Making City Planning Work

Bimal Patel
LBSNAA, Mussoorie
MCTP, Phase V
November, 2014

What I want to propose:

i)

ii)

iii)

It is important to make city planning work

To manage growth and development of cities

To make cities livable and efficient

City planning does not work in India because we continue to use the
wrong approach and the wrong tools

Technocratic and an apolitical approach

Attempt to replace markets by planning

Central planning / license-raj approach

Non-participatory/unfair statutory frameworks

An a-spatial, non-comprehensive approach

If the right approach and tools are used, city planning can be made to
work in India

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Managing peripheral
urban growth requires:
reshaping plots
providing access

providing infrastructure
providing amenities

paying for all of the above!

getting all owners to agree!!

regulating private development !!!

Source: Google Earth

Managing peripheral urban growth requires a sound

system for planning, financing and implementing the
transformation of agricultural land to land suitable for
urban use

Land transformation methods

1. Laissez-faire development
let owners / developers
take the lead
approve individual
layouts/developments
require developers to
provide roads/services
levy development
charges

provide roads/services
as an when possible

Source: Google Earth

Land transformation methods

1. Laissez-faire development
let owners / developers
take the lead
approve individual
layouts/developments
require developers to
provide roads/services
levy development
charges

provide roads/services
as an when possible
No planning, let the
market prevail !
Source: Google Earth

Land transformation methods

2. DP + laissez-faire development
make city wide plan
zone growth areas and
major roads
acquire land for roads
build major roads/
infrastructure
approve individual layouts
levy development charge
provide smaller roads/
services when possible

Source: Google Earth

Land transformation methods

2. DP + laissez-faire development
make city wide plan
zone growth areas and
major roads
acquire land for roads
build major roads/
infrastructure
approve individual layouts
levy development charge
provide smaller roads/
services when possible
Some features are
planned; market prevails
elsewhere
Source: Google Earth

RUPAL
28

Land transformation methods

1626

3. Land acquisition + development

acquire land
compensate owners

B HUDIA
06

DAS ELA
09

take possession of land

22

plan development
roads, amenities, plots
for sale etc

ALAMPUR
03

DD
DD

175

45

raise money

CHILODA
07

build infrastructure
336

304

301

sell plots

PRANTIA

22

520

514
515
516
517
518
522
521

519

523

528

526
527

524
525

L A WA RPUR

15

R AN DESAN

27

RAISAN

RA TA NPAR

26

RUPAL
28

Land transformation methods

1626

3. Land acquisition + development

acquire land
compensate owners

B HUDIA
06

DAS ELA
09

take possession of land

22

plan development
roads, amenities, plots
for sale etc

ALAMPUR
03

DD
DD

175

45

raise money

CHILODA
07

build infrastructure
336

304

301

sell plots

PRANTIA

22

No markets, everything
is planned !
520

514
515
516
517
518
522
521

519

523

528

526
527

524
525

L A WA RPUR

15

R AN DESAN

27

RAISAN

RA TA NPAR

26

Land transformation methods

4. Private townships
developer assembles land
pays farmers/owners

government provides
regulatory support and
connective infrastructure in
exchange for extractions
developer plans and builds
development - roads,
amenities, plots, etc.

developer sells plots

Land transformation methods

4. Private townships
developer assembles land
pays farmers/owners

government provides
regulatory support and
connective infrastructure in
exchange for extractions
developer plans and builds
development - roads,
amenities, plots, etc.

developer sells plots

Planners become
regulators, competition
restricted, planning
function internalized by
developers

Land transformation methods

5. The DP-TP mechanism

The DP-TP* mechanism is an interesting and

relatively well functioning land transformation system
for planning and managing peripheral urban growth

* Gujarati for Development Plan followed by Town Planning Scheme

DP-TP mechanisms enabling legislation

Gujarat Town Planning & Urban Development Act

DP-TP mechanisms enabling legislation

Gujarat Town Planning & Urban Development Act

Invented by the British

First used in 1925
Improved continuously
Tested in court

DP-TP mechanisms enabling legislation

Remember: there is no acquisition involved here!

Managing peripheral growth using the

DP-TP mechanism is a 2 step process

Managing peripheral growth using the

DP-TP mechanism is a 2 step process
1

Periodically, a city wide Development Plan (DP) is

prepared

to identify areas for urban growth

to define city level infrastructure

Managing peripheral growth using the

DP-TP mechanism is a 2 step process
1

Periodically, a city wide Development Plan (DP) is

prepared

to identify areas for urban growth

to define city level infrastructure

Then, many neighborhood wide Town Planning Schemes

(TPS) are prepared to implement the Development Plan

to detail out areas identified for urban growth

to readjust plots
to appropriate land for city & neighbourhood infrastructure
to levy charges for building infrastructure
to appropriate portion of increment in land value

Step 1: Preparing a Development Plan

Key features
strategic city-wide plan
delineation of new growth
areas
delineation of city level
infrastructure
roads
water supply
drainage
.

development control
regulations

Ahmedabad, 2002

Step 1: Preparing a Development Plan

Key features
strategic city-wide plan
delineation of new growth
areas
delineation of city level
infrastructure
roads
water supply
drainage

development control
regulations

Ahmedabad, 2002

Step 1: Preparing a Development Plan

Key features
sequence of detailed
planning
predetermined

Ahmedabad, 2002

Step 1: Preparing a Development Plan

Key features
sequence of detailed
planning
predetermined

Ahmedabad, 2002

A Real Example

Ownership, plot size, land value details tabulated

A Real Example

Final plot sizes & land value increments are tabulated

A Real Example

Betterment levies tabulated

A Real Example

The TPS is presented to the land owners

A Real Example

Objections & suggestions are accepted

A Real Example

Roads are taken possession of

Infrastructure is built

A Real Example

A quasi judicial officer hears grievances

A Real Example

The TPS is altered as necessary; State Government sanctions the TPS

A Real Example

Final plots are handed over

Betterment levies are collected
Private plots are developed as permitted

Urban growth has been managed effectively since

many decades using the DP-TP mechanism

The First TPS of Ahmedabad, 1925

The First TPS across the River, 1946

19th Century British Town Improvement Schemes

 Agricultural Land Consolidation Law

Promulgated in 1899
Aim: To promote redeployment of arable land in order to arrange shapes of land for
effective production and to construct agricultural infrastructure including roads and
waterways.
Function: To organize landowners cooperatives to implement projects

[Before Implementation]

[After Implementation]
Source: Ministry of Agriculture, Forestry and Fisheries, Chugoku-shikoku
Regional Agricultural Administration Office " Home Page

39

Why does the TPS Mechanism Work?

1. The mechanism is specified in robust enabling legislation

2. It is simultaneously a techno-legal mechanism for city

planning, plan financing and plan implementation
3. The mechanism incorporates both city wide macro level and
very detailed micro level planning
4. Provides considerable flexibility costs and benefits can be
valued and allocated in the form of land, location, money or
development rights
5. All interlocking plan implementation tasks can be made to
work to one clock, using a single legislation

Why does the TPS Mechanism Work?

6. Focused on an area, it takes comprehensive approach all
the complexities of an urban area, roads, variety land uses,
buildings, infrastructure, traffic, right of way are
simultaneously dealt with
7. The DP-TP mechanism is inexpensive

8. The mechanism is operated by competent city planners; a

relatively strong, statutory role for city planners in local
government

Why does the TPS Mechanism Work?

9. A profoundly pragmatic approach informs the use of this
mechanism
Property rights are respected
Costs are distributed; all owners loose same proportion of land
Benefits are shared; owners keep substantial portion of increment in
land value and developed land
Planning seeks to use the land market not thwart it
Public inputs are sought; grievances are redressed

10.On account of the foregoing, the DP-TP mechanism is

perceived to be fair and equitable

The DP-TP mechanism is a versatile city planning

and plan implementation tool that can be used to
address many challenges that we face in
transforming our cities

The DP-TP mechanism is a structured framework for

the state to negotiate with private landowners

The DP-TP mechanism is a structured framework for

the state to negotiate with private landowners
In most instances, the DP-TP mechanism can serve
instead of the Land Acquisition Acts acquisition
procedure

The DP-TP mechanism is a versatile city planning

and plan implementation tool that can be used to
address many challenges that we face in
transforming our cities

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Earthquake devastated Bhuj was re-laid out using the

DP-T P mechanism

POLICY TO DEDUCT LAND

Sr.
No.

Area of plot
(square metres)

Deduction
(%)

0 30

30 100

10

100 200

20

200 500

30

More than 500

35

Government plots

50

For plots built up to 100%, no deduction has been done.

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

T.P.S. NO. 98
(KOTARPUR-NAROAD)

247/P
247/P

AGE SITE OF
OTARPUR

267
266
246/P
265
246/P

268
269

CHAMUNDA

2 51+252+255+247/p
246/P
245/P

271
270

276

256
220/P
254+264

220/P

273
263

261

275

262
253

278

277

218/P

259
260

274
279

1 99/1/P
217+219+220

1 99/1/P

272

258

282/1
281

MAITRY
HOSPITAL
197/P

280
1205

257
292

216+218p

282/2

NIRAV
BOUNGLOW

199/2

213

290

283

291

197/P
214/1
289
198

RADHASWAMI
PARK

200
215/1

195/P

214/2

288

284

212

214/3+4

1206
285

215/3

297

196
195/P

206
287

192/P

194

298

286

215/4

215/2
194

299/1

2 11/1/1

299/2

209+210

192/P
205

207/1

2 11/1/2

201

RADHESYAM
PARK SOCIETY

307

203
211/2

207/2

208/2
306

207/3

204
202/2
154

207/4

208/1

202/1

154
155/1

155/2

155/3

156

ARNAGER
T.P.S. NO. 1
(NARODA)

The DP-TP mechanism is also used to regularize

unauthorized areas built in the past

60

.R

12 M. WIDE ROAD
62

AGE SITE OF

T.P.S. NO. 98
(KOTARPUR-NAROAD)

1
63

m
.

2/2

24

11
12/1

12

.
m

CHAMUNDA

12/2

2/1

10/3
10/4
13/1

12

64

72

.W

AD
RO

ID

10/1
70

71

84

10/2

m
.

18
15

69

16

m.
12

m.
12

17

65

19

14
68

24

36/2

.
m

60

36/1

2/3

m.
12

m.
18

m.
12

MAI TRY
HOSPI TAL

66

12 m.

2/4

9 m.

35

OA
D

13/2

75

48
NIRAV
BOUNGLOW

34

20+21/1/2

20+21/1/1

20+21/2
49/1

m.
12

50
22/1

47
37

45

49/2/1

33

56

23+24

76

32/2
86

m.
12
51

55

32/1

31/2
31/1

91

54

67
4
25

12

77

RADHESYAM
PARK SOCI ETY

m.
12

26/2

30

41

.
m

28

81

92

20+21/4

79

39+40

44

90

85

12
m.

22/2

38

m.
12

83
46

6m

59

57

m.
18

24

49/2/2

m.
12

58

7
20+21/3

RADHASWAMI
PARK

82

89

.
m

.R

73

18

74

29

26/1

43
88

12

80
78

m
.

42

27/1

27/2

53/1

12
m.

.
12 m

60/1

87

52

53/2

60/2

60

61

M
.R

RO
AD
M.
12

18 M

. RO
AD

D
OA

T.P.S. NO. 1
(NARODA)
18
M

M.

RO
AD

The DP-TP mechanism is also used to regularize

unauthorized areas built in the past
9

.R
OA
D

18

M.

RO
AD

AD
O

.R

18

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Step 1: Preparing a Development Plan

Key features
strategic city-wide plan
delineation of new growth
areas
delineation of city level
infrastructure
roads
water supply
drainage

development control
regulations

Ahmedabad, 2002

Step 1: Preparing a Development Plan

Key features
strategic city-wide plan
delineation of new growth
areas
delineation of city level
infrastructure
roads
water supply
drainage

development control
regulations

Ahmedabad, 2002

Housing

Prahladnagar TPS

60.00 M.

Housing

MAKARBA
R S NO.

Prahladnagar TPS
L EGEND

Housing

60.00 M.

MAKARBA

R S NO.

L EGEND

Prahladnagar TPS land appropriated for

affordable housing

Housing

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

137 ha of scattered un-serviced

government plots in two TP
Schemes
In adequate for building
No connectivity to main road
No means of paying for
infrastructure
Plots would decrease in size
after land is given up for
infrastructure

Two T P S schemes prepared

(450 ha)
Government lands
reconstituted and
consolidated (FP = 92 ha)
Appropriated land designated
for institutional use and
located next to government
plots (FP = 46 ha)
Large parcels for institutions
with proper access created

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

Some challenges that a city administrator face in making cities

more livable, healthy, comfortable, equitable, just, productive,
efficient, safe, memorable.

widening streets
providing roads, parks, public amenities
providing infrastructure water supply, drainage
redeveloping older areas of cities
managing peripheral urban growth
providing housing for the poor
finding money (or land) to do all of the above
regularizing illegal construction
curbing nuisances and regulating private development
..
..

How can the TPS Mechanism be Improved?

Act allows too long a period to prepare and implement schemes
Government is allowed unlimited time to review and sanction schemes
Coordination with revenue department can be better
Schemes do not sufficiently address urban design concerns
Rationale underpinning land valuation and appropriation polices can be
much improved
The unbridled powers of quasi judicial officers need to be constrained

The entire process of planning can be made far more transparent and
participative
Urban planning capacities of local bodies can be improved and
augmented

History of Introduction of LR into Thailand

1990 The 1 st LR Seminar in Thailand
2000-2001 4 Pilot Projects launched
1992 DTCP assigned as a responsible
organization for LR by Cabinet
2003 Draft Act approved by Cabinet
1992 National LR Committee established
1993 LR Fund established

2004 LR Act promulgated

1994 Draft Act on LR submitted

to Ministry of Interior
1995 Draft Act approved by Ministry
Introduction

Establishment of Statutory System

2008-2010 8 Pilot
Projects approved
Pilot Projects

Dissemination

1997 The 9th International Seminar

on LR and UD (Bangkok)
1992-1993 JICA Development
2005-2009 JICA Project on DMAD
Study on Application of LR
(Development of the Method of
1991 The 6th International Seminar
Urban Development)
on LR and UD (Bangkok, Thailand)
1989 The 5th International Seminar
on LR and UD (KL, Malaysia)
1987-1991 JICA Project on Technology for making City Plan
1983 JICA LR Training Course

2009-2014 JICA Project on

Self-sustainability and
Dissemination of LR System
Source: Mr.Takeo OCHI

What I hope to have conveyed:

i)

ii)

iii)

It is important to make city planning work

To manage growth and development of cities

To make cities livable and efficient

City planning does not work in India because we continue to use the
wrong approach and the wrong tools

Technocratic and an apolitical approach

Attempt to replace markets by planning

Central planning / license-raj approach

Non-participatory/unfair statutory frameworks

An a-spatial, non-comprehensive approach

If the right approach and tools are used, city planning can be made to
work in India

Making city planning work means recognizing

that :

City planning is a distinct technical profession it is not the work

of administrators, managers, architects, engineers

Competent professional city planners and an institutionalized

role for city planning are essential.

Robust enabling legislation is essential..

A combo, low cost, flexible, techno-legal planning and

implementation mechanism is essential

Comprehensive approach at macro and micro levels are

essential..

We have to work with the market and people not against them..

Above all, planning has to be fair and equitable.

Thank You
Presentation prepared by:

Bimal Patel and Shirley Ballaney

Contact information:

Environmental Planning Collaborative

Paritosh, Usmanpura, Ahmedabad
Ph: 079-27550102, 27550875, 27552442; email: bimal@hcp.co.in