Author: Divya Senthil - CAG

Acknowledgements: We would like to express special thanks to the volunteers Ranjith

Kumar, Priya U, Udayakumar S, led by our consultant Mohan M, who supported us with
data collection by deploying the survey across Pondy Bazaar.

Disclaimers: The information in this document has been obtained in good faith from
sources that are believed to be reliable, but any potential interpretation of this report as
making an allegation against a specific company or companies named would be
misleading and incorrect. The authors accept no liability whatsoever for any direct or
consequential loss arising from the use of this document or its contents.

Suggested citation: Citizen consumer and civic Action Group. "From Bazaar to Building
| The Ripple Effect of Pondy Bazaar's Pedestrianisation | CAG 2024
https://www.cag.org.in/database/

Copyright: Unless specified otherwise, all content in this report is licensed under a
Creative Commons Attribution 4.0 International licence CC-BY-NC-SA 4.0

1 From Bazaar to Building

About CAG
Citizen consumer and civic Action Group (CAG) is a 38-year-old, non-profit, non-political, and
professional organisation that works towards protecting citizens' rights in consumer and
environmental issues and promoting good governance processes including transparency,
accountability, and participatory decision-making.

2 From Bazaar to Building

Contents
Executive Summary..................................................................................... 4
Introduction................................................................................................ 6
Objectives & Methodology............................................................................8
Results & Discussion....................................................................................9
Recommendations..................................................................................... 31
Conclusion................................................................................................. 35
Bibliography.............................................................................................. 36
Annexure................................................................................................... 37

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Executive Summary
The Study
In 2019, the Greater Chennai Corporation, under the Chennai Smart City initiative, launched the
Pedestrian Plaza project in Pondy Bazaar, a popular shopping destination in Chennai. To make
way for pedestrian-friendly spaces, street vendors were relocated to a dedicated multi-storey
complex designed to provide a structured environment for their trade. CAG surveyed 350
customers and 170 of the relocated vendors to understand the impact of moving street vendors
into the shopper’s complex.

After relocating to the complex, nearly 94% of vendors reported that their earnings were
impacted by the move. Among these vendors, 64% saw an increase in their earnings, while 36%
experienced a decline compared to their previous income on the streets. Despite the changes,
many vendors still preferred the flexibility of street selling, with about 51% continuing to engage
in some form of mobile vending. Interestingly, an overwhelming 98% of the vendors expressed
comfort with their new environment in the complex.

Among customers who shopped with street vendors, the reasons for doing so varied, but nearly
94% (317) cited low prices as their primary motivation. This was followed by the ability to
bargain, favoured by 87% (292), and ease of access, mentioned by 70% (234). These top two
commonly cited reasons highlight that for most customers, the decision to buy from street
vendors is largely driven by cost rather than convenience alone. Among customers while 71%
viewed the relocation positively, 29% indicated that they miss the street shopping experience.

Recommendations
The transformation of Pondy Bazaar into a pedestrian-friendly zone by relocating street vendors
into a dedicated complex (and restructuring the road-layout) aimed to enhance the shopping
experience while prioritising pedestrian safety. However, this move raises questions about its
actual impact, as customer preferences suggest a mixed response. While 71% of customers
viewed the relocation positively, a significant 94% still preferred shopping on the streets. This
indicates that the relocation may have inadvertently affected foot traffic, undermining the
intended benefits of the project. To address these issues, short-term recommendations include
improving visibility, accessibility, and facilities within the complex, while engaging the
community through events and ensuring safety and sustainability measures.

For future projects, long-term strategies should focus on creating more inclusive infrastructure
that supports all vendors and customers, including differently-abled individuals. Incorporating
spaces for community events and considering covered markets or market pavilions could
preserve the vibrant street market atmosphere while offering flexibility and cost-effectiveness.
Most crucially, conducting social impact assessments before implementing such changes is

4 From Bazaar to Building

essential to understanding the needs of all stakeholders, including street vendors, to ensure that
projects meet their objectives without compromising livelihoods or community dynamics.

5 From Bazaar to Building

Introduction
Street Vendors and the City
Street vendors have been a cornerstone of urban life for centuries, with street markets, or
"bazaars," serving as defining features of cities. Historically, these markets were not just trading
hubs but also centres of social, cultural, and political activity. Even today, Indian cities are
renowned for their vibrant street markets, attracting both tourists and locals. These bustling
marketplaces offer a diverse array of products, allowing people to explore local culture, tastes,
and traditions. Vendors provide easy access to goods and services ranging from fresh produce
and clothing to crafts, electronics, and prepared food, all within the public spaces of cities.

Street vendors play a crucial role in the urban economy, offering accessible and affordable goods
to a broad segment of the population. They contribute to the vibrancy and diversity of city life,
cater to the daily needs of low- and middle-income residents, and create job opportunities. As
part of the informal economy, street vendors support the livelihoods of millions, particularly in
developing countries. Their presence sustains local economies, fosters community interactions,
and preserves cultural traditions, making them an indispensable part of urban life.

Legal provision for Street Vendors

The Street Vendors Act 20141, came into force in May 2014, under which each state and urban
local body was supposed to frame its own schemes, rules and by-laws in order to implement the
Act, keeping in mind the local specificities of street design and livelihood practices. The Act
attempts to legalise and regulate the business of street vending, and protect these businesses from
evictions, seizure of goods, unfair penalties and fines, and loss of dignified employment.
Following the Act in 2014, Tamil Nadu Street Vendors (Protection of Livelihood and Regulation
of Street Vending) Rules 20152 was published on November 2, 2015.

It mandates the creation of the Town Vending Committee (TVC), which in turn issues certificates
of vending and identity cards to street vendors based on a survey. The TVC also has the authority
to declare vending and no-vending zones in the city and prepare street vending plans. Vendors
can be relocated to other vending zones if the holding capacity (vendors can be a maximum of
2.5% of the population of the city, zone or ward) is exceeded.

In August 2016, the civic body sent a proposal to the government seeking to form smaller TVCs.
A government order mandating this was issued, and thereafter, 15 TVCs for each of the city’s 15

1
Ministry of Law and Justice (2014) THE STREET VENDORS (PROTECTION OF LIVELIHOOD AND
REGULATION OF STREET VENDING) ACT, 2014. New Delhi: The Gazette of India. Available at:
https://mohua.gov.in/upload/uploadfiles/files/StreetVendorAct2014_English(1).pdf
2
Municipal Administration and Water Supply Department (2015) Tamil Nadu Street Vendors (Protection of
Livelihood, Regulation of Street Vending and Licensing) Scheme, 2015. Chennai, Tamil Nadu: Tamil Nadu
Government Gazette. Available at: https://mohua.gov.in/upload/uploadfiles/files/5(1).pdf

6 From Bazaar to Building

zones were formed. The formation of the TVCs and the subsequent surveying and issuance of ID
cards did not take place in 2015 or 2016 owing to the floods and the May 2016 assembly
election, keeping the corporation occupied. The first enumeration was completed in 2017,
identifying 27,1953 vendors. The latest enumeration (which happens every 5 years) identified
35,5884 street vendors in Chennai across zones.

As of August 20245, the Greater Chennai Corporation’s (GCC’s) town vending committee has
approved 776 designated vending zones and 491 non-vending zones for streamlining the vendors
in the city. The street vendors from Pondy Bazaar fall into zone 10 (Kodambakkam) along with
the other street vendors in Thiyagaraya Nagar amounting to more than 30006 street vendors.

Pedestrian Plaza
Pondy Bazaar has been one of Chennai’s most popular shopping destinations, best experienced
on foot. In fact, a 2016 traffic study revealed that nearly 50007 people stroll down this bustling
stretch per hour during peak periods. However, the area began deteriorating over the years with
narrow, uneven footpaths and parked vehicles inconveniencing pedestrians. In order to restore
and enhance the unique shopping experience that Pondy Bazaar is known for, the Pedestrian
Plaza project was conceived, aiming to reclaim public space for the shoppers.

The Special Projects Department, Greater Chennai Corporation and Chennai Smart City Limited
established the Pondy Bazaar Pedestrian Plaza of around 700 m length at Thyagaraya Nagar (T
Nagar) in 2019. This Plaza transformed one of Chennai’s busiest and car-centric shopping
streets into a pedestrian promenade by prioritising people over vehicles, providing new ways for
citizens to experience their streets.

As part of this project, on November 6, 2013, Chennai Corporation implemented a Madras High
Court Order and shifted over 90 street vendors / hawkers into a multi-storey complex in Pondy
Bazaar. Also referred to as the Corporation Shopper’s Complex, it was designed specifically for
street vendors, intended to offer a dedicated space that combines convenience, safety and

3
The New Indian Express (2022) ‘Chennai corporation enumerates 30,000 street vendors’, 5 September. Available:
https://www.newindianexpress.com/states/tamil-nadu/2022/Sep/04/chennai-corporation-enumerates-30000-street-ve
ndors-2494969.html (Accessed: 30 August 2024)
4
The Times of India (2024) ‘GCC to provide chip-based IDs to vendors to cut fake cards’, 15 August. Available at:
https://timesofindia.indiatimes.com/city/chennai/gcc-to-issue-chip-based-ids-to-street-vendors-to-combat-fake-cards
/articleshow/112535480.cms (Accessed: 30 August 2024).
5
The Times of India (2024) ‘Chennai Corporation to streamline 35K street vendors in 776 locations’. Available at:
https://timesofindia.indiatimes.com/city/chennai/chennai-corporation-to-streamline-35k-street-vendors-in-776-locati
ons/articleshow/112298095.cms (Accessed: 29 August 2024).
6
Greater Corporation Chennai (2023) List of street vendors, Zone 10. Available at:
https://chennaicorporation.gov.in/gcc/pdf/Zone%2010.pdf
7
C40 (January, 2021) ‘Chennai’s Pondy Bazaar Pedestrian Plaza - Case Study’. Available at:
https://www.c40.org/case-studies/chennai-s-pondy-bazaar-pedestrian-plaza/

7 From Bazaar to Building

accessibility. The aim was to ensure that the bustling energy of Pondy Bazaar thrives within a
structured environment without disrupting traffic and pedestrian space.

Built by the Greater Chennai Corporation, the complex aimed to enhance the livelihood of street
vendors by providing them with permanent, well-equipped stalls, while also improving the
shopping experience for residents and visitors. This shopkeeper’s complex was designed to
accommodate 6298 street vendors. However, many shops at the time of this survey remain closed
and/or underutilised.

Figure 1: An image of the corporation complex in Pondy Bazaar, Source: CAG

8
The New Indian Express (2019) ‘T Nagar Pedestrian Plaza project delights walkers but leaves shopkeepers sour’,
14 November. Available at:
https://www.newindianexpress.com/cities/chennai/2019/Nov/14/t-nagar-pedestrian-plaza-project-delights-walkers-b
ut-leaves-shopkeepers-sour-2061455.html (Accessed: 27 August 2024)

8 From Bazaar to Building

Objectives & Methodology
Objectives

The intention behind this study was to understand the following:

● The demographics of the shoppers and the shopkeepers

● The impact of the move on vendors’ earnings and comfort levels.
● The impact of the move on the customers’ comfort level, shopping frequency and
perceived product pricing.
● The initiatives and measures that need to be considered to upgrade/improve street
vending.

Methodology

CAG surveyed both the street vendors and their customers to gain perspectives from both sides.
To better understand the effect of moving street vendors into the shopper’s complex in Pondy
Bazaar, a survey of 170 shopkeepers in the shopper’s complex and 350 customers visiting these
shops was conducted. Before the survey, formal consent was obtained from participants. The
participants were chosen from all age groups, genders, and socioeconomic levels.
The questionnaires are attached as annexures.

The surveys were carried out by trained volunteers over two weeks in June 2024. Volunteers
approached vendors/shopkeepers located in the shopper’s complex and the customers in and
around the complex. Additionally, CAG also conducted an impromptu visit to the Corporation
building to see the place and talk to the vendors in person.

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Results & Discussion

Street vendors in the shopping complex

Street Vendor Demographics

The survey saw an almost even split between male (86) and female (81) respondents.

Figure 2: Gender split of vendors surveyed in the shopping complex, n=170

The gender distribution across the different age groups remained almost evenly split except for
the below 20 age group where the male shopkeepers (60%) were a majority. Majority of the
shopkeepers were from the 21-30 age group (46%), followed by the 31-40 age group (19%). The
distribution of male and female shopkeepers also followed a similar trend, with 48% and 46% of
the female and male shopkeepers in the 21-30 age group.

As per the Street Vendors (Protection of Livelihood and Regulation of Street Vending) Act 2014,
Greater Chennai Corporation (GCC) had issued certificates/ cards of vending to street vendors.
In a bid to regulate the street vendors better, these cards will include personal details of the
vendors, nature of business and their respective vending zones among other details. Almost 96%
(164) of the vendors we surveyed had cards issued by GCC.

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 Figure 3: Age groups of the vendors surveyed stacked by gender, n=170

Figure 4: Split of street vendors with and without a GCC issued street vendor identity card, n=170

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Most of the shopkeepers surveyed sold multiple products in their store ranging from
consumables like household items, toys, accessories and clothes. An impromptu visit conducted
by CAG at the complex, showed that despite the many vendors inside the complex, there were
still a few mobile vendors selling outside the complex and on the streets. Another interesting
observation was the presence of tailor shops on the third floor of the complex, along with the
clothes shops and flower shops on the ground floor, bordering the complex.

About 64% of the shopkeepers earned a monthly income below 20,000 Indian rupees. When split
across each income category, 49% of the respondents earned 10,000 - 20,000, followed by
20,000 - 30,000 (~31%) and below 10,000 (15%). Only 5% of the respondents said they earned
up to 30,000 or more.

Figure 5: Monthly income of vendors surveyed in the shopping complex, n=170

Despite the move into the shopper’s complex, the survey revealed that respondents still preferred
to have the option of selling on the streets through some form of mobile vending (~51%). While
49% continued only selling through their shops inside the complex, some shopkeepers sold
through both styles of vending (~28%) and the remaining through only mobile vending (~23%).
Additionally, no connections or trends were found when comparing gender distribution and the
nature of vending.

When comparing the monthly income and the nature of vending there were no clear trends
suggesting a link between the two. However, when split by income category, two thirds of the
shopkeepers sold their wares only through mobile vending in the income category of 30,000 and

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above. Comparing the monthly income and gender distribution of the shopkeepers revealed no
trends indicating a connection between the two.

Figure 6: Nature of vending of the vendors surveyed in the shopping complex, n=170

Figure 7: Monthly income split by nature of vending (mobile, street vs both) of vendors surveyed in the
shopping complex, n=170

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The survey revealed that about 57% of the respondents were new to vending with vending
experience of less than 5 years. When compared with the monthly income of the shopkeepers
there is a clear trend of vending experience having a positive effect on the income. Vending
experience seems to be directly proportional to the monthly income for all income categories
except the 20,000 - 30,000 income bracket.

During the impromptu visit to the corporation complex, many of the vendors spoke about how
they or their family have been in the business of street vending for decades together. While the
vendors may be young, it could be their family business handed down to them as many vendors
claimed that their business has been around for a long time even before the move to the complex.
Hence the data represented below, while indicative of the experience of the vendors surveyed,
does not capture the history of the vending experience of each shop.

Figure 8: Vending experience distribution of the vendors surveyed, n=170

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 Figure 9: Relationship between vending experience stacked and monthly income of the vendors, n=170

As vending experience increases, the number of vendors with lower income levels decreases as
evidenced by the graph below. The percentage split of vendors below 10,000 decreases from
58% to 8% and for 10,000 - 20,000, it decreases from 73% to 4%) Similarly, as vendors gain
more experience, their numbers increase as evidenced by the 30,000 and above income group
(growing from 1 to 6 across the three experience bands).

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 Figure 10: The effect of vending experience on shopkeepers’ income levels, n=170

Irrespective of the income distribution, vending experience and nature of vending, about 95% of
the vendors said they found the income earned through street vending to be sufficient.

Figure 11: Vendor satisfaction on income level, n=170

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Performance (changes in sales/customer footfall & profitability)
When questioned about the impact of the move on the vendors’ earnings, the vast majority (94%)
answered that there has been a change in their income. Among the vendors who had an impact
on their earnings, 64% said their earnings increased while 36% reported lesser earnings than
before.

Figure 12: Vendor response on changes in earnings post moving to the complex, n=170

Figure 13: Changes in earnings by vendors after moving to the complex, n=160

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When comparing reported customer footfall before and after the move, it was found that there
has been an increase in customer footfall in the 1 to 10 (+21%) and 10 - 25 person/ day (+18%)
categories while there has been a decrease in the 25 - 50 person/day (-33%) and above 50
person/day (-71%) categories. It can be inferred that this decrease was distributed among the
shops indicating an increase in the lower footfall categories after the move.

Figure 14: Comparison of customer footfall before and after moving to the complex, n=160

Figure 15: Changes in customer footfall after moving to the complex, n=160

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Interestingly, among the vendors that said they earned more, there was no clear indication that it
was due to increased customer footfall.

Satisfaction / Comfort (income, facilities, support & overall experience)

An overwhelming majority (98%) of the vendors said they felt comfortable after shifting into the
new complex from the street.

Figure 16: Vendor comfort level after moving to the complex, n=170

When enquired about the reasons pertaining to their comfort, safety of keeping their products
inside the shop (39%) and increase in customer walk-in (37%) were the top responses provided
by the vendors.

Being a multi-choice question, when the data was further analysed based on the total number of
times the responses were chosen by the respondents, a similar trend is noticed with the safety of
keeping their products inside the shop staying at 69% as the most cited reason among the
respondents, followed by the increase in customer walk-ins (67%).

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 Figure 17: Distribution of reasons for vendor comfort after moving based on the number of reasons
chosen by respondents, n=170

Figure 18: Distribution of reasons for vendor comfort after moving based on number of vendors surveyed,
n=170

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Supporting street vendors
Almost 58% of the vendors highlighted the need for the government to focus on and provide
schemes for street vendors such as business loans at discounted interest rates, quotas for
education seats for their children, subsidies on commercial rates of electricity bills, and
affordable maintenance costs. This was followed by initiatives to bring awareness to customers
(18%) and security (12%).

Figure 19: Initiatives suggested by vendors for the government to focus on to continue street vending,
n=170

When questioned about the parameters the Government needs to consider before or while
moving street vendors into a complex, almost 35% mentioned security followed by an
opportunity to be heard (~21%) and an option for an alternative place for business (~11%).
Almost 61% of the women vendors chose security as the top reason to be considered while
moving street vendors.

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 Figure 20: Factors to be considered by the government while moving street vendors, n=170

Figure 21: Factors (split by gender) to be considered while moving street vendors, n=170

While the shopkeeper’s complex was designed to accommodate 629 street vendors, many shops
remained closed and underutilised due to the lack of visibility and accessibility for vendors to
reach their customers. During CAG’s visit to the complex, many vendors who had shops that

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were a little inside, out of visitors’ line of sight were sitting around the central area to invite
people to come to their shops. Some of the shops had invested in name boards indicating
directions to their shops and products they sold, while others have taken to social media to
promote their stores to attract customers. Vendors resorting to such tactics could indicate a lack
of visibility as an ongoing issue for vendors who have been allotted shops further inside.

When our team spoke with a member of the Chennai Street Vendors Association, we were told
that many vendors have now shifted to Usman Road for selling their wares, while a few vendors
from Usman road have also set up shop inside the Corporation complex. With the movement of
vendors going both ways, it could also be assumed that vendors have chosen what works best for
them based on their nature of business and priorities.

Customers Outlook

Demographics
Among the customers surveyed, there were more female respondents (197) than male (153).

Figure 22: Gender split of customers surveyed, n=350

A similar gender distribution is seen across all age groups with a higher proportion of female
respondents, with the 61 and above category being the only exception.

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 Figure 23: Age and gender split of customers surveyed, n=350
Among the customers surveyed, homemakers and private sector employees shared the top spot at
22% each, followed by daily wage labourers at 16%.

Figure 24: Occupation distribution of customers surveyed, n=350

Almost 50% of customers surveyed had no income as they were homemakers, retired, students or
unemployed, followed by the 10,000 - 30,000 income group at 30%. Among the customers that
had no income, almost 77% were women of which 44% (87) were home makers. There was no
correlation between age and monthly income.

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 Figure 25: Monthly income split of customers surveyed, n=350

Figure 26: Occupation of customers surveyed split by income, n=350

Customers’ shopping habits

When asked about buying from street vendors, most of the respondents (96%) answered in the
affirmative.

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 Figure 27: Customers’ buying habit, n=350
Among those that answered yes, the majority of the respondents (91%) shopped more than 5
times per year. There was no correlation between the frequency of shopping annually and the
monthly income based on the customer responses.

Figure 28: Annual shopping frequency of customers that buy from street vendors, n=336

However, the distance between the vendors’ location and the customers’ place of residence had a
significant effect on the frequency of annual shopping.

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 Figure 29: Annual shopping frequency of customers vs distance between vendors’ location and
customers’ place of residence, n=336
Among the customers that shopped with street vendors, while the reasons varied among those
that answered yes, almost 94% (317) of the respondents said they buy from street vendors due to
low prices, followed by the option to be able to bargain at 87% (292) and ease of access at 70%
(234). The top two reasons also indicate that for customers the reasons are predominantly price
driven and not just based on convenience alone.

Figure 30: Customer reasons for buying from street vendors based on number of respondents surveyed

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 Figure 31: Distribution of customer reasons for buying from street vendors based on the number of
reasons chosen by respondents

Changes observed after vendors shifted to complex

To understand the effects of the vendors’ move into the complex on the customers that shop
from street vendors, a set of questions were asked on the shopping frequency, pricing changes
and customer comfort. Almost 94% (317) of customer respondents said that there has been a
change in their shopping frequency after the move.

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 Figure 32: Customer shopping frequency changes after vendors moved, n=336

Among them, 86% mentioned that their shopping frequency has increased due to increasing
family needs. However, among the respondents where the shopping frequency reduced (14%),
it was because of the increase in purchase rate.

Figure 33: Reasons for customer shopping frequency changes after vendors moved, n=317

More than half the respondents (57%) felt that the prices of products have increased after the
vendor moved into the complex, while 41% felt that it has stayed the same.

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 Figure 34a: Customers’ perceived effect on pricing after vendors moved into the shopper’s complex,
n=336

Figure 34b: Customers’ perceived effect on pricing after vendors moved into the shopper’s complex,
n=336

Among those that shop with street vendors, 96% of them said they feel comfortable shopping on
the streets (316) while only 6% chose the complex shops.

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 Figure 35: Customers’ comfort on shopping after vendors moved into the shopper’s complex, n=336

Customer’s Opinion on Relocation

The majority of customers (71%) surveyed had a positive opinion on the relocation of the street
vendors to the corporation complex. However, 96 respondents (29%) said that this was a bad
decision as they lose out on the street shopping experience.

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 Figure 36: Customer opinion on vendors relocation to the shopper’s complex, n=336

Among the customers that had a positive opinion on the move, 25% were of the opinion that it
has helped reduce traffic congestion. The remaining 75%, while commending this as a good
decision, pointed out places for improvement such as the importance of accessibility to shoppers
(26%), providing a place to street vendors with facilities (17%) such as toilets, drinking water,
security cameras and more and to avoid increasing the price (32%).

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 Figure 37: Customer opinion on vendors relocation to the shopper’s complex, n=336

To upgrade street vending, almost 30% of customers surveyed highlighted the need for providing
proper facilities to shopkeepers such as toilets, shutters, and more. This was followed by ways to
create awareness about street vendors and to introduce more schemes for vendors to increase
their revenue at 24% each.

Figure 38: Customers’ opinion on measures the government should take to upgrade street vending,
n=336

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Recommendations
Pondy Bazaar has been known for its street shopping vibe, sprawling with people from all walks
of life, just strolling around, shopping or just spending time outdoors with a cup of sweet corn or
an ice cream. While the intention behind moving the street vendors into a complex was to make
this street more pedestrian friendly, this begs the question on whether it had a counter-intuitive
effect on pedestrians. It then becomes important to evaluate if the number of pedestrians have
increased or decreased after the move. This is also reflective of the customers’ responses. While
71% have said that the move was a good decision, a significant 94% of customers still prefer
shopping on the streets.

A few short-term improvements for the existing complex and long-term strategies for new
projects of similar nature in the city are suggested below.

Short-term improvements (for existing complex)

Enhanced visibility and accessibility
● Ensure entrances are inviting and marked clearly to attract foot traffic.
● Improve signage and wayfinding throughout the complex to make it easier for customers
to locate vendors / products

Improve Facilities
● Upgrade lighting, ventilation and cleanliness within the complex
● Provide sufficient restrooms, seating areas and water stations for both customers and
vendors
● Ensure that there is ample parking space for customers and provide easy access to public
transportation

Improve Community Engagement and Customer Footfall

● Organise events to draw more visitors to the complex
● Get the local community involved in planning and promoting these events to create a
sense of ownership and pride in the complex

Improve Security and Safety

● Enhance security measures such as surveillance cameras, well marked emergency exits,
to ensure a safe environment for all
● Conduct regular safety checks / audits and ensure compliance with fire safety regulations

Customer and Vendor Feedback and Satisfaction

● Implement a system to collect customer and vendor feedback and regularly assess
satisfaction

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 ● Use this feedback to make continuous improvements to the shopping experience

Sustainability Initiatives
● Encourage the use of eco-friendly packaging and promote other sustainability practices
among vendors
● Implement waste management and recycling programs within the complex

Long-term strategies (for new projects/plans across the city)

Consistent street vendor surveys
Surveying street vendors for their opinions and collaborating over planned moves must be seen
as essential to any successful transition. Vendors who are being relocated could be provided first
preference for shop locations within the complex. If there are additional shops after allotting to
vendors of that area, these can be distributed to vendors from other zones or localities.
Additionally, conducting street vendor surveys every 2 to 3 years will keep the vendor cards
updated, along with details of the type of vending / nature of business.

Better infrastructure and Facilities

The current shopper’s complex does not support or provide facilities for differently abled
vendors or customers. For future projects of similar nature, it is important to provide access for
the differently abled, be it customers or vendors. The building plan has to take into account the
importance of providing equal access to all the shops in the complex irrespective of where they
are located inside the building. Eateries and drinking water facilities to be inbuilt with space and
seating in the plan to allow people to shop, eat and take a break inside the complex itself. Proper
facilities need to be planned and provided (such as toilets, loading and unloading areas, parking
facilities, etc) to both the shopkeepers and the public that come to shop inside the complex.

The design needs to incorporate aspects of gender responsiveness and safety in public spaces,
with adequate ventilation, lighting and space. To take it a step further, if the vendors are included
in the design process itself, it would lead to more effective implementation of the facilities.

Space for Community Engagements and Events

Incorporating space for community events and engagement within a shopper's complex can
enhance the social atmosphere, attract more visitors, and create a sense of belonging. Ensure that
the new plan has sufficient space to organise events, such as cultural festivals, pop-up markets or
live performances to draw more visitors to the complex. Such spaces can be incorporated
through several ways such as through a central courtyard or plaza, community garden or green
space within the complex, outdoor stage or amphitheatre, and flexible/ temporary pop-up spaces.

Incorporate an Open-Air Pavilion Market

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An alternative to the closed vendors’ complex are open-air pavilion markets that also preserve
the street shopping vibrancy and layout. Open-air pavilion markets with covered roofs are
commonly referred to as covered markets or market pavilions. These structures typically
feature a roof that provides shelter while maintaining an open, airy environment, allowing for
natural ventilation and a connection with the outdoors. They are also sometimes called canopy
markets, sheltered markets, arcade markets, bazaars or mercados, depending on the region
and design, but the key feature is the protective roof that offers shelter from the elements while
preserving the open layout.

These markets offer enhanced social interactions, fostering a lively community-oriented

atmosphere and are highly versatile, allowing for easy set-up and reconfiguration for different
events, seasonal markets and special occasions. They are also known to be cost-effective with
lower operational costs and are environmentally advantageous as they use natural light and
ventilation. It also adds positively to customer experience with diverse product offerings,
reflecting local culture and traditions.

A few examples of such markets around the World are provided below.

1. La Boqueria in Barcelona, Spain is referred to as a Mercat (Catalan for market),

specifically a covered market.
2. Covent Garden Market in London, UK is an example of a historic covered market hall.
3. Grand Bazaar in Istanbul, Turkey is a famous example of a covered bazaar.
4. Queen Victoria Market in Melbourne, Australia features both open-air and covered
sections, often referred to as a market pavilion.

Figure 39: Mercat de la Boqueria, Barcelona and Covent Garden Market, London (Source: Google)

36 From Bazaar to Building

Figure 40: The Grand Bazaar in Istanbul, Turkey (Image Source: Google)

Social impact assessment before implementation

Most importantly, before implementation of such initiatives, it is critical to conduct a social
impact assessment of all stakeholders involved. In this case, although the project prioritised
pedestrians, it becomes vital to do an impact assessment of not just the pedestrians and the
shopkeepers but also of the street vendors. The empty, unused shops within the shoppers’
complex and the fact that almost 50% of the street vendors still chose some form of mobile
vending are tell-tale signs that the move to the complex has not had the intended effect on the
street vendors’ livelihood. Despite the vendor's responses, their choice to move to the streets for
their business, indicate poor visibility and customer footfall into the complex, directly affecting
their income.

Conclusion
Street markets such as Pondy Bazaar have been instrumental in shaping the identity of the
locality as the ‘one-stop shopping hub’. The street vendors, with all assortments of affordable
and interesting wares, attracted diverse groups of people looking for bargains. Instead of

37 From Bazaar to Building

preserving this vibrant street market, the Corporation complex seems to have confined the very
people that made Pondy Bazaar a thriving ecosystem.

The corporation complex seems to have missed the mark with respect to providing equal
visibility and accessibility to all the street vendors, both important parameters for them to earn a
livelihood.

Future projects that prioritise pedestrianisation such as the Mega Cities Project (now known as
the Complete Streets Project) and Smart Cities Mission, while well-intentioned, must also
account for the street vendors’ livelihoods, either by preserving a part of their market space as a
vending zone or by providing a better, well planned alternative place of vending to preserve their
livelihoods.

38 From Bazaar to Building

Bibliography
1. Ministry of Law and Justice (2014) The Street Vendors (Protection of Livelihood and
Regulation of Street Vending) Act, 2014. New Delhi, The Gazette of India,
https://mohua.gov.in/upload/uploadfiles/files/StreetVendorAct2014_English(1).pdf

2. Municipal Administration and Water Supply Department (2015) Tamil Nadu Street
Vendors (Protection of Livelihood, Regulation of Street Vending and Licensing) Scheme,
2015. Chennai, Tamil Nadu: Tamil Nadu Government Gazette,
https://mohua.gov.in/upload/uploadfiles/files/5(1).pdf

3. The New Indian Express (2022) ‘Chennai corporation enumerates 30,000 street vendors’,
5 September,
https://www.newindianexpress.com/states/tamil-nadu/2022/Sep/04/chennai-corporation-e
numerates-30000-street-vendors-2494969.html (Accessed: 30 August 2024)

4. The Times of India (2024) ‘GCC to provide chip-based IDs to vendors to cut fake cards’,
15 August.
https://timesofindia.indiatimes.com/city/chennai/gcc-to-issue-chip-based-ids-to-street-ven
dors-to-combat-fake-cards/articleshow/112535480.cms (Accessed: 30 August 2024).

5. The Times of India (2024) ‘Chennai Corporation to streamline 35K street vendors in 776
locations’,https://timesofindia.indiatimes.com/city/chennai/chennai-corporation-to-stream
line-35k-street-vendors-in-776-locations/articleshow/112298095.cms (Accessed: 29
August 2024).

6. Greater Corporation Chennai (2023) List of street vendors, Zone 10,

https://chennaicorporation.gov.in/gcc/pdf/Zone%2010.pdf

7. C40 (January, 2021) ‘Chennai’s Pondy Bazaar Pedestrian Plaza - Case Study’,
https://www.c40.org/case-studies/chennai-s-pondy-bazaar-pedestrian-plaza/

8. The New Indian Express (2019) ‘T Nagar Pedestrian Plaza project delights walkers but
leaves shopkeepers sour’, 14 November,
https://www.newindianexpress.com/cities/chennai/2019/Nov/14/t-nagar-pedestrian-plaza-
project-delights-walkers-but-leaves-shopkeepers-sour-2061455.html (Accessed: 27
August 2024)

39 From Bazaar to Building

Annexure
Shopkeeper Questionnaire

1) Name (பெயர்) [OPTIONAL] __________

2) Gender (பாலினம்)
Male (ஆண்)
Female (பெண்)
Transgender (திருநர்)
Do not want to disclose (வெளிப்படுத்த விருப்பமில்லை)

3) Age (வயது)
Below 20 (20 வயதிற்குக்கீ ழ்)
21-30
31-40
41-50
51-60
61 and above (61 வயதிற்குமேல்)

4) Monthly income (மாத வருமானம்)

Below 10,000 (10,000க்கும் கீ ழ்)
10,000 - 20,000
20,000 - 30,000
30,000 and above (30,000க்கும் மேல்)

Vending related question (வியாபாரம் சார்ந்த கேள்விகள்)

5) Nature of vending? (வியாபாரத்தின் தன்மை)
Street vendor (தெரு வியாபாரம்)
Mobile vendor (நடமாடும் வியாபாரம்)
Both (இரண்டும்)

6) How many years have you been a street vendor? (எத்தனை ஆண்டுகளாக தெரு
வியாபாரம் செய்கிறீர்கள்?)
Below 5 years (5 ஆண்டுகளுக்கும் குறைவு)
5 - 10 years (5 முதல் - 10 ஆண்டுகள்)
Above 10 years (10 ஆண்டுகளுக்கு மேல்)

7) Have you got enough income through this street vending? (தெரு வியாபாரம் மூலம்
போதுமான வருமானம் ஈட்டுகிறீர்களா?)
Yes (ஆம்)
No (இல்லை)

40 From Bazaar to Building

 8) What kind of products are you selling (என்ன வகையான பொருட்களை
விற்பனை செய்கிறீர்கள்?)
Vegetables (காய்கறிகள்)
Fruits (பழவகைகள்)
Toys (விளையாட்டு பொருட்கள்)
Household items (வட்டுீ உபயோக பொருட்கள்)
Clothes (துணி வகைகள்)
Newspaper, Books (செய்திதாள், புத்தகம் முதலியன)
Accessories (like earrings, bags, slippers)
Others specify (மற்றவை குறிப்பிடவும்)

9) What is the average number of customers walking to your shop per day before changing
to a complex? (இடம்பெயர்வுக்கு முன்னர் தங்கள் கடைக்கு வந்த
நுகர்வோர்களின் எண்ணிக்கை?)
1 to 10 person/day (1 முதல் 10 நபர்கள்/நாளொன்றுக்கு)
10 - 25 person/day (10 - 25 நபர்கள்/நாளொன்றுக்கு)
25 - 50 person/day (25 - 50 நபர்கள்/நாளொன்றுக்கு)
Above 50 person/day (50 நபர்களுக்கு மேல்/நாளொன்றுக்கு)

10) Did you feel that the move to the complex affected your daily earnings?
(வளாகத்திற்கு மாற்றியது தங்கள் தினசரி வருமானத்தை பாதித்துள்ளதாக
கருதுகிறீர்களா?)
Yes (ஆம்)
No (இல்லை)
If yes, How? (ஆம் எனில் எவ்வாறு?)
I earn less (நான் அதிகம் சம்பாதிக்கிறேன்)
I earn more (நான் குறைவாக சம்பாதிக்கிறேன்)

11) If yes, what is the number of customers walkin to your shop at present? (ஆம் எனில்
தற்போதைய வாடிக்கையாளர் எண்ணிக்கை?)
1 to 10 person/day (1 முதல் 10 நபர்கள்/நாளொன்றுக்கு)
10 - 25 person/day (10 - 25 நபர்கள்/நாளொன்றுக்கு)
25 - 50 person/day (25 - 50 நபர்கள்/நாளொன்றுக்கு)
Above 50 person/day (50 நபர்களுக்கு மேல்/நாளொன்றுக்கு)

12) Do you feel comfortable after shifting? (இடம் பெயர்வு தங்களுக்கு வசதியாக
உள்ளதா?)
Yes (ஆம்)
No (இல்லை)

If yes, How? (ஆம் எனில், எப்படி?)

41 From Bazaar to Building

 Customer walk-in to shop is increased (வாடிக்கையாளர் வருகை
அதிகரித்திருக்கிறது)
I keep my products safely inside the shop (எனது பொருட்களை
பாதுகாப்பாக கடைக்குள் வைத்துக்கொள்கிறேன்)
It is near to my residence (எனது தங்குமிடத்திற்கு அருகாமையில்
உள்ளது)
Others specify (மற்றவை குறிப்பிடவும்)
If No, How? (இல்லை எனில், எப்படி?)

13) What are the factors that the Government should consider while moving street vendors
into a building complex? (இடம் பெயர்வின் போது அரசு என்னென்ன
காரணிகளை கருத்தில் கொள்ள வேண்டும்?)

14) If you think street vending should continue, what are the initiatives the Government
should take? (நீங்கள் தெரு வியாபாரத்தை தொடர நினைத்தால், அரசு
வேறென்ன முயற்சிகளை எடுக்கலாம்?)

15) Do you own a street vendor identity card issued by GCC? (சென்னை மாநகராட்சி
வழங்கிய தெரு வியாபாரிக்கான அடையாள அட்டை வைத்துள்ள ீர்களா?)
Yes (ஆம்)
No (இல்லை)

Customer Questionnaire

1) Name (பெயர்) [OPTIONAL] __________

2) Gender (பாலினம்)
Male (ஆண்)
Female (பெண்)
Transgender (திருநர்)

3) Age (வயது)
Below 20 (20 வயதிற்குக்கீ ழ்)
21-30
31-40
41-50
51-60
61 and above (61 வயதிற்க்குமேல்)

4) Occupation (தொழில்)
Government (அரசு பணி)

42 From Bazaar to Building

 Private sector (தனியார்)
MSME (சிறு, குறு, நடுத்தர தொழில் முனைவோர்)
Daily wage (தினகூலி)
Student (மாணவர்)
Homemaker (இல்லத்தரசி)
Retired (ஓய்வு பெற்றவர்)
Unemployed (வேலைதேடுபவர்)

5) Monthly income (மாத வருமானம்)

Below 10,000 (10,000க்கும் கீ ழ்)
10,000 - 30,000
30,000 - 60,000
60,000 and above (60,000க்கும் மேல்)
6) Do you have the habit of buying products from street vendors? (நீங்கள் தெரு
வியாபாரிகளிடம் பொருட்களை வாங்கும் வழக்கம் உடையவரா?)
Yes (ஆம்)
No (இல்லை)
7) Before shifting, how many times do you go shopping in a year? (இடம்பெயர்வுக்கு
முன்னர் ஆண்டிற்கு எத்தனை முறை கடைக்கு செல்வர்கள்?) ீ
2 or 3 times (2-3 முறை)
3 - 5 times (3-5 முறை)
More than 5 times (5 முறைக்கு மேல்)
8) Why do you buy products from street vendors? (தெருவியாபாரிகளிடம்
பொருட்களை வாங்குவதற்கான காரணிகள்?)
Low price (விலை குறைவு)
Can bargain (பேரம் பேசமுடியும்)
Easy to access (எளிதில் அணுகலாம்)
Visibility of products (பொருட்களை காட்சிப்படுத்துதல்)
No separate time for shopping, on the way i will buy (தனியாக நேரம்
செலவிடாமல், போகிற வழியிலேயே வாங்கமுடியும்)
To support local economy/local products (உள்ளூர் பொருளாதாரம்/உள்ளூர்
பொருட்களுக்கு ஆதரவளிக்க)
Others (மற்றவை)______________
9) How far is your residence to a street vendor's shopping complex? (தங்கள்
இருப்பிடத்திற்கும் தெருவியாபாரிகள் இடம்பெயர்ந்துள்ள வளாகத்திற்கும்
இடையேயான தொலைவு?)
Below 1 Kilometer (1 கிலோமீ ட்டருக்கும் குறைவு)
1 Kilometer to 5 Kilometer (1 முதல் 5 கிலோமீ ட்டர்)
5 to 10 Kilometer (5 முதல் 10 கிலோமீ ட்டர்)
Above 10 Kilometer (10 கிலோமீ ட்டருக்கு மேல்)

43 From Bazaar to Building

 10) Has your shopping frequency with street vendors been affected after shifting the street
vendors to the shopping complex? (தெரு வியாபாரிகளை வாளகத்திற்கு
மாற்றியதற்கு பிறகு தாங்கள் தெருவியாபார கடைக்கு அடிக்கடி செல்வது
பாதிக்கப்பட்டுள்ளதா?)
Yes (ஆம்)
No (இல்லை)
If yes, has it (ஆம் எனில்)
Reduced (குறைந்துள்ளது)
Increased (ஆதிகரித்துள்ளது)
Why? (ஏன்?)
11) How have the prices been after the vendors moved to the complex? (வியாபாரிகள்
வளாகத்திற்கு மாறிய பிறகு விலை எவ்வாறு உள்ளது?)
The prices have gone up (விலை உயர்ந்துள்ளது)
The prices remain the same (விலையில் எந்த மாற்றமுமில்லை)
The prices have reduced (விலை குறைந்துள்ளது)
12) Where do you feel comfortable shopping? (தாங்கள் எங்கு பொருட்களை
வாங்குவதில் வசதியாக உணர்கிறீர்கள்?)
Street (தெருவோர கடைகளில்)
Complex shop (வளாக கடைகளில்)

13) What is your opinion on relocating street vendors to multiplex complexes? (தெரு
வியாபாரிகளை மாடி கடைகளுக்கு மாற்றுவது குறித்த தங்களின் கருத்து?)
14) What further measures can the government take to upgrade street vending? (தெரு
வியாபாரத்தை மேம்படுத்த அரசு என்னென்ன நடவடிக்கைகள்
எடுக்கலாம்?)

44 From Bazaar to Building

Citizen consumer and civic Action Group

No.103, First Floor,

Eldams Road, Teynampet,

Chennai - 600018.

Tamil Nadu,

India.

Phone Number

+91-44-2435 4458

+91-44-2435 0387

Email

helpdesk@cag.org.in

45 From Bazaar to Building