonal, boosting ridership through enhanced efficiency. Traffic indicating trips to nearby TAZs. Central zones attracted management stands to benefit from the CCTV studies, a significant number of trips during the morning peak informing signal timing and pedestrian infrastructure hours, generating substantial flows during the evening improvements in key areas. These data-driven peak hours (Figure 10.5). Suburban regions generated approaches will likely lead to more empirically grounded trips to various destinations, while central areas showed policy formulation, moving away from assumption- inter-TAZ flows with both inbound and outbound based strategies. Over time, the city may see cost savings trips during peak hours. The findings contribute through automated data collection methods, reducing valuable insights for evaluating transit demand, reliance on manual surveys. The insights gained from identifying potential development areas, and informing these analyses could guide targeted infrastructure modifications to the transit network in Chennai. development, ensuring that the investments align TOC with actual mobility needs. While residents may not experience immediate dramatic changes, they can MLD was also employed for analyzing disruptions in anticipate incremental improvements in public transport urban mobility before, during, and after Cyclone Nivar in reliability, traffic flows, and pedestrian facilities. Most November 2021. This analysis showcased the stark impact importantly, these foundational steps are creating a of the cyclone on access to transit stops, particularly robust base for future innovations, setting Chennai on for those living farther than 1 km away, evidencing the course to join the ranks of cities where data is leveraged disparity in accessibility during such disasters. Further effectively for comprehensive urban mobility planning. breakdown by transport modes highlighted sustained disruptions even a week post-cyclone, underscoring long-term impacts. Additionally, hypothetical flooding scenarios were assessed by combining accessibility TAKEAWAYS FOR OTHER CITIES analyses with flood maps from past events. This An analysis of the examples of data used for urban identified transit stops, particularly in the south-western mobility planning cited above highlights the following parts of Chennai, as highly prone to loss of access during key takeaways for other cities: floods. These methodologies provided granular insights into how disaster events disproportionately affect • Balancing urban needs through data-driven KPIs. accessibility to transit, revealing areas and population The integration of data in urban governance facilitates segments that could benefit from targeted resilience the creation of KPIs, enabling a holistic approach measures such as the construction of new transit stops. to transport planning. These KPIs can encompass diverse objectives such as equity, development, and environmental impacts. By leveraging data, decision- EXPECTED IMPACT makers can balance these needs effectively, ensuring that new transport projects align with broader urban Chennai’s initial steps in leveraging big data for urban goals. Moreover, these KPIs aid in evaluating project mobility planning, while modest, are laying crucial performance over time at a granular level enabling 185 CHENNAI’S URBAN MOBILITY TRANSFORMATION adjustments for optimizing outcomes and addressing • Augmenting surveys with data-driven analysis. evolving urban challenges. The shift towards using continuous data sources allows cities to reduce reliance on traditional surveys • Real-time evidence-based policymaking. for generating origin-destination (OD) matrices. By Continuous big data sources offer a dynamic harnessing mobile phone location data and other platform for evidence-based policymaking in urban real-time sources, cities like Chennai can create more governance. Policymakers can adapt strategies swiftly granular and dynamic OD matrices, capturing travel by monitoring real-time data streams, responding to patterns with higher precision and frequency. This changing urban dynamics, and emerging challenges. transition enhances the accuracy and timeliness of This approach fosters agility and responsiveness in transportation planning, enabling cities to make governance, allowing for iterative adjustments based informed decisions based on current mobility trends on empirical evidence. As demonstrated in cities like and behaviors. Bogotá, real-time monitoring facilitates a trial-and- error methodology, enabling policymakers to refine policies iteratively and enhance their effectiveness Limitations of Big Data for Transport over time. Planning While big data holds significant potential for • Enhancing asset management and operations. revolutionizing transport planning with its expansive Data-driven insights are pivotal in improving the coverage and depth, practitioners must navigate its management and operations of urban assets such limitations with a discerning eye. Despite the large as buses and metro systems. Through real-time data quantities of data available, challenges often arise collection and analysis, cities can optimize asset regarding its representativeness, as passive data utilization, proactively identify maintenance needs, collection is not always tailored for mobility analysis and and enhance service reliability. For example, São may lack comprehensive socio-demographic details, Paulo’s use of GPS-based data analytics enables real- TOC predominantly due to privacy constraints. Consequently, time monitoring of bus fleet operations, leading to it is crucial for researchers to identify and mitigate more efficient route planning, frequency adjustments, potential biases in the datasets. At times, reliance on big and connectivity enhancements. Figure Figure 10.5 10.5 data might necessitate ground truth validation, yet this FIGURE 10.5: VISUALIZATION OF TRANSIT TAZ-BASED OD FLOWS Source: World Bank analyses. Note: The width of the arc shows the magnitude of the trips. During the morning peak the central regions attract a high number of trips. 186 process can be complicated when pre-processed data to provide nuanced insights, free from the constraints of lacks transparency in its methods, or if the ground truth conventional surveys, allow for a deeper understanding of is derived from the same datasets used for constructing human movement in time and space. the big data. Moreover, uncertainties concerning the The diversification of data sources, as outlined in this technical continuity and consistency of non-purpose-oriented note, show the richness and breadth of information that data supplies, often controlled by external providers with can be harnessed for urban mobility planning. From official shifting priorities, pose additional risks. Technological registrations to real-time data on asset status, each category evolutions may also introduce compatibility issues that offers a unique perspective, contributing to a comprehensive diminish the data’s long-term utility unless common understanding of urban dynamics. The universal format of standards are put in place. Not to mention, privacy data, exemplified by the General Transit Feed Specification concerns and ethical considerations add layers of (GTFS), facilitates benchmarking and cross-geographical complexity to using such data, as filtration for anonymity comparisons, fostering a global dialogue on best practices. can dilute its granularity and usefulness. Given these challenges, it is recommended that traditional data Moving forward, this technical note aims to create awareness collection methods, like targeted surveys, continue to among urban mobility practitioners in India regarding the complement big data to ensure a balanced, ethical, potential of data analytics for informed and efficient urban and holistic approach to transport planning. Readers planning. This note demonstrated how big data analytics may refer to Milne and Watling (2019)21 and Bonnel and has ushered in a smarter era of urban mobility services. Munizaga (2018)22 for more information. From dynamic urban dashboards offering real-time insights to the integration of continuous monitoring and trial-and- error approaches in policy innovations, and from harnessing CONCLUSION machine learning for road safety to the transformative potential of smart public transportation, each use case serves The integration of big data and advanced analytics in as a testament to the transformative power of big data in TOC urban mobility planning represents a pivotal moment in shaping the future of urban mobility. These examples not transforming traditional approaches. The technological only highlight the current state of the field but also pave the innovations discussed in this note underscore the potential way for continued exploration and innovation in the dynamic of leveraging diverse data sources for revolutionizing landscape of urban planning. transport planning, offering unprecedented opportunities for sustainable and efficient urban mobility. Big data’s ability 187 CHENNAI’S URBAN MOBILITY TRANSFORMATION Endnotes 1 Milne, Dave and David Watling (2017). Big data and understanding change in the context of planning transport systems. Journal of Transport Geography. 76. 10.1016/j.jtrangeo.2017.11.004. 2 Graham, D., D. Horcher, and J.C. Martinez (2018) Data-oriented urban transport reform in middle-income and developing cities. Cities that Work, International Growth Centre. 3 OECD (2013). New Data for Understanding the Human Condition - International Perspective. 4 ITU & Infocomm Media Development Authority (2017). Implementing ITU-T International Standards to Shape Smart Sustainable Cities: The Case of Singapore. 5 Quiros, Ollivier et al. (2020). GRIDS Framework for Data-Driven Mobility. The World Bank. Internal document. 6 https://citydashboard.org/london/ 7 https://citydashboard.be.unsw.edu.au/ 8 Gray, Steven, Oliver O'Brien, and Stephan Hügel (2016). Collecting and Visualizing Real-Time Urban Data through City Dashboards. Built Environment. 42. 498-509(12). 10.2148/benv.42.3.498. 9 Pettit, Christopher & Lieske, Scott & Jamal, Murad. (2017). CityDash: Visualising a Changing City Using Open Data. 10.1007/978- 3-319-57819-4_19. 10 Borrelli, Nunzia, Mark Deakin, and Davide Diamantini (2016). The Governance of City Food Systems. 11 https://public.tableau.com/app/profile/ali.al.sammarraie/viz/DeeperDiveonAccessibility/3_30-MinuteNeighborhoods 12 Development Data Partnership (2022). Article. Gabriel Stefanini Vicente. Visualizing Millions of Waze Traffic Alerts with BigQuery, H3 and Dask. 13 The World Bank (2022). Blog. Ivarsson, E. & Stokkenberga, A. Managing transport demand and traffic congestion: What can we learn from Bogotá? 14 congestion index (CI) is determined by dividing the total number of kilometers of road network kilometers by the number of kilometers of congested roads over a given period of time. 15 Ibrahim, Mohamed, James Haworth, Nicola Christie, T. Cheng, and Stephan Hailes (2020). Cycling near misses: A review of the current methods, challenges and the potential of an AI-embedded system. Transport Reviews. 10.1080/01441647.2020.1840456. 16 World Bank analyses unavailable publicly. 17 Lu, Kai & Liu, Jiangtao & Zhou, Xuesong Simon & Han, Baoming. (2020). A Review of Big Data Applications in Urban Transit TOC Systems. IEEE Transactions on Intelligent Transportation Systems. PP. 1-18. 10.1109/TITS.2020.2973365. 18 AI Singapore (2021). Blog. Steven M. Miller and Thomas H. Davenport. A Smarter Way to Manage Mass Transit in a Smart City: Rail Network Management at Singapore’s Land Transport Authority 19 Seoul Transport Operation & Information Service. SMG Policies That Work. Shin Lee. TOPIS: Seoul’s Intelligent Traffic System (ITS). 20 Wang, Zhenzhen, Sylvia He, and Yee Leung (2017). Applying mobile phone data to travel behaviour research: A literature review. Travel Behaviour and Society. 11. 10.1016/j.tbs.2017.02.005. 21 Milne, Dave & Watling, David. (2017). Big data and understanding change in the context of planning transport systems. Journal of Transport Geography. 76. 10.1016/j.jtrangeo.2017.11.004. 22 Bonnel, Patrick and Marcela Munizaga (2018). Transport survey methods - in the era of big data facing new and old challenges. Transportation Research Procedia. 32. 1-15. 10.1016/j.trpro.2018.10.001. 188 Photo credit: CUMTA CONCLUDING REMARKS Shyam Srinivasan and Gerald Ollivier plans, (iv) robust implementation and financing TAKING STOCK roadmaps to convert plans into reality, and (v) meaningful results frameworks with key performance Cities around the world are faced with complex urban indicators to facilitate monitoring and fine tuning development challenges. This Compendium shares the plans. experience of Chennai as an example of a city in the global south which is attempting to grapple with these • The second topic on Augmenting Bus Service challenges through urban mobility and spatial planning Delivery described Chennai’s transformation of bus- TOC reforms. Over ten notes, the Compendium describes based public transport through a multi-year Business the ongoing and planned efforts in Chennai, together Plan, a Public Transport Service Contract (PTSC) with relevant international examples. In doing so, the between the government and the state transport Compendium offers key takeaways for other cities facing undertaking, and a transition to gross cost contracts similar challenges. for bus services, as opposed to in-house operations. The note demonstrated the value of PTSC which The Compendium uses GRIDS as its organizing provides assurance of public support in exchange framework. The framework is comprehensive and for greater accountability. The note also highlighted serves as a useful frame of reference for cities looking to the importance of gradual change, the need for improve the status quo in terms of urban mobility and consensus in designing and implementing KPIs, and spatial development. the need for strong oversight and capacity building. The Compendium started by exploring the ‘Green’ • The third topic on Fostering Multimodal Integration dimension, documenting efforts to reduce travel demand touched on an important ingredient to encourage through integrated land use and transport planning and modal shifts to public transport. Expanding public promoting modal shifts to public and non-motorized transport is unlikely to realize the full potential of such transport. systems, without accompanying measures to ensure seamless connectivity across modes. Chennai’s • The first topic on Integrated Land Use and Transport approach of appointing a nodal agency to take Planning described the simultaneous development of charge of integration, adopting a customer centric the Third Master Plan together with a Comprehensive approach in prioritizing improvements, and plans to Mobility Plan. The note underscored the importance formalize and integrate informal paratransit services of: (i) institutional coordination and capacity building as a complement to state sanctioned services, could to foster land use-transport integration, (ii) the serve as a blueprint for other cities. collection and use of data to inform evidence-based planning, (iii) extensive stakeholder consultations to • The fourth topic on Designing Sustainable Complete create a shared vision and ownership of development Streets in Indian Cities touched on the potential 189 CHENNAI’S URBAN MOBILITY TRANSFORMATION to transform streets into vibrant urban spaces, The last three notes delved into the cross-cutting thereby enhancing the overall livability in cities. The enabler of ‘Strong and Coordinated Institutions.’ note laid out an approach to such transformation Almost every topic in the Compendium underscored the including context-specific analyses and stakeholder importance of institutional coordination in the urban consultations, clear vision and KPIs for above ground mobility arena. The eighth topic on Strengthening and underground improvements, strengthening Metropolitan Transport Governance presented the inter-agency coordination, adopting green public story of CUMTA, which is a new nodal agency for procurement approaches for improving circularity transport in CMA. The note highlighted the design and and engendering community ownership. operational features of CUMTA, based on international experience, and described the value of such an entity The Compendium then turned to the ‘Resilient’ in the institutional mix in CMA. The note recognized dimension, given Chennai’s vulnerability to floods. the importance of high-level backing for new entities, The fifth topic on Achieving Urban Mobility Resilience the need for nodal agencies to demonstrate their value laid out a systematic approach to diagnosing the without being seen as a threat to existing arrangements, vulnerability of urban mobility infrastructure and services, and the need for continuous evolution in capacity and and approaches to enhance their climate resilience. The function. note highlighted the need for a resilience-first mindset in safeguarding existing assets, and in designing and The ninth topic on Preparedness for Leveraging Data building new infrastructure. The note also highlighted in Indian Urban Planning focused on governance the importance of data in assessing vulnerability and mechanisms to ensure the success of mobility data monitoring the condition of the assets. platforms in urban contexts. The note described the planned Digital Chennai initiative which aims to create The ‘Inclusive’ dimension was discussed next, with a common repository for urban mobility and spatial the sixth note on Developing Gender Responsive development data in CMA and a project planning and Urban Mobility Ecosystems. The note outlined a four- TOC monitoring tool to strengthen coordinated planning pillar approach adopted by the Chennai Gender and and delivery of infrastructure. The note highlighted Policy Lab to mainstream gender considerations in the the importance of CUMTA as a nodal agency helming planning and delivery of urban mobility infrastructure the initiative, the need for data repositories based on a and services. The note underscored the importance common set of data standards which are continuously of strong political will and support from the senior updated, the need to address privacy concerns, and leadership for gender mainstreaming interventions, the forging third-party data partnerships. need to coordinate efforts across agencies and engender mindset shifts in some cases, and the need to build in The tenth topic on Practical Use Cases for Leveraging gender considerations into protocols for designing and Data for Urban Mobility Planning highlighted potential implementing projects. use cases which could be built on top of data repositories, based on Indian and international examples. The note The Compendium placed significant emphasis on the highlighted data’s potential to transform decision ‘Safe’ dimension. The seventh topic on Developing a making on urban mobility and spatial development in Metropolitan Road Safety Action Plan discussed the complex urban environments like Chennai. use of such plans as a tool for improving road safety in urban contexts. The note discussed the Safe Systems While comprehensive in its scope, other relevant approach which touches on infrastructure, institutions, topics were intentionally excluded from the and enforcement dimensions to curb road crashes Compendium. The transition to electric mobility has and fatalities. The note highlighted the importance of not been discussed, as the electric vehicle (EV) adoption robust institutional mechanisms and coordination, and initiatives are commonly pitched at the state or even data driven decision making. The note also called for national levels in India, as opposed to being confined to more forgiving roads and roadsides, recognizing that the metropolitan level. Urban logistics and parking are infrastructure needs to account for human error, and other topics of relevance in urban contexts, but have discussed approaches to tackle speeding and helmet been excluded, while allowing time for conversations on wearing, which were key underlying causes of road crash these topics to mature in Chennai. fatalities. 190 THE ROAD AHEAD strengthening multimodal integration, first and last mile connectivity, build complete streets that It is a matter of priorities. While each of the above encourage citizens to go out and walk, and find ways topics are urgent and critical in their own regard, to improve public transport service delivery. policymakers and practitioners need to confront the • Embed climate resilience considerations into question of priorities. Cities, including Chennai, are not infrastructure planning and design by default. starting from a zero-base. Existing systems, institutions, Cities around the world are increasingly needing and infrastructure need to be considered when deciding to grapple with climate change induced extreme what comes next. Cities can also pursue multiple weather events. Trends suggest that such events agendas simultaneously, so it may not be necessary to would only become more frequent and severe, calling take things a step at a time. The following paras make a for a strong and systemic focus on climate resilience. case for a certain order of priority which may be relevant Without measures to safeguard existing assets, and in Chennai and other cities with similar challenges. building new assets that are climate resilient, cities • Focus on institutions and coordination. A risk wasting significant resources and suffering recurring theme across the spectrum of topics in the significant disruptions to lives and livelihoods. Compendium was the need for strong institutions The Compendium can contribute to the ongoing and coordination. Chennai has taken a step forward preparation of the Comprehensive Mobility Plan by establishing CUMTA as a nodal agency for urban which offers a plethora of opportunities for improving mobility. Such nodal agencies have a critical role to urban mobility. The World Bank is supporting CUMTA’s play in several cross-cutting topics such as mobility development of the Comprehensive Mobility Plan (CMP) planning, multimodal integration, road safety, and under SUSP. CMP will combine the traditional four-step gender mainstreaming, which individual agencies travel demand modeling approach, with clearly defined may not be able to pursue effectively on their own. KPIs organized along the GRIDS framework to develop a TOC plan that drives towards the right outcomes. • Leverage planning exercises to induce paradigm shifts. Large scale planning exercises such as master • Traditional mobility plans develop a travel demand plans and comprehensive mobility plans are rare model which provides the analytical foundation opportunities to course correct and reimagine cities. for developing, evaluating, and implementing They offer opportunities for cities to look beyond comprehensive mobility plans that enhance individual projects and initiatives and adopt long accessibility, efficiency, and sustainability in urban term frameworks for sustainable development. Cities areas. would do well to develop such plans, and revisit them periodically to ensure their relevance. • Mobility plans typically focus on catering to travel demand, without always having a clear view of • Save lives immediately. There is no need to wait the outcomes. There are multiple ways to service to save lives. Road safety issues are often a result of travel demand along any given corridor. The typical mindsets and coordination failures, rather than a response to addressing a congestion point is to question of cost. With nodal agencies such as CUMTA smoothen traffic flows by widening roads or building in place, cities could pursue targeted interventions flyovers. However, such approaches encourage informed by data to reduce road crashes and fatalities private vehicle usage as opposed to public transport and start saving lives immediately. and are therefore not desirable. • Promote public transport, walking, and cycling. • CMP will define clear outcome goals based on the Cities around the world need to reverse the GRIDS framework, which will inform decisions on inexorable trend towards private vehicles, which urban mobility investments and initiatives in CMA. comes with a whole host of issues – greenhouse gas CMP will establish overall targets for indicators such emissions, congestion, road safety issues, and an as transport sector greenhouse gas emissions in overall worse off urban environment. Attention to CMA. The impact of individual projects and initiatives detail matters. Beyond just expanding mass transit, on such outcome indicators will be systematically cities need to improve the user experience through modeled, to decide the mix of investments and 191 CHENNAI’S URBAN MOBILITY TRANSFORMATION initiatives which will drive towards these targets. 3.3) equivalent to 30 times that for bus passengers Doing so will steer the city towards reducing (USD 0.1) in 2019, owing to the low utilization of greenhouse gas emissions, and enhancing climate metro services. Allocation to NMT amounted to about resilience, inclusion, and road safety. 6 percent of the capex allocation for roads over FY16- 20, or less than US$10 million annually. • Lessons from the Compendium can be used to decide the mix of initiatives to be included in CMP. • There is a need for a coordinated sectoral funding The Compendium is built upon several analytical allocation which is a role that CUMTA could play studies on the full range of urban mobility and spatial in the future. A multiplicity of institutions leads to development topics, and therefore represents the tip constraints in developing a coherent and integrated of the iceberg. The studies are being used as an input view of the financing and funding of mobility for CMP and will inform decisions on what to do and services in CMA. There is limited coordination of when to improve urban mobility in CMA. allocations based on objectives across mobility options, a role which CUMTA would eventually play. Translating plans into reality requires strong Investment planning for agencies (except CMRL) implementation and financing roadmaps. The lesson is largely driven by annual budgets, and the lack of from the Second Master Plan which was explored in the funds earmarked for investment projects constrains first topic was the lack of clarity on how to finance and their implementation. Where funds are available, implement master plan initiatives. An analysis of financing the focus is on discrete infrastructure asset creation and funding for urban transport in Chennai revealed that instead of the impact on urban livability or service government expenditures in urban mobility are sizable delivery performance measured in terms of coverage, but can be better balanced for impact.1 quality, sustainability, and resilience. Institutions also lack sustainable financing frameworks, with low own- • The city could invest more in buses and non- source revenue generation, high reliance on the state motorized transport which is already happening government for input-based budget allocations and TOC to some degree as explored in topics two and four. operating subsidies, few incentives for cost-effective Chennai’s annual average spending in urban mobility service delivery and private sector participation. The amounted to about 1.9 percent of the Gross Domestic Public Transport Service Contract for bus services Product (GDP) over FY16 to 2020 or USD 808 million.2 is a step in the right direction towards improving Metro rail dominated capital expenditures (64 accountability for service delivery. percent) and bus transport dominated operational expenditures (60 percent). Revenue from users • CMP could provide useful guidance on long- amounted to 22 percent of total expenditure. The term investment planning. Innovative financing operating deficit of city agencies is widening partly frameworks, including private capital mobilization due to a decline in the public transport share of and maximizing revenue generation are critical for motorized trips. Grant support per passenger varied establishing a sustainable financial footing. considerably with support per metro passenger (USD Endnotes 1 Overview of expenditure, financing, and funding for urban transport in Chennai (2021), Crisil for World Bank. Internal document. 2 US$1=76.9 INR as of December 31, 2021. 192