Development Plan and Environment: A Case of Ahmedabad. A Master Dissertation by Rohit Nadkarni

30th June 2006

Development Plan and Environment: A Case of Ahmedabad

(Final Report)

Guide: Dr. Shrawan K. Acharya

Submitted by: Rohit Nadkarni (EP 1004)

School of Planning

Centre for Environmental Planning & Technology University K.L.Campus, University Road, Navrangpura, Ahmedabad – 380 009 Tel: 26302470, Fax: 26302075 email: [email protected]

ACKNOWLEDGEMENTS

I would like to express my heartiest thanks to the persons without help of whom it would never become possible to accomplish this work. First of all, I take this opportunity to express my deep gratitude to my guide Dr. Shrawan K. Archarya, for the enthusiastic and motivating attitude and kind as well as keen interest he invoked for the present study. I am grateful to Dr. R. Parthasarathy, Chairman, Dissertation Committee and all faculty of School of Planning, CEPT for giving valuable suggestion throughout the course of study. I would also like to express my sincere thanks I would also like to express my sincere thank to the following officials, offices and Individual for helping me in their best possible capacities with access to information/data, which proved invaluable in completing this study.

• Mr. Hansal Shukla, Town Planner, AUDA. • Mr. H. N. Thakker, Deputy Town Planner, AUDA. • Mr. N. M. Baleva, City Planner, AMC. • Mr. R. J. Rawal, Planner, AMC. • The Entire staff of AMC and AUDA.

I am very much thankful to my friends and colleagues Amit Mistry, Abhinav Garg, Vibhu Jain, Uvika Gupta, Vishal Dubey, Atul Bhalodia and Dharmesh Katalia for their timely help and encouragement during the course of the study and the great batch of 2004 School of Planning for their friendship and all the good times in the last two years and for all that I have learnt from them. I would also specially like to thanks my junior batch of 2005 School of Planning for their constant encouragement and moral support during the course of the study. Finally, I would like to express sincere thanks to my parents for their moral support and more importantly in terms of their consistent hard work and commitment to provide me every possible support for my education so that I can complete my studies without much of constraints.

UNDERTAKING I, Rohit R Nadkarni, the author of the thesis titled “Development Plan and Environment: A Case of Ahmedabad”, hereby declare that this is an independent work of mine, carried out towards partial

fulfillment of the requirements for the award of Post-graduate Degree in Planning

with specialization in Environmental Planning at the School of Planning, Center for

Environmental Planning and Technology (C E P T University), Ahmedabad. This

work has not been submitted to any other institution for the award of any

Degree/Diploma.

Place: Ahmedabad Rohit R. Nadkarni Date: 20th June 2006 Code No.: EP 1004


Rohit Nadkarni, EP1004, School of Planning, CEPT

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Table of Content Table of Content .................................................................................................................... 1

Abbreviations ........................................................................................................................ 4

List of Tables ......................................................................................................................... 5

List of Figures and Maps ...................................................................................................... 5

Executive Summary .............................................................................................................. 6

CChhaapptteerr 11.. IInnttrroodduuccttiioonn........................................................................................10 1.1.Introduction ................................................................................................................... 10

1.2.Rationale ........................................................................................................................ 10

1.3.Central Argument .......................................................................................................... 11

1.4.Research Questions...................................................................................................... 11

1.5.Aim and Objectives of the Study.................................................................................. 11

1.6.Study Area. .................................................................................................................... 11

1.7.Scope and Limitation .................................................................................................... 11

1.8.Methodology .................................................................................................................. 12

1.9.Chapter Outline ............................................................................................................. 15

CChhaapptteerr 22.. UUrrbbaann PPllaannnniinngg aanndd EEnnvviirroonnmmeenntt aa HHiissttoorriiccaall RReevviieeww .................16 2.1.Defining Environment ................................................................................................... 16

2.2.Urban planning and environment- Acts and Regulations.......................................... 16

2.2.1.Indian Scenario ............................................................................................................... 17

2.3.Summary........................................................................................................................ 24

CChhaapptteerr 33.. PPllaannnniinngg ffoorr UUrrbbaann DDeevveellooppmmeenntt ....................................................27 3.1.Planning instruments/ Plans ........................................................................................ 27

3.1.1.Other Planning Instruments/ Plans.................................................................................. 27

3.2.Development Plan ......................................................................................................... 29 3.2.1.Environment in Development Plan .................................................................................. 29 3.2.2.Environmental Priority in Development Plan .................................................................. 30

3.3.Environmental Impact Assessment (EIA).................................................................... 31

3.4.Strategic Environmental Assessment (SEA) .............................................................. 31

3.5.EIA vs. SEA.................................................................................................................... 32

3.6.Urban Planning in India and issues............................................................................. 33 3.6.1.Urban Planning in India ................................................................................................... 33 3.6.2.The 74th Constitutional Amendment Act 1992 (74th CAA) ............................................. 33 3.6.3.The Development Plan/ Master plan ............................................................................... 34



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3.6.4.Environment Problem in Urban Planning ........................................................................ 36 3.6.5.New Approach in Urban Planning ................................................................................... 36 3.6.6.Cost of Planning .............................................................................................................. 37

3.7.Conclusion..................................................................................................................... 37

CChhaapptteerr 44.. EEnnvviirroonnmmeenntt aanndd UUrrbbaann DDeevveellooppmmeenntt PPllaannss .......................................... 38 4.1.Introduction ................................................................................................................... 38

4.2.London Plan 2004.......................................................................................................... 38 4.2.1.The Process for Preparing the Plan ................................................................................ 38 4.2.2.Time Influenced Change ................................................................................................. 39 4.2.3.Growth of London............................................................................................................ 40 4.2.4.Sustainable Development................................................................................................ 40 4.2.5.The Mayor’s Vision .......................................................................................................... 40 4.2.6.Vision to Objectives ......................................................................................................... 40 4.2.7.Forces Driving Change in London ................................................................................... 41 4.2.8.The Broad Sustainable Spatial Development Strategy.................................................... 41 4.2.9.Living in London .............................................................................................................. 41 4.2.10.Promoting Environmental Industries.............................................................................. 41 4.2.11.Sustainable Transport in London................................................................................... 42 4.2.12.Improving London’s Open Environment ........................................................................ 42 4.2.13.The Crosscutting Policies .............................................................................................. 42 4.2.14.Implementing the London Plan...................................................................................... 44 4.2.15.Monitoring and Review of this Plan ............................................................................... 45 4.2.16.Environmental Consideration in London Plan................................................................ 45

4.3.The Case of Master Plan Delhi 2021 ............................................................................ 46

4.3.1.The Process of Preparing The Master Plan..................................................................... 46 4.3.2.The Vision ....................................................................................................................... 48 4.3.3.Validity of Population Projections .................................................................................... 48 4.3.4.Accommodating Population for 2021............................................................................... 49 4.3.5.Hierarchy of Urban Development .................................................................................... 49 4.3.6.Redevelopment of Existing Urban Area .......................................................................... 49 4.3.7.Shelter ............................................................................................................................. 50 4.3.8.Trade and Commerce...................................................................................................... 50 4.3.9.Disaster and Hazards ...................................................................................................... 50 4.3.10.Industry.......................................................................................................................... 50 4.3.11.Environment .................................................................................................................. 51 4.3.12.Natural Resource........................................................................................................... 51



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4.3.13.Physical Infrastructure ................................................................................................... 52 4.3.14.Monitoring Framework for Development........................................................................ 53 4.3.15.Review of the Previous Plan.......................................................................................... 53 4.3.16.Other Issues Relating to Delhi Master Plan................................................................... 54 4.3.17.Environmental Consideration in Delhi Master Plan 2021 .............................................. 54

4.4.Conclusion..................................................................................................................... 55

CChhaapptteerr 55.. DDeevveellooppmmeenntt PPllaann aanndd EEnnvviirroonnmmeenntt –– CCaassee ooff AAhhmmeeddaabbaadd ........58 5.1.Background ................................................................................................................... 58

5.2.Gujarat Town Planning and Urban Development Act, 1976....................................... 58 5.2.1.Delineation of Development area .................................................................................... 58

5.2.2.Ahmedabad Urban Development Authority ..................................................................... 59

5.2.3.Content of a Draft Development Plan under Section 12 of the Act.................................. 60

5.2.4.The Development Plan Making Mechanism .................................................................... 61

5.3.Environment and Development Plan Ahmedabad...................................................... 63

5.3.1.Environmental Issues in Ahmedabad .............................................................................. 64

5.3.2.History of Development Plan in Ahmedabad................................................................... 65

5.3.3.Revised Draft Development Plan 1997 ........................................................................... 69

5.4.City Development Strategy (CDS) Ahmedabad........................................................... 85

5.5.City Development Plan (CDP) Ahmedabad ................................................................. 86

5.5.1.City Development Plan Preparation Process................................................................... 86

5.6.City Development Plan and City Development Strategy............................................ 87

5.7.Inferences and Findings ............................................................................................... 87

CChhaapptteerr 66.. CCoonncclluussiioonnss aanndd PPrrooppoossaall ...............................................................94 6.1.Conclusions................................................................................................................... 94

6.2.Proposal ......................................................................................................................... 95 6.2.1.The Plan Preparation....................................................................................................... 95

6.2.2.The Development Plan Document and its Components.................................................. 97

6.2.3.Implementation, Monitoring and Review........................................................................ 100

References......................................................................................................................... 102

Appendix Appendix A- Urban Planning and Environment- Acts and Regulations

Appendix B- The Constitution of India- Article 243 Appendix C- Content of London Plan 2004

Appendic D- Content of Delhi Master Plan 2021



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Abbreviations AMC Ahmedabad Municipal Corporation AUDA Ahmedabad Urban Development Authority CDP City Development Plan CDS City Development Strategies CPCB Central Pollution Control Board DOE Department of Environment EA Environmental Assessment EIA Environmental Impact Assessment EPA Environment Protection Act FOP Financially Operational Plan GDCR General Development Control Regulation GHB Gujarat Housing Board GLA Greater London Authority HSDC Health Survey and Development Committee JNURM JawaharIal Nehru National Urban Renewal Mission NCEPC National Committee on Environmental Planning and Coordination NCEP National Committee on Environmental Planning NEP National Environment Policy NWMC National Waste Management Council MPD-2021 Master Plan Delhi 2021 SEA Strategic Environmental Assessment TPS Town Planning Scheme UDPFI Urban Development Plans Formulation and Implementation ULC Urban Land Ceiling Act UN United Nation WMCs Waste Minimization Circles 74th CAA 74th Constitution Amendment Act



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List of Tables Chapter 1

Table 1.1. Nature and Sources of information for the Study Chapter 2

Table 2.1. Structure Basis of Environmental Laws Table 2.2. Urban Planning and Environment India- The Phases Table 2.3. Acts/ Regulation and Policies to be Incorporated in the Development Plan Table 3.2. EIA vs. SEA

Chapter 4 Table 4.1. Plan Preparation Table 4.2. Environmental Component in the Plan Table 4.3. Implantation and Monitoring

Chapter 5 Table 5.1. Landcover Comparison Table 5.2. Development plan in Ahmedabad till Date Table 5.3. Existing and Proposed Land use of AUC area (Excluding AMC) Table 5.4. Existing and Proposed Land use of AMC area Table 5.5. Summary of the Preparation Process of the Development Plans Table 5.6. Environmental Components in the Plans Table 5.7. Implementation and Monitoring

List of Figures and Maps Chapter 4

Figure 4.1. London plan preparation process Figure 4.2. Main Sphere of Influences of the London Plan Figure 4.3. Delhi master plan preparation process

Chapter 5 Image 5.1. Satellite Image Classifications Map 5.1. AUDA Proposed Landuse 2011 Plan Map 5.2. Growth Centers in Ahmedabad Urban Development Area Figure 5.1. The Development Plan Making Mechanism Figure 5.2. The draft development plan 1997 preparation process Figure 5.3. Detail Methodology for Preparation of the Development Plan Figure 5.4. Depletion of Water Table Figure 5.5. City Development Plan Preparation Process

Chapter 5 Figure 6.1. Proposed Framework for Plan Preparation Figure 6.2. Framework for the Development Plan Document Figure 6.3. Framework for Implementation, Monitoring and Review



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Executive Summary Introduction Ahmedabad is the largest city of Gujarat and the sixth largest of India. Gujarat became a state in 1960 and Ahmedabad was its capital. In 1970, the state capital was shifted to Ghandhinagar, but Ahmedabad still retains the status of trade capital of Gujarat. During the course of time, to guide the growth of this city, Development Plans were prepared under a legal backing of a Town Planning and Urban Development Act of the state. It been almost two decade since the first Development Plan was implemented and recently in 2003 the revised Development Plan of Ahmedabad for 2011 was approved by the State Government. Today Ahmedabad is counted amongst the most polluted cities in India, due to this the Development Plans contribution towards the city environment is becoming a concern. Hence this study is an attempt to understand the overall Development Plan process and the extent of environmental consideration in the Development Plan. It also tries to look at the Development Plans/ Master Plans of cities in other geographical locations and extend of environmental consideration in those plans e.g. London and Delhi. Through this process identify the lacuna in the present development planning process of Ahmedabad and suggest changes to ensure a better incorporation of environment and hence improving the overall environment of the City.

Rationale A Development Plan should address sustainable development at the local level while reflecting state, national and international goals. Decisions should be based on the best possible scientific information and analysis of risks, in order to prevent or reduce the likely significant impact of plan on the environment. But this is not the case in reality, most of the development only mention environment in their aim, scientific studies are also conducted to some extent, but the proposal is based primarily on the basis of economic criteria. Environment consideration only occurs at project level where E.I.A has to be conducted. E.I.A of projects has been criticized on the ground, that because it is a response to a specific development proposal, it may not address some wider or more fundamental considerations such as alternative solutions or strategic location issues. Neither can it fully appraise the cumulative impact of number of proposals, especially when they are individually too small. Increasing sensitivity towards environmental issues in a Development Plan during the planning stage can help to address these matters by considering alternative strategies or land uses and by considering the overall environment effects of implementing plan. There is a need for clarity at preparation stage showing how environmental issues have been taken into account and hence reduce the strategic



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environmental effects and therefore there is a need to evolve a new framework that increases the environmental credentials and ensures an environmentally sensitive Development Plan.

Methodology The methodological structure was worked out in the following way- Conclusions Over time with the increasing environmental problem in cities, various attempts were made to protect and prevent environmental deterioration. In India, today there are about 200 legislation, policies and regulation to protect environment and many more yet to come. Even after existence of all these planning and protective laws, the environment of cities in India is deteriorating. City like Ahmedabad have been preparing Development Plan for past two decades and hence the Development Plans contribution towards its environment is becoming a concern. From the study it

Initial Literature Review

Formulation of the study- Development Plan and Environment: A case of Ahmedabad

Defining Aim and Objective

Objective1 - Study the history of urban planning

and environment

Objective 2- identify different available planning instrument and the evolving

issue in urban planning

Objective 3- Understand the level of environmental

incorporation in the statutory plan of other influential cities

Objective4 -Understand to what extent and how effectively the existing environmental issues and concerns are addressed in the Development Plan of Ahmedabad

Aim- Develop a framework for preparing an environmentally sensitive Development Plan, for the case of Ahmedabad

Detail Literature Review

Issues

London Plan

Delhi Master Plan

Acts, Regulation and Policies to be incorporated in the Development Plan to

protect Environment

Environmental Consideration



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is unmistakably evident that lack of environmental consideration in the statutory Development Plan is partly responsible for the environmental deterioration in the Ahmedabad. The London Plan and Delhi Master Plan have tried their best to incorporate their respective environmental issues in the Plan, while the Development Plan of Ahmedabad only talks about the environment as a part of its aim, but this aim doesn’t reflect much in the Development Plan; apart to it concern about air and water pollution. Around the globe the environmental emphasis has changed because of the realization that environmental considerations should not be limited to concerns about just pollution control but should be more positive in aiming to create more comfortable, pleasant and stimulating surroundings natural and manmade environments. All the Plans considered for the study were prepared in different point of time, the Ahmedabad Development Plan was prepared in 1997, London Plan in 2004 and Delhi Master Plan in 2005, hence it is not actually desirable to compare London Plan and Delhi Plan with Ahmedabad Development Plan. But after comparing the last two Development Plans of Ahmedabad (1981 and 1997), it can be concluded that the attitude towards environment in Ahmedabad have not changed for more than a decade. Planning is a continuous process, with time new issues emerge and new legislations are enacted to protect environment. The Development Plan is a long term plan and hence it can’t afford to be static and rigid, it needs to be continues process where there should be timely incorporation of the emerging issues and the new legislations in the Development Plan. The development planning process of Ahmedabad needs to be more democratic, like the case of London Plan. Ahmedabad Development Plan needs to incorporate the public consultancy mechanism before preparing the Plan. The public consultancy will help the development authority to make the whole planning process more participatory and will help to understand the citizen’s aspiration towards the city. Through the consultancy process a vision of the city can be proposed with public and authorities co-operation. Apart from this, the duration two month for public inspection of the Development Plan is inadequate to serve the purpose within the mention time, while the citizens of London and Delhi get a period of 3 month for public inspection, in order to raise objection and suggest changes. The content of the Draft Development Plan in town planning act needs to be review since there are certain changes required in it. The environmental components should be given more importance in the content, which will help to preserve and protect the environment of the area. Although a significant amount of time and resource are spent, AUDA still does not have a comprehensive, up to-date database, environmental components are not addressed explicitly and study maps do not cover all ecological characteristics. The whole planning process is affected due to lack of up-to-date



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base maps, and limitations of data create difficulties in quantifying and assessing the existing situation. Hence there is a need to build a good accurate and reliable data base for the city. Apart from building good accurate database and maps, there is also a need to address the current environmental issues in the Development Plan. This would help in making the Development Plan more sensitive towards the environment and will protect and enhance the environment of the Ahmedabad. Preparing an environmental sensitive Development Plan is the first step, but there is also required that the Development Plan is properly implemented within the plan period. Like the areas proposed to be developed as open space in the Development Plan 1987 have not been implemented and thus have now been encroached upon by unauthorized development often leading to uncontrolled and haphazard development. This is due to either lack of will shown by the authority to implement the plan or due to financial constrain. There is a need to set up a monitoring unit to monitor both the implementation of the plan and the functioning of the authority and publishes a performance review, which would help in making timely adjustment in the plan. There are even problems in caused due to delay in sanctioned Development Plan/ town planning schemes by government. Like the Development Plan prepared in 1997 was sanctioned in May 2002. Sanctioning of the Plan is a political issue and looking at the present political system it a difficult proposition to expect any speedy sanction. Development Plan is an important mechanism for development of the urban areas, but in real life development is taking place on it own without any concern for the plan. Hence the Development Plan remains a costly piece of document which doesn’t consider environment and the need of the area and the people. Hence present environmental problem of Ahmedabad is partly due to lacuna in the development planning system. Based on the lacunas identified in the study, an attempt is made to prepare a framework for preparing an environmentally sensitive Development Plan.



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CChhaapptteerr 11.. IInnttrroodduuccttiioonn 1.1. Introduction The dissertation looks at Development Plan and the development planning process of Ahmedabad and tries to understand the extent of environmental consideration in it. A Development Plan envisages the entire town/urban area as a single unit. Development Plan is necessary to achieve overall development of the town/urban area in an integrated and co-ordinated manner. The development or expansion of a town takes along time, and therefore the development is required to be regulated in time on the basis of a plan. A Development Plan is thus a blue print of the various proposals that are intended to improve the existing conditions and to regulate the future growth of the town in a coordinated manner. Ahmedabad is the largest city of Gujarat and the sixth largest of India. Gujarat became a state in 1960 and Ahmedabad was its capital. In 1970, the state capital was shifted to Ghandhinagar, but Ahmedabad still retains the status of trade capital of Gujarat. During the course of time, to guide the growth of this city, Development Plans were prepared under a legal backing of a town planning and urban development act of the state. It been almost two decade since the first Development Plan was implemented and recently in 2003 the revised Development Plan of Ahmedabad was approved by the state Government. Today Ahmedabad is counted amongst the most polluted cities in India; due to this the Development Plans contribution towards the city environment is becoming a concern. Hence this study is an attempt to understand the overall Development Plan process and the extent of environmental consideration in it. It also tries to look at the Development Plans/ Master Plans of cities in other geographical locations and extend of environmental consideration in those plans e.g. London and Delhi. Through this process identify the lacuna in the present development planning process of Ahmedabad and suggest changes to ensure a better incorporation of environment and hence improving the overall environment of the City.

1.2. Rationale A Development Plan should address sustainable development at the local level while reflecting state, national and international goals. Decisions should be based on the best possible scientific information and analysis of risks, in order to prevent or reduce the likely significant impact of plan on the environment. But this is not the case in reality, most of the development only mention environment in their aim, scientific studies are also conducted to some extent, but the proposal is based primarily on the basis of economic criteria. Environment consideration only occurs at project level where E.I.A has to be conducted. If one goes through E.I.A Notification 15th September 2005 it covers entire range of projects which land use decision are taken at Development planning stage. E.I.A of projects has been criticized on the ground, that because it is a response to a specific development proposal, it may not address some wider or more fundamental considerations such as alternative solutions or strategic location issues. Neither can it fully appraise the cumulative impact of number of proposals, especially when they are individually too small. Increasing sensitivity towards environmental issues in a Development Plan during the planning stage can help to address these matters by considering alternative strategies or land uses and by considering the overall environment effects of implementing plan. Therefore there is a need for clarity at preparation stage showing how environmental issues have been taken into account and hence reduce the strategic environmental effects. Projects E.I.A should be seen as a positive contribution to the planning process and the findings can be feed into the next review of the Development Plan provided the results are well founded. Therefore there is a need to evolve a new framework that increases the environmental credentials and ensures an environmentally sensitive Development Plan.



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1.3. Central Argument The present deterioration of the city environment in Ahmedabad is due to lack of environmental consideration in the statutory Development Plan prepared so far.

1.4. Research Questions 1. What is the history of urban planning and environment in India and what are the important

act and regulation for protecting the environment? 2. What are the urban planning instruments available today and what are the evolving issues

in development planning exercise 3. What environmental considerations are made in statutory city plan prepared by cities in

different geographical area? 4. To what extent is environment considered in Ahmedabad Development Plan? 5. What are the issues and environment component that need to be considered in a

Development Plan to make it more sensitive towards environment?

1.5. Aim and Objectives of the Study Aim of the study- To develop a framework for preparing an environmentally sensitive Development Plan, for the case of Ahmedabad. Objective of the study – In order to achieve the aim following objective should be achieved-

1. Study the history of urban planning and Environment in India, and to identify important acts and legislation for protection of environment.

2. To identify the different available instrument for urban planning and to understand the evolving issues in development planning exercise.

3. To understand the extent/ level of environmental incorporation in statutory Development / Master Plans of other influential cities in different geographical areas.

4. Understand to what extent and how effectively the existing environmental issues or concerns have been addressed in the Development Plan of Ahmedabad and understand its implementation mechanism.

1.6. Study Area. Ahmedabad, the biggest City of Gujarat, lies on 230 1' North Latitude and 720 37' East Longitude on the bank of River of Sabarmati. It is one of the most rapidly growing urban centre of Gujarat and being the trade capital it has a lot of industrial development within and around it. Along with the industrial development and the increasing population load on the city, the environment of the city has deteriorated. Till date Ahmedabad urban authority have prepared two Development Plans, the present system of preparing the Development Plan needs revival and there is a need of incorporating environmental consideration to prevent the present deterioration and to further sensitize the development planning process and minimize the environmental damage. Therefore considering the case of Ahmedabad the study tries to develop a framework for preparing an environmentally sensitive Development Plan.

1.7. Scope and limitation A Development Plan is prepared under a legal backing of a town planning act of the state. So considering the state of Gujarat and by the Gujarat Town Planning and Urban Development Act, 1976, the environmental consideration in the Development Plan of Ahmedabad is assessed. This work is based on review of Development Plan documents of Ahmedabad and other related



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literature. The statutory city plan of influential cities in different geographical location -like Delhi (capital city of India) and London (A lot of Indian town planning act is based on British acts) will be considered for understanding the Environment status in their statutory city plans. The study focuses on developing a Framework for preparing an environmentally sensitive Development Plan. To further strengthen the study, it would have been desirable to take up more case studies, but due to time limitation and availability of data/ literature only Delhi and London Development/ Master Plan were taken up for the purpose of the study.

1.8. Methodology The methodological structure was worked out in the following way- Stage 1. Formulation of the project. Formulation Gujarat Town Planning and Urban Development Act, 1976 provides the legal mechanism for preparing the Development Plan for the city of Ahmedabad. After reviews this act the certain shortfalls in the Content of a draft Development Plan under section 12 of the act were observed. Subsequently the Revised Draft Development Plan of AUDA -2011 was reviewed initially. The development area only talks about the environment as a part of its aim, but this aim doesn’t reflect much in the Development Plan; apart to it concern about air and water pollution. This reflects on part of the concern authority that environment comes only while preparing the aim, but when it comes to action, that is through proposal environment losses it importance. In the Development Plan environment is just another popular word. Based on the initial analysis of the Ahmedabad Development Plan and after going thought the Development Plans of European counties (London, Scotland etc) which consider environment as an important component of the plan, a need was felt for sensitizing the Development Plan of Ahmedabad towards environment and hence help in reducing the environmental damage. Based on this the aim and objectives of the study was formulated. Research approach Step 1 After the initial literature review of the available Ahmedabad Development Plans and related documents, it was realized that there is a need for preparing a comprehensive history of the urban planning and environment in India. Based on the urban planning and environment history the cities for case studies were identified and the present mechanism provided by legislation and judiciary for environmental protection were listed, in order to incorporate it in the Development Plan. Step 2 With time the urban planning process have gone through various changes, cities around the world have innovated new instruments for planning urban development. The available development planning instruments were identified and the issues related to these instruments and urban planning was highlighted. Step 3 A detail critical analysis of the city plans in different geographical area was conducted and the environmental issues incorporated and their attitude towards environment was identified. A detail critical review of the Development Plan of Ahmedabad was also conducted in order to access to what extent and how effectively the existing environmental issues or concerns have been addressed in the Development Plan of Ahmedabad. Along with identification of the environmental issues related to the Development Plan, the flaws in the implementation and monitoring mechanism were identified.



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Step 4 After identifying the issues and concerns, based on the lessons form the case study, a framework for sensitizing the Development Plan towards environment will be evolved. Stage 2. Nature and Sources of Information Table 1.1. Nature and Sources of information for the Study

Task Data required Data sourceBuild a comprehensive history ofurban planning and environment. Identify influences in IndianplanningTo identify important act forprotection of environment

Task Data required Data sourceIdentification of planninginstruments in urban planning

Understand the evolving issues indevelopment planning exercise

Task Data required Data sourceIdentification of suitable CasesCritical review of the case areastatutory city plan. the extent of environmentalconsiderationTask Data required Data source

Discussions with the concernedauthorityCritical review of all thedevelopment plan document andTown planning Act.

Objective-1.Study the history of urban planning and Environment in India, and to identify important acts and legislation for protection of environment.

Objective-2.To identify the different available instrument for urban planning and to understand the evolving issues in development planning exercise.

Developments Plans ofAhmedabad published. Review indifferent magazines. Discussionswith AUDA / AMC - the agenciesinvolved in preparation ofDevelopment Plan till date.

acts, rules, events, regulation,legislation relating to environmentand urban planning -with year andtheir implication.

Multiple sources from books onurban planning on India and world/books on environmental acts andevents/ internet sources.

Detail about the instruments, theiruse, status and their issues.

multiple sources from books,magazines and Internet sites.

Objective-3. To understand the extent/ level of environmental incorporation in statutory Development / Master Plans of other influential cities in different geographical areas.

Objective-4. Understand to what extent and how effectively the existing environmental issues or concerns have been addressed in the Development Plan of Ahmedabad and understand its implementation

mechanism.

Latest City Development Plan/master plan of the case area, therelevant town planning act/development act.

Published plans and Act andInternet sites.

Ahmedabad Development Planprepared till date. Their preparationprocess and implementationprocess. Problems associated withplanning and implementation

Stage 3. Deriving conclusion and Proposals After critical review of all the city Development Plans and identifying of all the environment components which needs consideration. All the important issues will be highlighted and these issues will be considered while preparing the framework for sensitizing the Development Plan of Ahmedabad.



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Figure 1.1 Structure of the Study

Initial Literature Review

Formulation of the study- Development Plan and Environment: A case of Ahmedabad

Defining Aim and Objective

Objective1 - Study the history of urban planning

and environment

Objective 2- identify different available

planning instrument and the evolving issue in

urban planning

Objective 3- Understand the level of environmental

incorporation in the statutory plan of other

influential cities

Objective4 -Understand to what extent and how effectively the existing environmental issues and

concerns are addressed in the Development Plan of Ahmedabad

Aim- Develop a framework for preparing an environmentally sensitive Development Plan, for the case of Ahmedabad

Detail Literature Review

Issues

London Plan

Delhi Master Plan

Acts, Regulation and Policies to be

incorporated in the Development Plan to protect Environment

Environmental Consideration



15

1.9. Chapter Outline The study “Development Plan and Environment: a case of Ahmedabad”. It is set out in six chapters. Chapter 1 – ‘Introduction’ set out the introduction of the study, rationale for the study, aim and objectives and scope and limitation of the study. It also describes the methodology involved in the study. Chapter 2- ‘Urban Planning and Environment a Historical Review’ it describes the urban planning and environmental history of India. The chapter identifies the important influences in urban planning and environment and identifies important acts, regulation and policies to be incorporated in the Development Plan. Chapter 3- ‘Planning for Urban Development’ it identifies the different planning instrument / plans available for urban planning and highlight the importance of the Development Plan and the need for environmental incorporation in the plan. The chapter also describes the urban planning system in India and discusses the issues involved in development planning. Chapter 4- ‘Environment and Urban Development Plans’ it deal with the assessing the level of environmental incorporation in the statutory urban plans, of influential cities – London and Delhi. Chapter 5- ‘Development Plan and Environment- case of Ahmedabad’ deal with the entire development planning process of Ahmedabad, from preparation to implementation and monitoring. Its tries to assess the level of environmental consideration in the Development Plan of Ahmedabad. Chapter 6- ‘Conclusions and Proposal’ based on the finding of the study, a framework is derived for preparing an environmental sensitive Development Plan for Ahmedabad.



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CChhaapptteerr 22.. UUrrbbaann PPllaannnniinngg aanndd EEnnvviirroonnmmeenntt aa HHiissttoorriiccaall RReevviieeww

2.1. Defining Environment As the well known geographer Detwyler puts it- Environment is an aggregate of external conditions that influences the life of an individual or population (Naik Mehul 1998). MacGraw-Hill Encyclopedia of Environment Science defines it as follows – Environment – is “the sum total of all conditions and influences that affect the development and life of Organism.” Environment- the term environment has been derived from the term ‘Environ’, which means ‘to surround’, French term ‘Environner’, Latin ‘in-viron’. Thus, etymologically environment means ‘surrounding conditions, circumstances effecting people’s life’.1 According to Gilpin- Environment, “from a scientific point of view, it is taken to mean everything that is physical external to the organism; organisms of course include human beings”.2 Justice P.N. Bhagwati (1991), has made the term Environment more clear and simple to understand. He opines that “the term refers to the conditions within and around an organism, which affect the behavior, growth and development or life processes, directly or indirectly. It includes the conditions with which the organism interacts.”3 The National Environment Protection Act, 1969 of U.S.A. and the Pollution Control Act, 1974 of the U.K, though were the earliest and comprehensive environment enactments, but it did not define the technical terms. The Environmental Protection Act (EPA),1986 of India was the first to define the technical terms and it defines Environment- according to Section 2(a) of E.P.A, environment (a) includes water air and land and (b) the interrelationship which exists among and between –(i) water (ii) air (iii) Land (iv) Human beings (v) living creatures (vi) plants (vii) micro organism (viii) property. This EPA definition embraces all biotic and a biotic components of environment, but there is a criticism that it has failed to comprehend the modern concept of environment pollution and factors which lead to the imbalance in ecosystem. According to National Environment Policy 2004 of India “Environment” comprises of all entities, natural or manmade, external to oneself, which provide value, now or perhaps in the future, to humankind. Environmental concerns relate to their degradation through actions of humans.

2.2. Urban planning and environment- Acts and Regulations During the 18th and 19th century landscape of England was reshaped by the industrial revolution and Industrialization was accompanied by rapid urbanization. Though towns and cities existed since dawn of the civilization, their rapid growth started only after the industrial revolution. The theories and techniques adopted for urban planning underwent radical changes with the advent of the machine and the coming in of the automobile on the urban scene. As the problems became 1 Collins, P.H. (1990), Dictionary of Ecology and the Environment, 62 2 Gilpin, A. (Undated), Dictionary of Environmental terms, 51, Queensland Univ. Press. 3 Justice Bhagwati, P.N. (1991), The Crucial Conditions, in Survey of the Environment, p. 165, The Hindu.



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acute, remedies were searched for and new Acts, new Amendments and new legislation and new organizational pattern began to appear to ensure a better environment.

2.2.1. Indian Scenario In case of India, based on various available secondary sources, the history of urban planning and Environment was constructed. The history of urban planning and environment of India can be broadly divided in two phase’s pre-independence and post independence. In fact, the country has had a long history of environmentalism with the passage and codification of acts started from 1853 during the British rule. The historical time-line of urban planning and environment constructed for India, based on the available secondary sources span around a 153 years till date. But even before 1853, there were cities built based on planning principle like the earliest evidence of planning in Indian sub-continent was Indus valley civilization, which advanced by 2500 B.C. these cities were laid out according to some pre-conceived plans, with high standards of public health. The people of Mohenjo-Daro and Harappa took pains to plan baths, lavatories, drains and fresh water tanks. This reflected their concerns for community sanitation and health (TCPO, 1996). But the base for present planning and environment laws/Acts to protect and prevent the environmental deterioration started in 1853 with The Shore Nuisance (Bombay and Kolaba) Act. According to Shastri, S. (2002), the structure of Environmental law in India can be divided into two broad categories that are protective laws and planning laws and this can be further divided as given below in table 2.1. For the purpose of the study, 153 years of planning and environment evolution in India is divided into 4 phases as given below in table 2.2.

Source- Shastri, S. (2002)

2.2.1.1. Pre-Independence The Early Years (1853-1897) Water Water was one of the earliest elements of nature which was of high concern to the people right from start, during the early years the first act to be amended was shore nuisance (Bombay and

1853-1897 The Early Years1898-1946 City Improvement Efforts1947-1969 Start of Enviornmentalism1970-2006 The Era of EnviornmentYE

AR

Urban Planning and Environment -the PhasesPre -

IndependencePost -

Independence

For Human biengsFor Non-Human being For Production For Distribution

1. Water 1. wildlife 1. Land Utilization 1. Land ceiling2. Air 2. Marine life 2. Irrigation 2. Town planning3. Noise 3. Flora 3. Industry 3. slums 4. Nuclear 4. Mining 4. housing5. Radiation 5. Grazing land 5. Recreational area6. Toxic subsatnces 6.Catchment area 6. Parks

7. Waste land 7. Sanctuaries8. Estuaries 8. Biosphere

Structural basis of environmental lawsProtective Laws Planning Laws

Table 2.1. Structure Basis of Environmental Laws

Table 2.2. Urban Planning and Environment India- The Phases



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Kolaba) act of 1853 concerning water pollution in India, which authorized the collector of land revenue in Bombay to order removal of any nuisance below the high - water mark in Bombay harbors. This act was followed by other acts related to water like the Bombay Irrigation Act 1860 and North India Canal and Drainage Act 1873. The Indian Penal Code, passed in 1860 also had provision of penalizing person(s) responsible for causing defilement of water of a public spring or reservoir with imprisonment or fines. Later to follow was the Indian Easements Act 1882 which allowed private rights to use a resource that is, groundwater, by viewing it as an attachment to the land. It states that all surface water belongs to the state and is a state property and protects riparian owners against ‘unreasonable’ pollution by upstream users. Apart from all this there were also establishment of the Code of Criminal Procedure 1986, where sec 133 and 144 provide for removal of public nuisance. The Cities In 1864 looking at the sanitary condition of the cities the first sanitary commissions in 1864 was appointment for three presidencies of Bengal, Bombay and madras, under direction of the royal sanitary commission appointed by British Parliament in 1859. After more than a decade later the first municipal act was enacted in Bombay, known as Bombay Municipal Act 1872 and hence the duties of the Corporation were set out. The next important event was enactment of the Land Acquisition Act 1894; the act is valid till date and has bearing on major projects in city development. This act was enacted for the purpose of compulsorily acquisition of land required for public purpose or for purpose of companies. City Improvement Efforts (1898-1946) City Improvement and Town Planning Act Cities were major environmental nuisance, urbanization leading to major environmental stress. This led to the passing of the city improvement trust and town planning acts in India. The first city improvement trust was established in Bombay in 1898, followed by Mysore in 1903, Calcutta in 1911and Hyderabad in 1912. In 1933 Bombay improvement act was merged with Bombay Municipal Corporation. This process of constituting an improvement trust in different places in India continued till 1946. In India, the first efforts for planned growth was built into municipal acts through town planning schemes and which aimed at slum removal, providing workers housing, circulation improvements and improving sanitation. Hence State town planning acts were introduced in Bombay presidency (1913), Madras presidency (1920) and the ex-princely state of Hyderabad and Mysore in about the same period, this acts were enacted on the lines of the British Housing and Town Planning Act 1909. The end product of this Acts were largely land-use plans and had features like irrational land use disposition, inefficient land development and utilization, leading to large scale physical deterioration. The problems arising out of such physical structures were lack of a dispersed pattern of work centers, sprawling residential dormitories, entailing long distance travel, inefficient transport system and services.4 In between during 1915 Patric Geddes visited India, Geddes unsparingly explained that survey was more important than good surface planning. The planner must consider the citizen's potential and evolution within his environment. Later, in 1931 New Delhi, the new capital of India was planned and design by Edward Lutyens, based on modern town planning principles. 4 TCPO. (1996), Urban and regional planning and development in India, Ministry of urban affairs and employment, New Delhi.



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Environment and Planning The first international environment conference was held in London 1900 and the topic for discussion was protection of wildlife of Africa. Later on in 1927 Indian Forest Act, one of the many surviving colonial statutes was enacted to ‘consolidate the law related to forest, the transit of forest produce, and the duty livable on timber and other forest produce, at this early stage, awareness of man’s destructive tendencies were emerging. The first major discussion on environment and planning in India was in 1946 where Health Survey and Development Committee (HSDC) discussed several aspects of town planning, while dealing with problems of improving mans physical environment.

2.2.1.2. Post- Independence Start of Environmentalism (1947-1969) Environment Environmental issues which have been for a long time part of Indian thought and social process, and were reflected in the constitution of the republic of Indian adopted in 1950. But the start of modern environmentalism started in 1962, where the American environmental moments dates its beginning to Rachel Carson’s book on pesticide pollution “Silent Spring”. Silent Spring is also known as the bible and founding event of the modern environmentalism. But in the international scenario apart from water and air the issue of solid waste was first dealt in U.S.A. in 1965 by enacting the Solid Waste Disposal Act. And U.S. Congress financing a statewide survey of dumps and landfills to better understand the scope of waste disposal problems in the U.S. The Act provides more of waste management safeguards. At the end of this era in 1969, the National Environment Protection Act, U.S.A. was enacted, mandating all federal agencies and departments to consider and assess the environmental effects of proposals for legislation and other major projects. Town Planning Act and Cities The City Improvement Efforts during 1898 to 1946 still had its effects after independence in India. In 1950 the Madras City Improvement Trust Act followed by the Hyderabad City Improvement Act were enacted. Apart from these a lot of town planning act come into existence like the West Bengal Land Development and Planning Act 1948, followed by the Bombay Provincial Municipal Corporation Act 1949, The Orissa Town Planning and Improvement Act 1956 and the Karnataka Town and Country Planning Act 1961 amended in 1965. All these acts provided provision for Planning Authorities at City and Town level for preparation of Development Plan and enforcing it. In 1954 Bombay Town Planning Act came into being, incorporated the provisions of Bombay Town Planning Act, 1913, and in addition made it obligatory on every local authority (barring village panchayats) to prepare a Development Plan for the entire area within its jurisdiction which came into force in 1957. All These Acts are based on the model Urban and Regional Planning Development Act as proposed by the central government (TCPO, 1996). Comprehensive urban and regional planning in India was however introduced only after independence in Delhi (1957). The Delhi development act was enacted and the first Master Plan of Delhi was prepared in 1964. This was nearly co-terminus with the central slum improvement act (1956) as opposed to slum clearance. Up to the second five year plan (ending in 1960) the preparation of urban land use plans become a priority so as to ensure planned growth due to rapid urban population increase. During 1966, the Maharashtra Urban and Regional Planning Act was enacted which had provision to prepare regional plans, Development Plans and town planning schemes under the provisions of the Maharashtra Regional and Town Planning Act. In 1958 Ancient Monuments and Archaeological Act was enacted to protect and preserve ancient monuments and archeological sites. In case of Gujarat the first Act was enacted in 1961, which was



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the Gujarat Panchayats Act, this act enables the district Panchayats to make bye-laws for purification and protection and protection from pollution of sources of water and for other connected matters. In 1963 Fazlore Rehman committee on urban land policy was formed to examine the problems of urban land and suggest policy measures on the subject.

Industries and Environment The first Act regarding Industries was 1948 -The Factories Act, which was the first to express concern for the working environment of the workers. The 1987 amendment to the factories act empowers the state to appoints site appraisal committees to advice on initial location of factories using hazardous process and deal with disposal of water effluents. In 1951 Industries (Development and Regulation) Act was enacted this Act provided for the development and regulation of certain industries. The Era of Environment (1970-2006) The First Institutions to Protect Environment 1970 marks the starting point in Indian environmental history as the starting point in environmental era with the Establishment of The Maharashtra Pollution Control Board the first state pollution control board in India to begin operating. The year 1972 was a landmark in the history of environmental management in India. Prior to 1972, environmental issues such as sewage disposal, sanitation and public health were dealt with independently by the different ministries without any co-ordination or realization of the interdependence of the issues. In February 1972, a National Committee on Environmental Planning and Coordination (NCEPC) was set up in the Department of Science and Technology. NCEPC functioned as an apex advisory body in all matters relating to environmental protection and improvement. However due to bureaucratic problems, that NCEPC faced in coordination with the Department of Science and Technology and In 1980 The Tiwari committee was setup to suggest the administrative and legislative measures that ought to be taken for the protection of the environment. This committee gave five suggestions- 1) land and water management 2) Natural living resource 3) Environmental pollution and E.I.A 4) Human settlements 5) Environmental education and awareness. Based on recommendation of the Tiwari Committee NCEPC was replaced by a National Committee on Environmental Planning (NCEP) 1981. The International Event - Stockholm Conference The watershed event in the environmental movement was the Stockholm Conference on Human Environment (the Magna Carta on human environment) in June, 1972. The conference made it apparent to all attendees that each nation needed to adopt comprehensive legislation addressing health and safety issues for people, flora and fauna. The United Nations, organizers of the conference, requested each participant to provide a country report. The findings by the Indian conferees shocked even the most pro-development advocates in India. Stockholm served as the genesis for the series of environmental measures India passed in the years to come. It has also been suggested that international events such as Stockholm provided the cover Indian officials needed to implement national environment policy without the vitriolic backlash normally expected from industry (Shaman, 1996). Stockholm is also known for Indira Gandhi speech where she quoted "Poverty is the greatest polluter". Since than, Indian has participated in the international conferences and have been signatory to it declaration. Hence as a requirement, a lot of Acts and legislation were amended to protect, avoid violation and ensure a better environment. Acts for Protection of Environment In year as a requirement of the Stockholm conference 1972 India amended the first Indian Wildlife (Protection) Act 1972, which provides for the protection of birds and animals and for all matters that



21

are connected to it whether it be their habitat or the waterhole or the forests that sustain them. In 1972, after a decade later due to the American environmental moments dates its beginning to Rachel Carson’s book on pesticide pollution “Silent Spring” 1962. America amended the Pesticide Control Act, U.S.A, 1972, for control of pesticides for reduction of unreasonable risks to man and the environment. This was followed by the 1974 Toxic substance control act U.S.A. in the same year U.K. enacted Pollution Control Act U.K. 1974, which provides various regulatory and control measure to wastes disposal. A similar concern for waste started in India, in 1975 when a High powered committee on urban waste was by Government for review of problems of urban waste in India. This committee, in its report made 76 recommendations, covering eight important areas of waste management. The burgeoning awareness of the 1970’s did not mark the first efforts by India on the environment. As early as 1962, however, the Ministry of Health had begun to address water pollution issues by appointing a study committee. The committee made recommendations for both central and state level action. Jurisdictional questions remained unsolved between the states and central government, but by 1965 a draft bill was finally being circulated which allowed the states to pass resolutions authorizing Parliament to enact legislation on their behalves. By 1969, a bill, the Prevention of Water Pollution, had been introduced. Ultimately in 1974 after the Stockholm conference 1972, a modified version, the Water (Prevention and Control of Pollution) Act, passed in 1974, this was mainly passed for restoration and maintenance of wholesomeness and cleanliness in our national aquatic resources. The Water Act also established the Pollution Control Boards at central government and state government levels, institutionalizing a regulatory agency for controlling water pollution marked the first true commitment on the issue by the Indian Parliament. Hence 1974 The Gujarat Pollution Control Board established, the act provided for prevention and control of water pollution and the maintaining or restoring of wholesomeness of water. In 1977 The Water (Prevention and Control of Pollution) Cess Act, which was amended in 1992 provided for the levy and collection of Cess or fees on water consuming industries and local authorities. In order to provide the pollution control boards resources for equipment and technical personnel and to prompt water conservation by recycling. In the aftermath of the Water Act, Prime Minister Indira Gandhi moved to enact a series of environmental measures. The Department of Environment (DOE), created in 1980, performed an oversight role for the central government. DOE did environmental appraisals of development projects, monitored air and water quality, established an environmental information system, promoted research, and coordinated activities between federal, state and local governments. DOE was criticized, however, by environmental groups who recognized that with its small political and financial base the agency was weak and symbolic in nature. Environmentalists recognized quickly that DOE would essentially serve as an advisory body with few enforcement powers (Shaman, 1996). The Air (Prevention and Control of Pollution) Act of 1981 was the next area of focus following the passage of the Water Act. The legislation designated the central board and state boards, which governed water pollution duties, to also be empowered with the same authority and administrative functions for the Air Act. In essentially all respects, the functions and authorizations exercised by central and state officials in the Water Act remain the same. The Central Board sets national ambient air standards. In addition, the state boards have the power to petition local magistrates to restrain polluters from exceeding specified standards. This legislation, however, does not supersede provisions of an earlier law, the Atomic Energy Act of 1962, which addressed radioactive air pollution. The Constitution Although state governments have clearly delineated lines of authority and jurisdiction, Article 253 of the Constitution provides the central government with sweeping powers to implement laws for any



22

part of India with regard to treaties made with another country or decisions made by an international body In 1974 the 42nd amendment to the Constitution was brought and inserted two new Articles: Art.48-A and Art.51-A(g). The former, under Directive Principles of State Policy, makes it the responsibility of the State Government to protect and improve the environment and to safeguard the forests and wildlife of the country. The latter, under Fundamental Duties, makes it the fundamental duty of every citizen to protect and improve the natural environment including forests, lakes, rivers and wildlife and to have compassion for living creatures. The 42nd amendment adopted in 1976 and went into effect January 3, 1977. Apart from this the language of the Directive Principles of State Policy (Article 47) requires not only a protectionist stance by the state, but also compels the state to seek the improvement of polluted environments. The Town Planning Efforts With the increasing trend of urbanization, leading to development progressing along the periphery and outside the limits of local authority, led to enactment of the Andhra Pradesh Urban Area (development) Act in 1975, followed by The Bangalore Development Authority Act, The Karnataka Improvement Boards Act and the Gujarat Town Planning and Urban Development Act 1976 (the Gujarat town planning act 1976 came into force in 1978). These Acts made provision for delineation of development area for the city, incorporating the peripheral growth area around the city beyond the limits of local authority. These Acts also led to constitution of urban development authority for such area for its proper development. In the same year the 1976 Urban Land (Ceiling and Regulation) Act was amended to create land for urban development. Disaster and Movements In 1979, the Three miles island U.S.A nuclear power plants disaster was an important event that awakened the world towards the need to deal with such disaster. In India, in 1979 a new movement was started, movement for environmental protection. It started with 1979 Silent valley Case- Palghat, Kerala Hydro-electric proposed in the tropical forest, but the high court of Kerala refused to interfere in the matter and relied heavily on government position. Than followed the biggest disaster in Indian history in 1984, the Bhopal Gas Tragedy. Bhopal disaster led to major changes in India, first it to passing of Bhopal Gas Disaster Act, 1985 which further led to Passing of Environment Protection Act (EPA),1986 (the umbrella environmental legislation). The Apex Environmental Body and Environment In 1985 Ministry of Environment and Forest of Govt. of India was established and in 1986 the Environment Protection Act, (amended 1991) the umbrella legislation came into existence. This act is applicable to entire country and overrules other legislation, including local laws, which empowered the central government to take all necessary measures to protect and improve the environment. Obligation under the Stockholm declaration, The Environment (Protection) Rules -lay down procedures for setting standards of emission or discharge of environmental pollutants. Brundtland Commision In the 1983 the UN set up the World Commission on Environment and Development, also called as the Brundtland Commission. They produced "Our Common Future", otherwise known as the Brundtland Report, suggested 22 legal principal for environmental protection and sustainable development. Which framed much of what would become the 40 chapters of Agenda 21 and the 27 principles of the Rio Declaration on Environment and Development. It defined sustainable development as development which; “meets the needs of present generations without compromising the ability of future generations to meet their own needs”



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The Other Rules and Regulations In 1989, under EPA, government mandated the Hazardous waste (Management and handling) rules - to control the generation, collection, treatment, import, storage, and handling of hazardous waste and in the same year, the Central Motor Vehicles Rules were established which introduced nation-wide emissions levels for both petrol and diesel driven vehicles. Subsequently in 1990 the National Waste Management Council was constituted one of the NWMC objectives was municipal solid waste management. The council is engaged at present in a survey of 22 municipalities to estimate the quantity of recyclable waste and its fate during waste collection, transportation and disposal. In 1990 Environmental appraisal of Development Plans originated in UK and The European Economic Community issues the first proposal for a Directive on the Environmental Assessment (EA) of Policies, Plans and Programmes. Subsequently in 1992 Development Plans and Regional Guidance (DOE, 1992) UK marked the beginning of EA of local authority Development Plan in the UK. In 1991 The Public Liability Insurance Act and Rules was drawn up to provide for public liability insurance for the purpose of providing immediate relief to the persons affected by accident while handling any hazardous substance and the ministry of environment and forests issued guidelines for management and handling of hazardous waste. In 1994 Environmental Impact Assessment (EIA) - Restrictions & Prohibitions on the Expansion & Modernization of any activity or new projects unless Environmental Clearance has been accorded, amended 2001 and in 1995 The UNDP introduces the environmental overview as a planning tool. The International Events The Earth day 1990 -Described as the largest organized demonstration in human history, followed by the 20th anniversary of Stockholm, which took place in 1992 in Rio de Janeiro "Earth Summit" and Declared that human beings are entitled to a healthy and productive life of harmony with nature. The Rio de Janeiro earth summit agreed Agenda 21 and the Rio Declaration, These documents outlined key policies for achieving sustainable development that meets the needs of the poor and recognizes the limits of development to meet global needs. The 74th Amendment Act In 1992, with 74th Constitution Amendment Act (74th CAA), in fact, ushered in a new era in the history of urban local government in the country. State legislatures were empowered to entrust local bodies with necessary power and authority to enable them to function as institutions of local self-government. It is a first serious attempt to ensure adequate constitutional obligation so that democracy in the municipal government is stabilized. The 74th CAA is, indeed a pointer to the determination of the state to bestow power to the people to plan for themselves and participate in the decision-making process. The spatial and environment planning in the planning system has also been envisaged by the act at various levels right from nagar panchayats to a metropolitan area. It also provides for integration of the municipal plans with district plans and through them with the state and national plans. The Rules and Regulations in Last Ten Years In 1995 another high powered committee on urban waste was setup. The Ministry of Environment and Forests and the Central Pollution Control Board (CPCB) organized a meeting with municipal authorities and other concerned ministers in March 1995 to evolve a strategy for the management of municipal solid wastes. In 1995 CPCB established an Environmental Planning Cell and introduced an environmental (land use) planning programme known as “Zoning Atlas for Siting of Industries”. In 1996 government published guidelines for safe road transportation of hazardous



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waste and the Chemical Accidents (Emergency Planning, Preparedness and Response) Rules for combating disasters. In 1998 Bio-Medical Waste (Management and Handling) Rules were issued is a legal binding on the health care institutions to streamline the process of proper handling of hospital waste such as segregation, disposal, collection, and treatment and Draft municipal solid waste (management and handling) rules were issued. For the benefit of planning in 1999, The Environment (Siting for Industrial Projects) Rules, 1999, were laid down detailed provisions relating to areas to be avoided for siting of industries, precautionary measures to be taken for site selecting as also the aspects of environmental protection which should have been incorporated during the implementation of the industrial development projects. In 2000, Hazardous Wastes (Management and Handling) Rules were established; the rules lay down the procedure for waste collection, segregation, storage, transportation, processing, and disposal. This was followed by Final Municipal solid waste (management and handling) rules 2000 declaring that every municipal authority shall be responsible for the implementation of the rules and for any infrastructure for collection, storage, segregation, transportation, processing and disposal of Municipal solid waste. The Noise Pollution (Regulation and Control) Rules and The Ozone Depleting Substances (Regulation and Control) Rules- have been laid down for the regulation of production and consumption of ozone depleting substances were also established in 2000. In 2002, The Wild Life (Protection) Amendment Act was amended to provide for the protection of wild animals, birds and plants and for matters connected therewith or ancillary or incidental thereto with a view to ensuring the ecological and environmental security of the country. In 2003 Bio-Medical Waste (Management and Handling) (Amendment) Rules were amended. In 2003, Forest (Conservation) Rules, 2003 super session of the Forest (Conservation) Rules, 1981. In 2004 the Draft National Environment Policy (NEP) was published. The NEP, 2004 is a response to national commitment to a clean environment, mandated in the Constitution in Articles 48 A and 51 A (g), strengthened by judicial interpretation of Article 21 Is recognized that maintaining a healthy environment is not the state’s responsibility alone, but also that of every citizen. The NEP, 2004 is intended to be a guide to action: in regulatory reform, programmes and projects for environmental conservation; and review and enactment of legislation, by agencies of the Central, State, and Local Governments. It also seeks to stimulate partnerships of different stakeholders, i.e. public agencies, local communities, the investment community, and international development partners, in harnessing their respective resources and strengths for environmental management.

2.3. Summary The formal planning and administrative system in India was introduced by the British colonizer, hence the present planning system is mostly influenced or derived from British principle. The earliest laws concerning environment (directly/indirectly), land and city management were introduced by the British before the independence. It was during the British period when a lot of city improvement trusts were established in cities and Town Planning Acts were enacted on lines of the British Housing and Town Planning Act 1909. After independence in 1947, town and country planning laws/ Acts were enacted in various states, all these Acts provided for planning authorities at city level and town level for preparation of Development Plan. These Acts are based on the Model Urban and Regional Planning Development Act as proposed by the central government. However comprehensive urban and regional planning in India was first introduced after independence in Delhi 1957, Delhi the capital city of India was the first city to enact the Development Act in 1957 and the first Master Plan for Delhi was prepared in 1964. Delhi master plan was the first comprehensive Development Plan prepared in India and



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many of the latter Master / Development Plans prepared by other cities in the country was based on this Plan. There are about two hundred laws dealing with environmental protection both before and after independence in India. However, the pre-independence laws have not dealt with environmental protection exclusively. For the purpose of this study, prior and post to Stockholm Conference, 1972 all the relevant Acts / Regulations and Policies in India related to development planning and environment in India were identified.5 Below is summary of the list of Acts/ Regulation/ Policies that should be or need to be incorporated or referred to while preparing a Development Plan. Table 2.3. Acts/ Regulation and Policies to be Incorporated in the Development Plan Relevant Acts, / Regulation/Legislation / Policy

Objectives of the Acts / Regulation/Legislation/ Policy

Rationale for Incorporation

The Easement Act, 1882 Allows private rights to use a resource that is, groundwater, by viewing it as anattachment to the land. It also states thatall surface water belongs to the state andis a state property.

Understanding the issues related touser rights Ground/ Surface water.

The land Acquisition Act, 1894 Compulsorily acquiring of land requiredfor public purpose

Important Act for land mobilization

The Bombay ProvincialMunicipal Corporation Act 1949

Provision of civic infrastructure andadministration of the city

Understanding the role, responsibilityand powers of a municipal corporation(Ahmedabad Municipal Corporation orthe AMC, is established under theBombay Provincial Corporation Act)

Indian Electricity Rules, 1956 To regulate the supply, transmission,generation, and use of electricity.

Regulates and controlles thehorizontal and vertical clear distancesto be kept open to sky near vicinity ofgrid lines.

The Gujarat Municipal Act 1963 Provision of civic infrastructure andadministration of the municipal area

Understanding the role, responsibilityand powers of the municipalities in theDevelopment area.

The Indian Wildlife (Protection)Act 1972

Protection of birds and animals and for allmatters that are connected to it whether itbe their habitat or the waterhole or theforests that sustain them.

Need to identify habitats of protectedbirds and animals in urban area

The Water (Prevention andControl of Pollution) Act 1974

To ensure that domestic and industrialpollutants are not discharged into riversand lakes without adequate treatment

Need integration in the GDCR ofdevelopment area.

The Gujarat town Planning andUrban Development Act, 1976

to consolidate and amend the law relatingto making and execution of developmentplans and town planning schemes in thestate of Gujarat.

Legislation under which theDevelopment Plan is prepared

The Air (Prevention and Controlof Pollution) Act, 1981

To control and reduce air pollution. Need integration in the GDCR ofdevelopment area.

The Environment (Protection)Act, 1986

To provide for the protection andimprovement of environment and formatters connected there with in thecountry.

It is the umbrella legislation underwhich all the environmental legislationare enacted.

The Constitution of 74thAmendment, 1992

To achieve democratic decentralizationand provide constitutional endorsement oflocal self governance authorities anddecentralization of planning and decisionmaking procedures.

Ensure adequate constitutionalobligation for local self governanceand decentralization of planning anddecision making procedures.

5 For Comprehensive historical list of Acts / Regulation / legislation / Events in Urban Planning and Environment refer appendix -1.



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Relevant Acts, / Regulation/Legislation / Policy

Objectives of the Acts / Regulation/Legislation/ Policy

Rationale for Incorporation

The Chemical Accidents(Emergency Planning,Preparedness and Response)Rules, 1996

To deal with major chemical accidents and toprovide expert guidance for handling majorchemical accidents.

Under sec. 10 (1) mention measure to betaken in industrial pocket to deal withchemical accidents and coordinate effortsin planning, preparedness and mitigationof a chemical accident

Draft National Slum Policy 1999 To support the planned growth of urban areasin a manner that will help to upgrade allexisting slums and informal settlements withdue regard for the protection of the widerpublic interest

Under sec. 7- Planning for Integration,the policy proposes Modification ExistingPlanning Framework such as MasterPlans, Land Use Plans to ensure thatslums and informal settlements can beproperly integrated into the wider urbanarea

The Environment (Siting forIndustrial Projects) Rules, 1999

Lay down detailed provisions relating to areasto be avoided for siting of industries,precautionary measures to be taken for siteselecting as also the aspects of environmentalprotection which should have beenincorporated during the implementation of theindustrial development projects

To identify strategic location for Industrialland use.

Hazardous Wastes(Management and Handling)rules, 2000

To control the generation, collection,treatment, import, storage, and handling ofhazardous waste.

Need for environmentally soundmanagement of hazardous wastesgenerated from the development areaand to identify strategic location for safedisposal

Municipal Solid Waste(Management and Handling)Rules, 2000

To provide scientific management of municipalsolid waste, To ensure proper collection,segregation, transportation, processing anddisposal of solid wastes; and To upgradeexisting facilities to arrest contamination of soiland ground water

To integrate the rules while preparingproposal for solid waste management ofthe development area and to identifystrategic location for safe disposal site.

Noise Pollution (Regulation andControl) Rules, 2000

To regulate and control noise producing andgenerating sources with the objective ofmaintaining the ambient air quality standards in respect of noise

Under sec. 3 (4) All developmentauthorities, local bodies and otherconcerned authorities while planningdevelopmental activity or carrying outfunctions relating to town and countryplanning shall take into consideration allaspects of noise pollution as a parameterof quality of life to avoid noise menace

Bio-Medical Waste(Management and Handling)rules, 2003

Legal binding on the health care institutions tostreamline the process of proper handling ofhospital waste such as segregation, disposal,collection, and treatment.

To integrate the rules in the GDCR ofdevelopment area and promote propermanagement and handling.

The Gujarat State DisasterManagement Act, 2003

To provide for effective management ofdisaster, for mitigation of effects of disaster, foradministering, facilitating, coordinating andmonitoring emergency relief during and afteroccurrence of disasters

Under Sec. 17(1) (2) of the Act, itProposes Recommendations to be madeto the appropriate authority regarding thedevelopment plan.

Draft National EnvironmentPolicy, 2004

To mainstream environmental concerns in alldevelopment activities. Conservation of CriticalEnvironmental Resources, Intra-generationalEquity: Livelihood Security for the Poor, Inter-generational Equity, Integration ofEnvironmental Concerns in Economic andSocial Development, Efficiency inEnvironmental Resource Use, EnvironmentalGovernance.

The objectives are to be realized throughvarious strategic interventions by differentpublic authorities at Central, State, andLocal Government levels. The NEP alsoproposes substantive reform for thedevelopment plan.

EIA- Draft Notification forprojects, 2005

To identify and evaluate the potential impacts(beneficial and adverse) of developmentprojects on the environmental system

Projects E.I.A can be seen as a positivecontribution to the planning process andthe findings can be feed into the nextreview of the Development Plan providedthe results are well founded

Draft National Urban Housingand Habitat Policy, 2005

To promote sustainable development ofhabitat in the country, with a view to ensureequitable supply of land, shelter and servicesat affordable prices

The policy proposes action-orientedinitiatives at all levels of Government andspecifies action that requires to beintegrated in development plan.



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CChhaapptteerr 33.. PPllaannnniinngg ffoorr UUrrbbaann DDeevveellooppmmeenntt

3.1. Planning instruments/ Plans Urbanization, a process which often leads to haphazard growth of cities, deterioration in living condition, and worsening of environmental scenario has become a common feature in country today. The trend is escalating the pressure on limited land resource available in the city and its environs. The process of urbanization and increasing demand of land to accommodate the increasing urban population lead to haphazard urban growth and productive agricultural land is lost in the process. In this regards urban development planning assumes an important role to control and regulate the growth of the city In the Indian system, to guide the urban development planning process Urban Development Plans Formulation and Implementation (UDPFI) guidelines have been prepared. These guidelines propose a set of four interrelated plans as follows:

1. Perspective Plan 2. Development Plan 3. Annual Plan 4. Plans of Projects/Schemes.

3.1.1. Other Planning Instruments/ Plans Apart from the plans mentioned above some cities also prepare Vision Documents/Plans, Structure Plan, Comprehensive Plans, Strategic Plans and lately City Development Strategies (DCS), City Development Plan (CDP) and Action Plan. Vision Documents/ Perspective Plans Vision documents are similar to a perspective plan, the idea behind preparing these vision documents/ plans, is that Successful long-range planning can occur only if a city has a vision. This vision documents broadly gives the ambitions and aspirations for the city development for the next 20 years and this is framed by a vision statements/goals. It provides a policy framework for further detailing and it serves as a guide for urban local authority in preparation of the Development Plan. Structure Plan6 Structure Plan contains the vision, goals, policies and proposals to guide the development of a City over the next 20 years. The Plan contains details of all the relevant separate components that make up the City, that is, its economic base and population, broad land use and development strategies, commerce, tourism, industry, transportation, infrastructure and utilities, housing, community facilities, urban design and landscape, environment and special areas. It does not contain proposals for detailed physical planning for any specific area. Detailed physical proposals shall be relegated to a subsequent stage of the Development Plan. The Development plan shall provide for the citizens a more comprehensive and detailed perspective of the future of the city. Lately The Master Plan idea has moved to Structure Plan, but it is considered more philosophical; policy oriented, and in places where the structure plan doesn’t have statutory status, it became more a sort of a book-shelf plan than an implementation plan. 6 With reference to CHKL, (undated), Kuala Lumpur Structure Plan 2020, [Online], Available: http://www.dbkl.gov.my/pskl2020/english/index.htm [4 January 2006]



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Comprehensive Plan Comprehensive Plan has a long-range perspective, and is a policy document that provides a coordinated approach to making many decisions regarding land use and the location of development. The City Comprehensive Plan establishes an urban development strategy and policies to guide the future growth and development (generally 5-20 years). The objective of the plan is to provide necessary details and intended actions in the form of strategies and physical proposals for various policies given in the perspective plan. It is a statutory plan conceived under the state town planning act. This plan is similar to the Development Plans that are prepared in India; it is also know as a Comprehensive Development Plan in some states of India. Strategic Plan Strategic Plan is sector based plans or issue/issues based plans like - economic Development Plan for a city/ human resource Development Plan/ Transportation Plan. The purpose of the plan is to articulate a set of measurable strategies and actions to facilitate development of the City (based on the sector or issue) and to clearly define the goals, roles and responsibilities for achieving successful outcome. City Development Strategies (CDS)7 A City Development Strategy (CDS) is an action plan for equitable growth in a city, developed and sustained through public participation to improve the quality of life for all citizens. The goals are a collective city vision and action plan to improve governance and management, increasing investments to expand employment and services, and systematic and sustained programs to reduce poverty. A city is expected to drive the process and local ownership is essential. In other words, a CDS is a Corporate Plan for the city. City Development Plan (CDP)8 The City Development Plan (CDP) is the Municipal Corporation’s corporate strategy that presents both a vision of a desired future perspective for the city and the Corporation’s organization, and mission statements on how the Corporation, together with other stakeholders, intends to work towards achieving their long-term vision in the next five to ten years. It is similar to a City Development Strategies, but presently CDP in India are prepared under the JawaharIal Nehru National Urban Renewal Mission (JNURM) and the only difference between CDS and CDP is that CDP contains a Financially Operational Plan (FOP). Table 3.1. Summary of the Planning Instruments / Plans Planning Instruments/ Plans

Objectives and Content of the Plan Legal Status

To define a vision for the next 20-25 years for the city(ambitions and aspirations of the city)To provides a policy framework for further detailing and itserves as a guide for urban local authority in preparation ofthe development plan.Contains the vision, goals, policies and proposals to guide thedevelopment of a City over the next 20 yearsDoes not contain proposals for detailed physical planning forany specific area

Vision Document/ Perspective Plan

No legal Status

Structure Plan No legal Status

7 Asian Development Bank, [online], Available: www.adb.org [6 January 2006] 8 PMC. (2006), Pune City development plan, [online], Available: http://www.egovpmc.com/tp/cdp/pune_cdp-final_draftreport.doc [19 January 2006]



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Planning Instruments/ Plans

Objectives and Content of the Plan Legal Status

To provide necessary details and intended actions in the formof strategies and physical proposals for various policies givenin the perspective plan. (time-span 5-20 Years)Is a policy document that provides a coordinated approach tomaking many decisions regarding land use and the location ofdevelopment.To articulate a set of measurable strategies and actions tofacilitate development of the City and to clearly define thegoals, roles and responsibilities. (time-span 1-5 Years)Is a sector based plans or issue/issues based plans.To improve governance and management, increasinginvestments to expand employment and services, andsystematic and sustained programs to reduce poverty (time-span 5-8 Years)It is a corporate plan for the city

City Development Plan/ City

Development Strategies

No legal Status

Comprehensive Development Plan/ Development Plan

Legal Status provided by the

Acts under which it is conceived

Strategic Plan No legal Status

3.2. Development Plan A Development Plan is a Plan conceived within the framework of the approved Perspective Plan, it is a medium term plan (generally 5-20 years) providing to the people the comprehensive proposals for socio-economic and spatial development of the urban center indicating the manner in which the use of land and development there in shall be carried out by the local authority and other agencies. It is a statutory plan, adopted by the local authority for implementation with the help of schemes and projects. Its proposals are precise and definite, in some cities this is also known as a Master Plan. Development Plan envisages the entire town/urban area as a single unit. This is necessary to achieve overall development of the town/urban area in a co-ordinate manner. The development or expansion of a town takes along time, and therefore the development has to be regulated in time on the basis of a Plan. A Development Plan is thus a blue print of the various proposals that are intended to improve the existing conditions and to control the future growth of the town in a coordinated manner.

3.2.1. Environment in Development Plan A major criticism of development planning is that it has failed to adequately incorporate environmental consideration and values in a Development Plan. Most of the Development Plan including Ahmedabad Development Plan mentions environment, as an important component, but these is limited to concerns about pollution of air and water. Air and water are mainly mentioned because; majority cities like Ahmedabad have reached to a high pollution level, which are affecting the health of the citizens. But around the globe the emphasis has changed with the realization that environmental considerations should not be limited to concerns about just pollution control but should be more positive in aiming to create more comfortable, pleasant and stimulating surroundings natural and manmade environments. So considering the bio-centric view, one has to look at element like air, water, and land resources, open spaces and natural resources, archeological and historical resources, and areas subject to natural hazards and man made hazards, and integrate it in the Development Plan. If initially proper environmental integration was achieved, environmental impact statements will be much less likely to uncover unanticipated negative effects requiring costly plan changes and delay. Along with physical environment more important is the resulting Development Plan should be much more sensitive to all the needs- social and cultural as well as physical needs of the people who live in urban areas.



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3.2.2. Environmental Priority in Development Plan The traditional comprehensive planning and management has come from those that argued that it has ignored natural environment process as fundamental constraints to urbanization. Because of this the land-use decisions were being made and still been made primarily on the basis of economic criteria, the objectives being to accommodate projected growth while minimizing development costs and maximizing economic accessibility. In many parts of the world, economic development projects directed at improving levels of material comfort have had unintended detrimental effects on people and natural resources. Water, land, and air have been degraded to the point where they can no longer sustain existing levels of development and quality of life. With inadequate environmental planning, human activities have resulted in the disruption of social and communal harmony, the loss of human livelihood and life, the introduction of new diseases, and the destruction of renewable resources. These and other consequences can negate the positive benefits of economic development. Economic development in developing countries has been focused on immediate economic gains environmental protection has not been a priority because the economic losses from environmental degradation often occur long after the economic benefits of development have been realized.9 As a result has been significant environmental degradation accompanied by hazard to human life and property, unanticipated social costs, and loss of amenity and diversity. Present Environmental Issues in Cities Some specific urban issues relating to environment in cities are-

• Untreated sewage discharged into receiving waters during periods of heavy rainfall because of combined sewers

• Property loss from development of flood plains • Development without considering the topography and inadequate storm water drains

leading to flooding in the monsoon causing property loss • Pollution and depletion of ground water supplies from development on aquifers and land

development sealing their recharge zones • Destruction of wetlands by the disposal of solid waste in land fills • Destruction of water bodies and lakes by pollution • Interfering with the marine biodiversity by reclaiming land from sea and river • Loss of agricultural land to urban sprawls • Loss of forest area and green cover due to increasing urban pressure causing loss of flora

and fauna • Destruction of natural environment by recreation developments • Air pollution and stress on humans resulting from poorly designed transportation systems

and poorly planned and regulated industries • Loss of life and property due to poorly designed building in active seismic zones • Health problems directly effecting due to noise and air pollution • Collection and disposal of solid waste • Loss of life and property due to unplanned hazards

Due to the specific problems stated above relating to environment, it is essential to take environment considerations in any Development Plan or any plan making. These problems are mostly considered as sector based problems by cities, but environment problem need a holistic approach therefore there is a need for integration of these issues in development planning

9 ABD. (1997), “Chapter 1: Introduction EIA for Developing Countries”, Environment Impacts , 1997, [Online], Available: http://www.adb.org/Documents/Books/Environment_Impact/ chap1.pdf [18 November 2005]



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exercise. Hence environment should be the key to any Development Plan in order to avoid the extra cost required for unanticipated negative effects.

3.3. Environmental Impact Assessment (EIA) The past failure of development planning processes to take adequate account of the detrimental impacts of economic development activities led to the advent of environmental impact assessment (EIA) processes. EIA was first employed by industrialized countries in the early 1970s. Since that time, most countries have adopted EIA processes to examine the social and environmental consequences of projects prior to their execution.10 The purpose of these processes is to provide information to decision makers and the public about the environmental implications of proposed actions before decisions are made. Indian Scenario Naturally in India that at no stage in planning is environmental assessment or situation of likely environment damages and mitigation methods a part of the long term urban planning. Such a system requires a detailed understanding and study of hydrological characteristics of the region, air circulation patterns, study of ecological characteristic etc. similarly at the time of town planning schemes, sometimes involving huge residential development, environmental impact assessment is not prepared on an informal basis if not according to the rigor of Ministry of Environment and Forests recommendations. In India, Environment consideration only occurs at project level where E.I.A has to be conducted. If one goes through E.I.A Notification 15th September 2005 it covers entire range of projects which land use decision are taken at Development planning stage. E.I.A of projects has mostly been criticized on the grounds that because it is a response to a specific development proposal, it may not address some wider or more fundamental considerations such as alternative solutions or strategic location issues. Neither can it fully appraise the cumulative impact of number of proposals, especially when they are individually too small. Increasing sensitivity to environmental issues in a Development Plan during the planning stage can help to address these matters by considering alternative strategies or land uses and by considering the overall environment effects of implementing plan. Therefore there is a need for clarity at preparation stage showing how environmental issues have been taken into account and hence reduce the strategic environmental effects. Projects E.I.A should be seen as a positive contribution to the planning process and the findings can be feed into the next review of the Development Plan provided that the results are well founded.

3.4. Strategic Environmental Assessment (SEA) The requirement for local authorities to carry an SEA’S or environmental appraisal of these Development Plans originated in 1990 in Europe with the British government white paper on earths- the common inheritance (DOE, 1990) which stressed the importance of ensuring that environmental considerations are fully incorporated into policy document (Therival & Partidario 2002). Now SEA is the subject of legislation, which came into force on 20 July 2004 in Europe, implementing a European Directive. It requires environmental effects to be taken into account by authorities during the preparation of plans and programmes in the fields of land-use, transport, waste and water management, energy, and a range of other sectors.

10 ABD. (1997), “Chapter 1: Introduction EIA for Developing Countries”, Environment Impacts , 1997, [Online], Available: http://www.adb.org/Documents/Books/Environment_Impact/ chap1.pdf [18 November 2005]



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The Directive aims to ‘provide for a high level of protection of the environment and to contribute to the integration of environmental considerations into the preparation and adoption of plans and programmes with a view to promoting sustainable development’. A central purpose of SEA is to anticipate and improve the overall environmental effects of proposed patterns of spatial development, and of multiple individual projects.11 The environment assessment of Development Plans is often referred to as strategic environment appraisal /assessment- it is a process for identifying to a strategic environmental effects of a Development Plan so that they may be taken into account before the Plan is approved or adapted. It involves examining a Plans objectives policies and proposals in relation to broader environmental aims, identifying their likely consequences and through a process of assessment and adjustment, preventing or reducing the likely significant effects of Plan on the environment. Indian Scenario India does not have any legislation for SEA and environment assessment is limited to project level. But, SEA is truly useful only if environmental concerns have been already been integrated to some extend in the context and approach. In absence of SEA legislation, there a need to sensitize the development planning process towards environment and increase the environmental credential of Development Plan policies and proposals. Since decision of planning applications have to be made in accordance with the Development Plan there should be clarity in plan making by showing how environmental issues have been taken into account and hence helping to prevent avoidable environmental damage.

3.5. EIA vs. SEA The major difference between EIA and SEA is given below in table Table 3.2. EIA vs. SEA Strategic Impact Assessment (SEA) Environmental Impact Assessment (EIA)

To provide for a high level of protection of theenvironment and to contribute to the integration ofenvironmental considerations into the preparationand adoption of plans and programmes with a viewto promoting sustainable development

To provide information to decision makers and thepublic about the environmental implications ofproposed actions (project) before decisions aremade

Assessment scope - Policies, StatutoryDevelopment Plans, Strategic Plan

Assessment scope-limited to project level in India.

Pro-active approach- Assessment during thepreparation of the Plan/ Policy before the Plan/Policyis approved.

Re-active approach- Assessment carried out afterthe project has been proposed.

No legislation for SEA in India Legislation exists for EIA in India

Since the assessment is carried out at preparationstage, Provision can be made

Alternative solutions or strategic location issues ofthe project not considered.

Can fully appraise the cumulative impact of all theproject conceived within the Policy/ Plans

Since assessment is carried out at project level, itCannot fully appraise the cumulative impact

Issue of alternative solution or strategic location

Appraisal of cumulative impact of projects

Objective

Assessment Scope

Approach

Legal Status

11 U.K. (2004), Strategic Environmental Assessment (SEA), Number 223, 2004, [Online], Available: http://www.parliament.uk/documents/upload/POSTpn223.pdf [18 November 2005]



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3.6. Urban Planning in India and issues

3.6.1. Urban Planning in India Over a period of time it has been found that physical planning as embodied in Town and Country Planning Acts and socio-economic planning based on plan funds through the national level planning commissions were not operating in tandem. There was also less stress on the regional context of planning due to its long-term implications and where crisis planning required a close look at urban centers which were growing faster than the managerial capabilities to service such centers. At the national level, sectoral investments were through a series of central and state government departments but generally outside planning frameworks. It is only now that Development Plans lay stress on integrated growth and fiscal programmes.

3.6.2. The 74th Constitutional Amendment Act 1992 (74th CAA) The 74th Constitution Amendment Act (74th CAA) has, in fact, ushered in a new era in the history of urban local government in the country. The 74th CAA demands devolution of planning function to local authorities and involvement of people in the planning decision making process; and administratively and professionally it is expected that the system should provide for a long-term policy plan, a mid-term comprehensive plan which is further integrated with the budgetary process and divided into projects/schemes for implementation, monitoring and review. Article 243-W of the 74th CAA envisages, among others, that the legislature of state may, by law, endow the municipalities with such powers and the responsibilities subject to such conditions as may be specified. Further Article 243-ZD provides for constitution of a Metropolitan Planning Committee for planning a metropolitan area and article 243-ZE provides that every Metropolitan planning Committee (DPC) shall, in preparation of Draft Development Plan, have regards to, among others- matters of common interest between the municipalities and the panchayats including spatial planning, sharing of water and other physical and natural resources, the integrated development of infrastructure and environment conservation. The 74th CAA where, under article 243 U (i), the duration of municipalities the local authority for Development Plan preparation, adoption and implementation is for a period of 5 years. A plan and a planning process that provides opportunities to incorporate the needs of the urban centre and development aspiration of the people through the elected representatives would be desirable, acceptable to people and be dynamic as it will have better adoptability to change. But presently all the Development Plans by major cities are prepared for a time-frame of 20 years and revised every 10 years and the current process of approval of Development Plans also takes a lot of time, resulting in delays. The 74th CAA also emphasis that, urban Plans should not be conceived in isolation from its region as each urban centre is part of a regional system of settlements which in turn play their respective role in the process of development of the region as a whole. The 74th CAA is, indeed a pointer to the determination of the state to bestow power to the people to plan for themselves and participate in the decision-making process. The spatial and environment planning in the planning system has also been envisaged by the act at various levels right from Nagar Panchayats to a metropolitan area. It also provides for integration of the municipal plans with district plans and through them with the state and national plans. But the faith and the complete implementation of the 74th CAA is left to the disposal of the state legislature which by law, endow the municipalities with such powers and the responsibilities subject to such conditions as may be specified.



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3.6.3. The Development Plan/ Master plan In India, traditionally the development of urban areas is largely governed by their “Development Plan /Master Plans” duly approved by the respective governments. Item 20 of the concurrent list in the seventh schedule of the constitution of India states that social and economic planning is a joint responsibility of the central and state governments. However, land being a state subject, the role of the state governments assumes importance in the implementation of the plans. The urban planning system includes the Development / Master plan, detailed further through zonal plans. Generally, the state town and country planning departments or development authorities are responsible for preparation of Master / Development Plans of urban centers under the respective state regional and Town Planning Acts- the implementation of these plans is often through development authorities with co-operation of local bodies. Master Plans are prepared to achieve an orderly growth of urban settlement, which form part of the city. The jurisdictions of the Master Plans are normally the urban areas in the case of smaller urban settlements and include the surroundings inter dependent areas in the case of major urban settlements. The plan period for such master plan is 10-20 years. Most metropolitan cities in India prepared Master Plans/ Development Plans in the 1960s were patterned along the following themes12 : 1. Demographic projections and decisions on the level at which the population shall be contained. 2. Allocation of population to various zones depending on existing density level, infrastructure capacity and future density levels. 3. Land-use zoning to achieve the desired allocation of population and activities in various zones as projected. 4. Large scale acquisition of land with a view to ensuring planned development. Ground Realities of Development Plan/ Master Plan These comprehensive Master Plans/ Development Plans backed by the voluminous work studies and reports unfold a vision of these cities and towns as they are perceived to be in the year 2011 A.D. (a hypothetical year) a magical year so dear to the community of planners!. But in most of the cases assumptions have been questioned. The planning framework as adopted in the preparation of Master Plans has not been found to be commensurate with ground realities. The net effect of the inadequacies of the planning process has been that majority of urban growth has long taken place outside the formal planning process. Informal residential and business premises and developments increasingly dominate urban areas. In Delhi, where half or more of a city's population and many of its economic activities are located in “illegal” or informal settlements, urban planners still rely on traditional master-planning approaches with their role restricted to servicing the minority, high income residents and mostly access to housing, services and employments by the informal sector and which in metropolitan areas can be well over half the urban population is ignored in the Master Plan. So no one can deny the fact that in spite of all this planning efforts, the cities have continued to deteriorate, roads are clogged, slums have mushroomed, open spaces vanished, jobs concentrated in central areas, and pollution increased. Issue of Specialized Agencies The current planning practices in the country indicates that planning objectives, policies and strategies at national level, are basically formalized in the five year plans which are economic and social in nature and contents. These plans are the major documents which determined the course

12 Mohan, D. (2001), “Planning for Public Transport: Integrating Safety, Environment and Economic Issues” Transportation Research and Injury Prevention Programme, Indian Institute of Technology, New Delhi.



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of national development, these are sectoral and there is hardly any actual inter-sectoral coordination. One of the major factors contributing to the lack of comprehensiveness in “comprehensive” urban planning and management has been fragmentation of the planning responsibility among specialized agencies based on sectors. The results, in the absence of effective intergovernmental and interagency coordination, has been narrowly focused, single-purpose functional planning – for example, plans for locating highways, developing water resources, or building water and sewer systems. But measures designed to solve one problem often create or exacerbate problems in other functional areas. The examples of environmental problems resulting from a failure to plan comprehensively generally include disruption and degradation of the natural environment, unplanned secondary development, and dislocation of people and whole neighborhoods. Implementation The implementation of these Development / Master plans, however, has generally been poor and they have been criticized to be rigid and static having little regard to investment planning efforts and taking very long time in the process of plan formulation and approval. According to assessment carries out by Gowda Kari13 hardly 15 to 30% of Plan proposals are implemented. This is majorly because of the planning framework as adopted in the preparation of Master Plans has not been found to be commensurate with ground realities. The lands reserved for public purpose have not been acquired by the authority; due to lack of man power and resources the infrastructure has not been provided. The net effect of the inadequacies of the planning process has been that majority of urban growth has long taken place outside the formal planning process and than attempt have been made to regularize the illegal construction and development. But the issue here is that, indiscriminate regularization may ultimately defeat the very purpose of preparing the plans and framing of rules and regulations. In such case the planning authority should be accountable to the citizen; there is no provision in Town Planning to envisage any authority to supervise the planning authorities to assess their performance. Assessing the performance of the planning authority is very important since many of them have failed in preparing the Plans in time and enforcing the plan proposals properly. Beside Master Plans rarely evaluate the cost of the development they propose, or how they will be financed. For this reason, it is impossible to tell whether the plans require outlays far beyond what is affordable. The typical Master Plan offers no guidance on which parts of the Plan could be scrapped if adequate resources for implementing the entire plan are not available. Major Deficiencies in the Development / Master Plan Approach are:

• It provides a long-term perspective of development, neglecting short-term actions and objectives; thus, losing its effectiveness in a fast-changing scenario.

• It is rigid and static because it is treated as an end product and not as a continuous process.

• It takes a very long time in its preparation and approval, making it an out-of-date document even before its implementation. As a consequence, there are frequent changes in land use.

• It lacks integration of physical and fiscal planning efforts • Implementations of Development / Master Plans are generally poor. • Monitoring and review mechanisms are neither regular nor effective. • It emphasizes control rather than promotion of development.

13 Gowda, K. (Undated), Role of Planning Authorities and Urban Local Bodies in Plan Implementation and Enforcement- A case study of Karnataka, [Online], Available: home.iitk.ac.in/~pmprasad/eandd.ppt [15 November 2005]



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• In some cases too much political interference is observed which results in some irrational proposals and implementation decisions

3.6.4. Environment Problem in Urban Planning The environmental problems associated with urban growth and management includes urban sprawl, damage due to construction activities (in planned versus unplanned settlements), threat to the cultural heritage and inadequacies in provision of basic environmental amenities in the urban areas (underground drainage, waste waster treatment facilities and solid waste disposal sites). The problem in today planning is environmental components are not addressed explicitly and Study maps do not cover all ecological characteristics. The whole planning process is affected due to lack of base maps, since up-to-date base map of urban areas covering the logical planning area are not available. Moreover the available Plan/ Maps for the conurbation area do not have the desired details of accuracy required for urban planning. The comprehensive Development Plan does not consider the resource base, impact of competitive advantage of regions to attract investment, and regional migration trends based on hierarchy of settlements. As investment potential of an area is not comprehensively assessed, and only a land allocation and use prescription is made, the actual growth rarely follows the original assumptions and infringements of regulations are common14. With population migrating to urban settlements in search of improved economic levels, the first pressure is on housing leading to the high costs or prevailing high rents in urban areas thus leasing to illegal occupancy of vacant / public land through huts which over a period of time develops into a slum. Such housing does not have any basis amenities like light, water or toilet facilities and consequently affects environment in the immediate surroundings. The high land costs and inability of planning authorities to provide adequate land at cheap prices result in the formation of unplanned / illegal layouts. Agriculture land zoned for residential land use in the master plan are often subdivided into plots and sold by owners without permission from the concerned planning authorities. The illegal layouts typically do not have adequate open spaces, access roads will be too narrow and provision for water supply or sewage system or for garbage collection will be absent. Absence of provision of water and sewage system by the state ( due to illegal nature of this sites and construction) forces people to draw usage of ground water and use soak pits for toilets activities, thus effecting the environment.

3.6.5. New Approach in Urban Planning Town planning is a state subject. Over years, various state governments have been taking concerned attempts to plan and manage the urban areas. There are certain regulations/ Acts that bestows the urban local bodies as well as the state government to govern the urban areas. Master planning/ development planning is the most general approach adopted in the planning of urban areas. However, the experiences elsewhere as well as within our country have promoted to look alternative approaches, as the Master Plan approach to urban planning did not yield desired level. With the continuous search for alternative approaches towards urban development and management, the experts both locally and internationally propagate for the adoption of capital budgeting and city corporate plan like City Development Strategies and City Development Plan for effective management of urban area. These are recent concepts and it is very early to say about the credibility of these plans in Indian context.

14 Anonymous. (2003), “Urban Planning”, Sate of Environment Report -2003, [Online], Available: http://parisara.kar.nic.in/PDF/ UrbanPlanning.pdf [1 January 2006]



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3.6.6. Cost of Planning Another problem of the planning process was and still is its high costs. As long as most plans were “Development Plan” this problem was no big issues, since the planning costs could be paid out of the funds obtained for building permits. But at a moment where the rate of building activities is slowing down, the character of the plan is changed from development to conservation. The municipalities are faced with the necessity to provide the money involved in the planning process out of other municipal resource. However, the initial preparation effort is normally an expensive multi-year affair and Indian governments may not afford to update the master plan frequently enough to keep pace with development. In order to make planning less expensive and reduce the necessity of frequent changes of the plans countries like Netherland came with idea of land use plan with higher degree of flexibility. According to them the plan should not contain any regulations than those that are absolute necessary, and avoid unnecessary restrictions for the municipality as well as far the public. As a result, the possibility for including planning policy objectives and other guidelines in the plan was created. All building permits must be in accordance with the regulations of the plan and with these policy objectives. However, detailed plan are still a possibility.

3.7. Conclusion The process of urbanization has led to rapid growth of the cities and hence to plan and regulate the cities, urban development planning assumes an important role. The urban planning system in India has gone through an evolutionary process. There are various instrument employed by various cities in India to regulate and plan its growth. The instrument like Structure Plan, Vision Document and City Development Strategies were employed by some cities but due to lack of statutory support this plans remained more of a book-self Plans. Presently Development /Master Plan are the only instrument that is backed statutory by a Town Planning Act and remains an important instrument for urban development planning. But due to economic criteria dominating urban planning decisions, development planning has failed to adequately incorporate environmental consideration and values in a Development Plan. As a result has been significant environmental degradation in urban areas accompanied by hazard to human life and property, unanticipated social costs, and loss of amenity and diversity. In absence of legislation for Strategic Environmental Assessment of Development Plans in India, there a need to sensitize the development planning process towards environment and increase the environmental credential of Development Plan policies and proposals. The other issue associated the Development Plan is the time-frame for the Plan. The 74th Constitution Amendment Act (74th CAA) which ushered in a new era in the history of urban local government in the country proposes a time-frame of 5 years for the Development Plan while presently Development Plans are prepared for time-frame of 20 years. The planning framework as adopted in the preparation of Master Plans has not been found to be commensurate with ground realities. The net effect of the inadequacies of the planning process has been that majority of urban growth has long taken place outside the formal planning process. One of the major factors contributing to the lack of comprehensiveness in “comprehensive” urban planning and management has been fragmentation of the planning responsibility among specialized agencies based on sectors. The result is lack of intergovernmental and interagency coordination during preparation and implementation of the plan. Beside Development / Master plans rarely evaluate the cost of the development they propose, or how they will be financed. The typical master plan offers no guidance on which parts of the plan could be scrapped if adequate resources for implementing the entire plan are not available. Hence there is an urgent need for revival of the present urban development planning system.



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CChhaapptteerr 44.. EEnnvviirroonnmmeenntt aanndd UUrrbbaann DDeevveellooppmmeenntt PPllaannss

4.1. Introduction The formal Planning and administrative system in India was introduced by the British colonizer, hence the present planning system is mostly influenced or derived from British principle. As discussed earlier section the earliest laws concerning environment (directly/indirectly), land and city management were introduced by the British. It was during the British period when a lot of City Improvement Trusts were established in cities and Town Planning Act was enacted on lines of the British Housing and Town Planning Act 1909. Over a period of time city planning have gone through an evolution process and a lot of changes were made to suit the local condition and the emerging issues. Recently environment has been a major concern for cities throughout the world and environmental consideration in city planning process has become a necessity. This section tries to understand the development / master planning process of two cities London (British capital city- which influenced India for about 150 years) and Delhi the capital city of India (also planned by the British and the first city to enact the development act and prepare the Master Plan after independence) and their extent of environmental consideration.

4.2. London Plan 2004 The Greater London Authority (GLA) was established in 2000. It covers the 32 London boroughs and the Corporation of London. It is made up of a directly elected Mayor (Executive) and a separately elected Assembly (to scrutinize the mayor). The GLA is a new kind of public authority, designed to provide citywide, strategic government for London. Its principal purposes are to promote the economic and social development and the environmental improvement of Greater London. The Greater London Authority Act 1999 places responsibility for strategic planning in London on the Mayor, and requires him to produce a Spatial Development Strategy for London – which he has called the London Plan – and keep it under review. The London Plan replaces existing strategic guidance, and boroughs’ local plans must be in ‘general conformity’ with it. The required content of the London Plan is set out in the Act, supplemented by a government guidance note (Circular 1/2000).The GLA Act 1999 also requires that the London Plan takes account of three crosscutting themes:- The health of Londoners , Equality of opportunity and Its contribution to sustainable development in the UK.

4.2.1. The Process for Preparing the Plan The Mayor has to produce the new strategic London Plan in three stages: Stage 1 – Towards the London Plan: This document, set out for consultation a vision for London and the broad policy directions which would guide the preparation of the draft London Plan. The results of that consultation, and the Mayor’s response to it, were set out in Responses to Towards the London Plan. Stage 2 – Draft London Plan: This stage began with the publication of the Draft Plan, accompanied by a sustainability appraisal. It was subject to a statutory three-month consultation period. The responses (and the Mayor's views concerning these responses) are considered by a government-appointed panel reporting to the Mayor. The panel holds an Examination in Public (E.I.P.) on the



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draft London Plan. It tests the strategy for robustness, effectiveness and consistency with other strategies and government policy, and presented its report to the Mayor. Stage 3 – The published London Plan: London Plan 2004 is the first statutory, strategic plan prepared for London for two decades. The Mayor believes it is crucial to London’s development that a plan be put in place as early as possible to fill the gap in long-term direction for London. Inevitably this means balancing the overall strategic direction with the level of detail that can be included. The strategic policy framework and data sources, within which the plan is situated, are constantly changing. In preparing the Plan all advice and guidance current at the time of going to print have to be taken account. The London Plan will be subjected to an ongoing process of monitoring and managing change. An annual report will be published and the Mayor will move to an early review of or alteration to the Plan to update certain areas and to reflect major external changes Figure 4.1. London Plan Preparation Process

4.2.2. Time Influenced Change According to the London Plan, Over the past 20 years London has changed dramatically. Some of these changes are being driven by international forces, including:

London Plan

Draft London Plan

Sustainable appraisal

3- Months consultation period

Responses considered by a Government –appointed panel

Panel conducts Examination in public (E.I.P) - presents report to Mayor

Directly elected

The Greater London Authority

Mayor (Executive)

Elected Assembly Scrutinize

Towards the London plan- consultation a vision for London and broad policy direction

Mayor vision

Annual Report - alteration to the Plan, update certain areas and reflect major external change



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• The globalization of many economic sectors, and the dominance of the finance and business sectors, frequently interlinked with dramatic advances in technology

• An increased inter-relationship between major economies, where internationalization of investment and trade accompanies developments in telecommunications and rapid transport effectively shrinks distances between people, markets, and business decision takers

• And the most important the new increasing environmental imperative to use energy and resources more efficiently, value the environment and reduce environmental stress

4.2.3. Growth of London The London cannot realistically reverse these strong, deep-rooted factors driving change, nor does the Mayor wishes to do so in the London Plan. London Plan sets out policies to accommodate the growth in a sustainable way, within London’s own boundaries and without encroaching on London’s own precious green spaces. According to London Plan, Growth can only be accommodated without encroaching on open spaces if development takes place more intensively, leading to higher densities and plot ratios on existing brownfield sites. In short – London must become a more compact city.

4.2.4. Sustainable Development A more compact city will enable the more effective use of scarce resources, including land, energy, transport infrastructure, water and construction materials. It means in turn that open spaces, rivers and other water features should be protected and enhanced so that growth can benefit the city’s breathing spaces. The plan through strategies supports a determined effort to manage London’s waste more sustainable and to minimize London’s effect on, and manage its responses to, climate change.

4.2.5. The Mayor’s Vision Growth, Equity and Sustainable Development, are consistent themes throughout all the Mayor’s strategies. Mayor’s vision is to develop London as an exemplary, sustainable world city, based on the three balanced and interwoven themes

• strong, diverse long term economic growth • social inclusivity to give all Londoners the opportunity to share in London’s future success • fundamental improvements in London’s environment and use of resources

4.2.6. Vision to Objectives The Mayor has set out five common themes for each strategy to ensure that London can become: a city for people, a prosperous city, a fair city, an accessible city and a green city. Each of these themes has been developed into a specific objective and key policy direction are given to achieve each objective The objective of the London plan is as follow

• To accommodate London’s growth within its boundaries without encroaching on open spaces

• To make London a better city for people to live in • To make London a more prosperous city with strong and diverse economic growth • To promote social inclusion and tackle deprivation and discrimination • To improve London’s accessibility • To make London a more attractive, well-designed and green city



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4.2.7. Forces Driving Change in London Looking at the future, the London plan identifies and examines six forces driving change in London. They are population growth, economic growth, environmental issues, lifestyle and technological changes and social justice. The environmental imperative is encapsulated by the Rio Summit, the Kyoto Agreement and a raft of EU and UK Directives, standards and targets. The Mayor’s vision for an exemplary, sustainable world city means that Londoners must be more responsible about how much they consume and discard. The London Plan gives an opportunity to plan growth in ways that make better use of key resources such as land, buildings and construction materials, water, energy and waste. London also needs to respond to climate change in two ways – first, in terms of reducing emissions that contribute to global warming and secondly, by managing the impacts and risks that climate change will bring.

4.2.8. The Broad Sustainable Spatial Development Strategy London Plan proposes, optimizing the use of previously developed land and vacant or underused buildings ensuring that development occurs in locations that are currently, or are planned to be, accessible by public transport, walking and cycling ensuring that development occurs in locations that are accessible to town centres, employment, housing, shops and services ensuring that development takes account of the capacity of existing or planned infrastructure including public transport, utilities and community infrastructure, such as schools and hospitals taking account of the physical constraints on the development of land, including, for example, flood risk, ensuring that no significant harmful impacts occur, or that such impacts are acceptably mitigated.

4.2.9. Living in London Living in London is addressed to and is predominantly about London’s residents. It concentrates on housing and on the key public services that are critical to quality of life. The London Plan firstly, it examines the need for additional housing. This is partly to address the demand for housing coming from population growth, but it is also to address the historical shortage of affordable housing and the high cost of housing in London. Secondly, it takes a more detailed look at London’s population – made up of a host of communities of identity and interest each of which has its own particular needs over and above the needs it shares with others. Thirdly, it looks at the major public services – education and health – as well as safety. It seeks to ensure that the spatial and planning needs of the services – the new schools, health and other facilities needed for a growing population - are met over the coming years. The London plan gives due consideration for the issues of disabled people.

4.2.10. Promoting Environmental Industries According to London plan, The Mayor and the LDA and other agencies and sub regional partnerships should, support the establishment of green industries and green practices in business through funding, training, business support, market development, promotion initiatives, demonstration projects, land use policies and support for clusters of related activities. Environmental industries address issues of air and noise pollution, climate change, waste management and fuel poverty, building on policies in the Mayor's five environmental strategies covering energy, waste management, ambient noise, air quality and biodiversity.



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4.2.11. Sustainable Transport in London London plan strategies include Access improvements to and within town centre’s and their residential hinterlands by public transport - including by improved bus services, walking and cycling and between town centres by improved bus services, more frequent rail services and, where appropriate, new tram and bus transit schemes. A close co-ordination of transport and land use development will support London’s development and growth and help to ensure that Londoners have convenient access to the services and facilities they need. Good public transport access will not in itself guarantee development but is a necessary condition for sustainable development.

4.2.12. Improving London’s Open Environment According to London Plan, the Mayor will work with partners to identify any strategic deficiency in the provision of publicly accessible open space. London's open spaces include green spaces, such as parks, allotments, commons, woodlands, natural habitats, recreation grounds, playing fields, agricultural land, burial grounds, amenity space, children’s play areas, including hard surfaced playgrounds, and accessible countryside in the urban fringe. Civic spaces, such as squares, piazzas and market squares also form part of the open space network. The variety and richness of London's open spaces contribute hugely to its distinctive and relatively open character.

4.2.13. The Crosscutting Policies This section particular focus is on London Plan objective, to make London a more attractive, well-designed and green city and to become an exemplary, sustainable world city, London must use natural resources more efficiently, increase its re-use of resources and reduce levels of waste and environmental degradation. Through the objectives and policies set out in the strategies on Municipal Waste Management, Air Quality, Energy, Biodiversity and Ambient Noise, the Mayor will work with partners to give a stronger emphasis to the prevention of environmental problems in London. According to the plan, London should become a more sustainable and self-sufficient city, healthier to live in and more efficient in its use of resources. It should also be a better neighbor to its surrounding regions by consuming more of its own waste and producing less pollution. The London plan also proposes strategies and policies based on national policy for waste, minerals, improving air quality, improving use of energy, efficient use of water, reducing noise, tracking the climate change and contamination of land. Planning for Waste In order to meet the national policy aim, that most waste should be treated or disposed of within the region in which it is produced (regional self-sufficiency) the Mayor will work in partnership with the London boroughs, the Environment Agency, statutory waste disposal authorities and operators to ensure that facilities with sufficient capacity to manage 75 per cent of waste arising within London are provided by 2010, rising to 80 per cent by 2015 and 85 per cent by 2020. An early alteration to the Plan will seek to bring forward regional self sufficiency targets for individual waste streams. The London plan also proposes Spatial policies for waste management, in which the Mayor will promote the co-ordination of the boroughs’ waste policies and strategic guidance which will evaluate the adequacy of existing strategically important waste management and disposal facilities to meet London’s future needs. It also gives Criteria for the selection of sites for waste management and disposal.



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Planning for Minerals London needs a reliable supply of materials to support high levels of building and transport construction. These materials include land-won sand and gravel, crushed rock, marine sand and gravel and recycled and alternative materials. There are relatively small reserves of land-won sand and gravel in London. Since Aggregates are bulky materials the London plan policy proposes to maximize their use and re-use and minimize their movement, especially by road. The plan’s Policy on sustainable design and construction will be important in helping to reduce the demand for natural materials. The proximity principle dictates the best and most local use of materials that can be extracted in London. Improving Air Quality In accordance with the objectives of the National Air Quality Strategy, the Mayor’s Air Quality Strategy seeks to minimize the emissions of key pollutants and to reduce concentrations to levels at which no, or minimal, effects on human health are likely to occur. London also feels the need for improving the integration of land use and transport policy and reducing the need to travel especially by car, and ensuring this at the planning application stage. The Mayor also plans to work with strategic partners to ensure that the spatial, transport and design policies of the plan support Air Quality Strategy. Strategies also proposes working in partnership with relevant organizations, taking appropriate steps to achieve an integrated approach to air quality management and to achieve emissions reductions through improved energy efficiency and energy use. Improving the Use of Energy The plan requires London to become more energy efficient and use more energy from renewable sources. In taking forward the spatial implications of the Mayor’s Energy Strategy, the plan represents an opportunity to improve the sustainability and environmental performance of London’s built environment. This applies to both new development and the existing built form. In support of these London wide targets the Energy Strategy includes policies requesting boroughs to set consistent targets for the generation of renewable energy in their areas, to install at least one zero carbon development and to identify Energy Action Areas. The plan also proposes requirement for Energy assessment for major development projects and hence contribute towards improving the use of energy efficiently. Efficient Use of Water The Mayor recognizes that additional water infrastructure will be required to facilitate London’s growth. A clean and reliable supply of water is a fundamental need of everyone. London has a high-quality reliable water supply much of which is supplied from outside London. The concentration of people and services within London leads to pressure on supplies during periods of prolonged hot weather when water usage increases. This pressure is likely to increase in the future with the predicted climate change of London. In order to ensure that adequate sustainable water resources are available for major new development the mayor has proposed certain strategies like, minimizing the use of treated water, maximizing rainwater harvesting opportunities, using grey water recycling systems, reaching cost-effective minimum leakage levels keeping under review the need for additional sources of water supply in future. There is also proposal to improve the present water and sewerage infrastructure for preventing water pollution. Reducing Noise As London becomes a more compact, even busier city according to the plan, London will need a more vigorous approach to noise reduction at the strategic and local level. Hence the Plan proposes strategies to reduce noise through spatial planning.



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Tackling Climate Change London is already feeling the effects of climate change. Sea-level rise relative to the land is now widely accepted as occurring at 6mm/year at high tide in the London area. A significant proportion of future development will be in east London, which could be increasingly at risk from tidal flooding. Preventative and adaptive measures will therefore be needed, including the construction of appropriate flood defenses in new developments. It also identified a number of climate change impact that could affect London in future and proposes policies to address this issue.

4.2.14. Implementing the London Plan After all the efforts put in for preparing the Plan, the Plan need to be implemented properly without which it will only remain as a piece of a document. Hence implementation process of the Plan plays a vital role in the planning process. In case of London Plan, the Mayor cannot implement the London Plan alone. He has to work with Londoners and a range of stakeholders including the GLA group, boroughs, the government and statutory agencies, the private sector, the voluntary and community sectors and others to ensure that the objectives and policies in this Plan are implemented. The Mayor also must have regard to the resources available to implement this Plan (people, institutions, funding, policy vehicles, information and natural resources). The Plan’s Sphere of Influence The London Plan itself is a statutory document. It is the main vehicle for strategic decision-making on London’s development. Figure 4.2 shows the main areas of spatial development that the Plan will directly influence.

Source- London Plan 2004 Main spheres of influence are: • Development decisions: These include, for example, proposals to develop new housing or to regenerate town centres. Most of these decisions will be taken by the private sector and will have to be taken in the context of the plan’s policies. • Investment decisions with a spatial impact: These include, for example, decisions on funding of transport or utilities infrastructure or on major land acquisitions. Both public and private sectors will make these decisions, which will be strongly influenced by the plan’s policies.

Figure 4.2. Main Sphere of Influences of the London Plan



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• Other spatial policy vehicles: These will have to be formulated within the policies of the plan and may be at sub-regional level, such as Sub- Regional Development Frameworks, or at local level, which must be in general conformity with the London Plan. • Decisions that regulate proposals for development and especially development control, which is exercised by the boroughs and, in specified cases, the Mayor. These decisions must reflect the policies of this plan. The Mayor’s role in Implementation The Mayor controls major elements of the policy and resources needed for the implementation of the London Plan. These include the full range of statutory strategies and the budgets of the GLA group. The GLA group comprises the GLA, Transport for London, the London Development Agency, the Metropolitan Police Authority and the London Fire & Emergency Planning Authority. The group works together to achieve the Mayor’s vision for London. This means strategic planning, transport economic development and public safety decisions and expenditures can be made in an integrated way.

4.2.15. Monitoring and Review of the Plan The Mayor will publish an Annual Monitoring Report that measures progress on the London Plan against a set of specific targets. He will involve key stakeholders in this review process and consider any policy adjustments needed to keep the Plan on track. The Mayor also will hear Londoners’ views on the issues and will create a network that can be used to gather stakeholder opinion and feedback. The London Plan has also developed performance indicators to monitor the key elements of each of the six objectives set out in the Plan.

4.2.16. Environmental Consideration in London Plan The Plan recognizes environment as one of the major international force driving change in London, hence the plan tries to address the environmental concern in the Plan. The environmental sensitivity in the London Plan starts from the document itself, the London Plan document itself is an environmental friendly document, which is printed on 50 per cent post consumer recycled paper, 50 per cent totally chlorine free pulp, and printed with vegetable oil based inks. Like the document, the proposal and strategies for London, proposed in the London Plan, have given enough thought for environmental concern. The environmental consideration in the plan are given below- Plan Preparation Stage

• The London Plan has to go through a Sustainable appraisal as a requirement of the Greater London Authority Act 1999, to ensure sustainability development.

Mayor’s Vision • The mayor wishes to develop London as a sustainable world city, based on the theme

fundamental improvements in London’s environment and use of resources The London Plan

• Environmental objective of the Plan- to accommodate London’s growth within its boundaries without encroaching on open spaces and to make London a more attractive, well-designed and green city

• To promote sustainable development the London Plan proposes, optimizing the use of previously developed land and vacant or underused buildings.

• According to London Plan, The Mayor and the LDA and other agencies and sub regional partnerships should, support the establishment of green industries and green practices in business.



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• Environmental industries- address issues of air and noise pollution, climate change, waste management and fuel poverty, building on policies in the Mayor's five environmental strategies covering energy, waste management, ambient noise, air quality and biodiversity.

• The London Plan promotes sustainable transport system. • The London Plan through the objectives and policies set out in the strategies on Municipal

Waste Management, Air Quality, Energy, Biodiversity and Ambient Noise, the Mayor plans to work with partners to give a stronger emphasis to the prevention of environmental problems in London.

• The London Plan also proposes strategies and policies based on national policy for waste, minerals, improving air quality, improving use of energy, efficient use of water, reducing noise, tracking the climate change and contamination of land.

Note- for a comprehensive list of the content of the London Plan 2004 refer Appendix - C

4.3. The Case of Master Plan Delhi 2021 The process of planned development of the national capital began with enactment of the Delhi Development Act 1957, followed by the promulgation of the Master Plan in 1962. Master plan is a legal document prepared under the Delhi Development Act 1957, by the Delhi Development Authority (DDA). The power of the master plan was realized during the 1995 court case; environmental lawyer M. C. Mehta argued that Delhi industries and government agencies were not abiding by the city’s zoning regulations spelled out in the Delhi Master Plan. The Master Plan, published in 1990, had divided the city into functionally segregated zones and prohibited hazardous and small-scale industries from operating in many of these. India’s Supreme Court ruled in favor of Mr. Mehta, directing hundreds of hazardous and small-scale industries operating in “non-conforming areas” to relocate outside the metropolitan region at the periphery of the larger National Capital Region (NCR).15 The latest Master Plan for Delhi was published in 2005 in the Gazette of India; this is the third master plan for Delhi, the Master Plan is also known as MPD-2021. After four decades of master planning process the Master Plan Claims to have incorporated the lessons learnt from the past experiences and taken into account all that have happened in Delhi and try to introduce approaches which will ensure further development in consonance with the requisites of modern living and within acceptable environmental parameters.

4.3.1. The Process of Preparing The Master Plan Given below is the procedure prescribed in the Delhi Development Act, 1957- Public notice regarding preparation of Master Plan- As soon as may be after the draft master plan has been prepared, the authority shall publish a public notice stating that-

a) The draft master plan has been prepared and may be inspected by any person at such time and place may be specified in those notice;

b) Suggestions and objection in writing, if any, in respect of the draft master plan may be filed by any person with secretary of the authority within 90 days from the date of first publication of the notice.

Mode of publication of public notice- the authority shall cause the said notice to be published in the manner published in the manner prescribes by section 44 of the Act and may also cause it to be published in the official gazette.

15 Alley K. D., Meadows D., (2004), Workers' Rights and Pollution Control in Delhi Human Rights Dialogue: Environmental Rights, [Online], Available: http://www.carnegiecouncil.org/viewMedia.php/prmTemplateID/ 8/prmID/4451 [9 January 2006]



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Notice to and representation from local authorities- the authority shall cause a copy of the notice referred to in rule 6 to be sent to every local authority within whose limits any land touched by the plan in situate, and such local authority may, within a period of 90 days from the date of the notice make any representation with respect to the plan to the authority. Appointment of board for enquiry and hearing - the authority shall, for hearing and considering any representation, objection and suggestion to the draft master plan, appoint a board consisting of not less than 3 and not more than 5 members of the authority. Enquiry and hearing- the secretary shall, after the expiry of the period allowed under these rules for making objections, representations and suggestions fix a date or dates for hearing by the board of any person, or local authority in respect of the Draft Master Plan and shall serve on the local authority or any person who may be allowed a personal hearing in connection with such representation, objection or suggestion to the draft master plan, a notice intimating the time, date and place of the hearing. Report of enquiry- the board shall after the conclusion of its enquiry, submit to the Authority a report of its recommendations. Preparation of final draft master plan and submission to central government- the authority shall, after considering the report of the board and any other matter it thinks fit, finally prepare the master plan and submit it to the central government for its approval. Approval of central government to amendment of master plan- immediately after a plan has been approved by the central government, the authority shall publish in such manner as may be prescribed by regulation a notice stating that a plan has been approved and naming a place where a copy of the plan may be inspected at all reasonable hours and upon the date of the first publication of the aforesaid notice the plan shall come into operation. Figure 4.3. Delhi master plan preparation process

The content of the master plan According to the Delhi development (master plan and Zonal Development Plan) rules, 1959 the Content of the draft master plan may include all or any of the following:

Approval

Final Master Plan

Responses considered by an Authority – Appointed Board

Delhi Development Authority

Draft master plan

Within 90 Days

Public notice, notice to and representation from local

authorities

Inspection by the public- inviting suggestion or

objections

Enquiry and hearing

Report of enquiry

Final Draft Master Plan

Submission to Central Government



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a) reports of the survey and analysis of socio-economic features of Delhi with special reference to the trends of growth of population, industries, business, commerce and such other matters as may relate to planned development;

b) “a Land use plan” based upon such survey of the present use of land as may be necessary as well as analysis of estimated future needs and consisting of comprehensive proposals for most desirable utilization of land such as land for agriculture, government, commercial, industries, residential, cultural, educational, recreational, transportation and other activities:

c) “a transit and transportation plan” based upon reports of survey and inventory of volume of traffic and capacity of existing roads, highways and consisting of proposals for a system of street roads, highways and parking, loading, unloading and terminal facilities:

d) “a public utilities plan” consisting of proposals for provision of water, electricity, drainage and disposal of sewage and refuse;

e) “a housing plan” consisting of estimates of housing requirements and proposals for parks, open spaces, recreational, educational and cultural centres;

f) reports of survey and proposals for elimination of slums and blighted area; g) “education, recreational and community facilities plan” indicating proposals for parks, open

spaces, recreational, educational and cultural centres; h) “a financial plan” containing capital improvement programme, estimate of revenue and

resources, estimates and objective of public services any such other fiscal matters and proposals for the implementation in stages of the master plan;

i) “an administrative plan” consisting of proposals and recommendations for the administrative structure and procedure and processes such as zoning, sub-division and proposals for the implementation in stages of the master plan:

j) Such other reports on scientific Development Plans, satellite township schemes, industrial estate schemes, relocation of rehousing schemes, or improvement programmes or any specified purpose as in the opinion of the authority are necessary or desirable for the planned development of Delhi.

From the list of items mentioned above to be considered in the Master Plan, there is no a special mention or concerns for environment. The Delhi development (Master Plan and Zonal Development Plan) rules, 1959 also mentions that, the Master Plan may include all or any of the above items, the inclusion of the above list of items in the Master Plan, hence the content decision is left totally at the discretion of the Development Authority.

4.3.2. The Vision The vision according to Master Plan 2021 is to make Delhi a global metropolis and a world-class city, where all the people are engaged in productive work with a decent standard of living and quality of life in a sustainable environment. For achieving this vision, the Delhi Master Plan plans to necessitate planning and action to meet the challenge of population growth and migration into Delhi and even measures to restrict it to the extent possible, provision of adequate housing, particularly for the weaker section of the society, addressing problems of small enterprises, particularly in the unorganized informal sector dealing with the issues of slums, both as an issue pertaining to the city scape and a shelter: up-gradation of old and dilapidated areas of the city, provision of adequate infrastructure services, conservation of environment, preservation of Delhi’s heritage and blending it with the new and complex modern patterns of development and they plan to do all these a framework of sustainable development.

4.3.3. Validity of Population Projections In the NCT of Delhi under the National Capital Region Planning Board Act, 1985, the basic policy is to achieve environmentally sustainable development / re-development considering the limitations of



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developable land and water. Land and water are scare natural resource, which also acts as major limiting factor for any city development. Land and water will help to derive the basic carrying capacity of an area; based on it a desirable population can be derived which the city can sustain without, environmental degradation both physical and natural. But the normal practice which is generally followed, is carrying out population projection for predicting the future population, same is the case with Delhi master plan 2021 (MPD-2021). The master plan itself mention that it may not be possible to make an accurate forecast, so it provides a population range and for the purpose of accounting the requirement of land, provision of infrastructure and transportation the higher range is taken into consideration. The MPD-2021 does not take the basic policy Of NCT into consideration. In an ideal case one needs to calculate what a city can offer to the citizens mainly the natural resource like land and water and arrive at the carrying capacity of the city, rather than projecting some numbers which can’t be achieved and hence leads to questioning the validity of the Master Plan.

4.3.4. Accommodating Population for 2021 At present, about 702 sq.km is estimated to have been developed as built up areas accommodating about 138 lakh populations of National Capital Territory of Delhi. In order accommodate the projected population of 230 lakh by the year 2021, it recommends three-pronged strategy like Checking the population growth in Delhi, Increasing the population holding capacity of the area within existing urban limits, and also deflect part of the population in the NCR outside Delhi; and extending the present urban limits to the extent necessary. The MPD-21 does not give any details, about the way the population growth will be checked and regarding increasing the population holding capacity there is no mention about the method on which the holding capacity is based. The strategy to extend the urban limit will engulf a lot of rural/agricultural land in Delhi and would lead to loss of the original character of these settlements.

4.3.5. Hierarchy of Urban Development According to the Delhi Master Plan, a planned city for an environment of convenience should have a hierarchical cellular structure; with nuclei to contain essential facilities and services at different levels. The pattern of a community module is conceived as residential area containing a ‘neighborhood’ with senior school and shopping facilities for day-to-day needs as focal points. The higher level of additional facilities is to be provided at Community, District and Zonal/sub-city levels. It gives a detail list of facilities to be provided at each level, in the hierarchy Solid waste management facility is mentioned only at neighborhood level (Dhalao including segregation). There is no mention of solid waste storage and disposal site/facility at any higher level, while Sewerage and water supply has been given a good though-out the hierarchy of urban development.

4.3.6. Redevelopment of Existing Urban Area Redevelopment exercise for the walled city, the MPD-2021 has specified minimum road width and prioritized of road widening dictated by fire and other disaster management criteria. For efficient and optimum utilization of the existing urban land, both in planned and unplanned areas, a redevelopment strategy for accommodating more population in a planned manner is to be taken up on priority in all use zones according to MPD-2021, and this is to be based on provision of infrastructure viz. water supply, sewerage, road network, open spaces and the essential social infrastructure, which is a relevant for any redevelopment strategy.



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4.3.7. Shelter The Plan policy regarding “Shelter” is based on The National Housing and Habitat Policy, which has the ultimate goal to ensure ‘Shelter for All’ by harnessing the potential of the public, private/ corporate and household sectors. It aims to ensure effective housing and shelter options for all citizens, especially for the vulnerable groups and the poor, by creation of adequate housing stock on either rental or ownership basis. The Delhi Master Plan gives a proper Indicative Distribution in Housing Types, identifies strategies and provides guidelines. It also recommended that every housing scheme taken up by any agency at least 10 percent of the saleable net residential land should be reserved for EWS housing. The Housing strategy of MPD-21 incorporates specific approaches for development of new housing areas, up gradation and intensification through redevelopment of existing housing areas including unauthorized colonies, housing in villages and Special Area with consideration of fire safety and disaster management facilities. It proposes to develop market with close proximity to the residential area to overcome the environmental and traffic problems. MPD-21 also tried to address some environmental issues through norms for physical infrastructure planning in housing, like rainwater harvesting should be integrated, natural drainage should not be disturbed, dual pipe system of recycled water recommended, use of non-conventional sources of energy for public areas and provision of decentralized sewerage treatment plant.

4.3.8. Trade and Commerce Shopping and commercial areas reflect the economy and the image of the city. MPD-21 has attempted to introduce environmental issues into the image of the city through proposal like incorporation of roof top harvesting system, separate dry and wet dustbins, arrangements for solid waste disposal, preliminary effluent treatment and introduction of energy audits for the commercial establishment in the city.

4.3.9. Disaster and Hazards Disaster management is considered as an important component of the Delhi Master Plan 2021, the location and Storage of oil and LPG gas is considered based disaster management. It has well planned fire regulation and bye laws to safeguard against disasters and ensure effective and impartial enforcement. But lately issues of the new treats emerging like induced hazards like riots, terrorism (Bomb blast), etc. this are new issues that need to be looked into. There is a need for identification of the riots vulnerable area and include it in the Disaster Management Plan for the city, to avoid damage both to social and physical environment.

4.3.10. Industry The issue of industries in Delhi has been a subject of extensive debate, controversy and concern over the past decade. This has centered mainly on the aspects of pollution and negative environmental impact of industries, the existence and continued growth of industries in non conforming areas and the issue of classification and permissibility with reference to household industries. Serious concern has been expressed regarding the continued existence and further proliferation of industries in contravention of the provisions made in MPD – 2001. The strategies proposed for non-conforming industries are, taking corrective measures with regard to industries in non-conforming industrial areas in terms of environmental and other norms as may be prescribed. To provide suitable incentives and disincentives, and other measures, for shifting and relocation of industrial units not conforming to the land use norms. The MPD-2021 also spells out norms based on environmental consideration for redevelopment of cluster of industrial concentration in non-conforming and the industry use zone guidelines/ development controls. The



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guidelines includes environmental issues like preservation of water bodies, provision of green buffer for roads, rainwater harvesting integrated in landscape and storm water drains, provision of CETP’s, solid waste treatment plant and disaster planning for emergency situations.

4.3.11. Environment Creation of a sustainable physical and social environment for improving quality of life is one of the major objectives of the Delhi Master Plan 2021. The master plan of Delhi, environment can essentially be seen in terms of two components of urban management- the environment per se, or the habitat, and services management. The former pertains to the natural features and resources including: the elements of air and noise, water (water bodies-river, lakes, drains and ponds- and ground water) and land with reference to open spaces, green areas and other surface and sub-surface conditions. The latter is related to the built environment and includes the environmental infrastructure - water supply, sewerage, solid waste disposal, and the transportation network. The following three fold approach and strategy are adopted in the master plan i) Management of Natural Resources and the related environment infrastructure and services in a manner that would lead to optimization of use of natural resources, and reduction/abatement of pollution; ii) Conservation and Development of the Natural features with a view to enhancing their environmental value; and iii) Development and preservation of open spaces, greens and landscape/ recreational areas.

4.3.12. Natural Resource Water (surface and ground) Rapid urbanization leading to reduction in recharge of aquifer, increasing demand in the agriculture, industrial and domestic sectors, stress put on groundwater resources in periods of drought/deficient rainfall, and unplanned withdrawal from the sub soil aquifers, have been mainly responsible for decline in groundwater levels in Delhi. The ground water board has also assessed the present ground water potential for Delhi. The average annual rainfall in Delhi is 611 mm. However, recharge of ground water gets limited due to decreased availability of permeable surfaces owing to urbanization, and the runoff getting diverted into the sewers or storm water drains that convey the water into the river Yamuna. The annual rainwater harvesting potential has been assessed along with potential for roof water harvesting for the city of Delhi. The master plan also identifies measure for rejuvenation of river Yamuna. Air Pollution Despite various initiatives and measures taken over the past few years, like introduction of CNG and EURO II norms etc., the air quality in the city, in terms of pollution levels, has continued to be a matter of concern, and has been responsible for a number of respiratory diseases, heart ailments, eye irritation, asthma etc in Delhi. Since vehicles contribution to the pollution is about 70%. Therefore the Master Plan mentions public transportation planning must, therefore, drive the future policy. Noise Pollution Noise is emerging as a major pollutant and irritant as well as a constant source of disturbance and health hazards. Against a permissible level of 50-60 dB (A), the sound level in Indian cities often exceeds 80 dB (A). Faulty and leaking silencers, over-use of horns and vehicles plying on roads accentuate noise level, besides the noise from commercial and industrial activities, unabated use of sound amplifiers, generator sets and fire- crackers etc. The Master Plan proposes Green buffer through thin leaved trees, land formations, mounds, embankments, etc. along major roads could also provide effective barriers to transmission of noise.



52

By proper land use planning, such as location of public, semi-public and commercial activities along major transport arteries, a buffer can be created for residential zones. It is also necessary to improve monitoring and effective implementation of the Noise and to notify certain areas as ‘No Horn Zones’ Pollution (Level) Rules 2000. According to the Master Plan, environmentally stressed zones in Delhi should be identified and local area environment management plans should be prepared for such areas, together with regular monitoring.

4.3.13. Physical Infrastructure The Master Plan mentions infrastructure as a key issue related to the sustainable development of Delhi, and a minimum quality and standard of living pertains to the availability and accessibility to basic infrastructure facilities viz. water, power, sewerage, drainage and solid waste management. The rapid and almost uncontrolled growth of population has put these facilities under severe pressure, and there are significant deficiencies. Even a cursory analysis of the present state of affairs, infrastructure problems could become a cause of crisis. Sewerage and solid waste management are State affairs but water supply, power and drainage are Inter-State issues. Water The Master Plan proposes that the planning should dovetail watershed management, and arrest the run-off. It should ensure the conservation of natural valleys, water bodies and aquifers. The concepts of ‘zero run-off drainage’, with retention ponds, sediments traps and balancing lakes should be adopted, with a segregated wastewater disposal system. A green network overlapping the blue network would protect the ecology of aquifers, and also provide a pleasant environment. Simple methods of site planning, which incorporate porous/semi permeable paving, drop inlet/down pipe, sediment trap, retention ponds, etc. will contribute in maintaining ground water table. There are also innovative proposals like- Water supply in new areas should incorporate separate lines – one for washing, water coolers and garden taps, the second for supplying potable water. All non-residential buildings having a discharge of over 10,000 liters a day should incorporate a wastewater recycling. Sewage The existing capacity of sewerage system is grossly inadequate, thus leading to increasing pollution in the river Yamuna. The master plan proposes short range provision of low cost sanitation system by individual families, where immediate regular system is not available. To reduce the sewerage load and increase environmental benefits, the Master Plan proposes decentralized STP’s with smaller capacities are to be provided at the sub city level (10 lakh population). The Master Plan also mentions Possibilities of recovering energy/ gas as fuel from sewerage. Drainage Drainage has two aspects: flood protection and storm water discharge, which are interrelated. The storm water and flood protection in Delhi has a regional bearing including areas of Haryana and Rajasthan. Since Delhi also has water crises, the MPD-21 gives proposal for check dams and depression/ lakes for increasing recharge of groundwater table. The Master Plan proposes the following essential measures for proper drainage, Drainage to be integral part of Road Development Plans/ flyover/ Grade Separators and GIS based drainage mapping and planning. During this planning and design of drainage it proposes that the natural drainage pattern should be preserved. Power The MPD-21 proposes that, the concept of energy efficiency for Delhi should begin with idea of Zero-fossil Energy Development which envisages an urban form and design of passive buildings envelope that reduce the demand for power to the point where it becomes economically viable to



53

use energy from renewable resources. This would involve a holistic approach combining the issues and actions at various levels of planning, design, construction and maintenance leading to a sustainable and energy efficient regime. The MPD-21 introduces energy audit and design of energy efficient buildings; it also proposes stipulation for all establishments with floor area of more than 300 Sqm, solar energy should be mandatory. Compulsory solar panels for public advertising, lighting in open areas, public utilities, streets, etc. Solid Waste The problem of solid waste management in Delhi is assuming serious proportions due to increasing population, urbanization, changing lifestyles and consumption patterns. The garbage from unauthorized developments, slums, JJ settlements, etc is not collected which further adds to the environmental degradation. Considering the nature of solid waste and the economic aspects of its disposal, major part of solid waste especially silt has to be disposed off in sanitary landfills. The Master Plan proposes- wherever recycling is possible, it should be preferred than disposing off the waste in sanitary landfill sites. More viable alternatives to landfills are vermiculture, fossilisation, composting etc. Waste Minimization Circles (WMCs) should be constituted and made effective. Implementation and monitoring of Bio-Medical Wastes (Handling & Management) Rules, 1998, for hospitals, nursing homes, and clinics should be taken up.

4.3.14. Monitoring Framework for Development Plan monitoring is essential to evaluate the changes required to improve the quality of life in the city. The MPD-21 feels the need of a scientific monitoring framework for: 1) Effective implementation of plan within the plan period, thereby achieving the intended targets. 2) Respond to the changing socioeconomic needs of the people of the city. 3) To check unintended growth within the city. 4) Time lags between various implementation schemes and emerging needs of the people. 5) Review the appropriateness of the plan policies. The monitoring framework for development is proposed in MPD-21 along with targets which need to be achieved in a particular time-frame and hence help in judging the performance of various sectors, whichever need priority. It also fells a need of a dedicated monitoring unit with modern data processing facilities, which would be responsible for collection and analysis of primary and secondary data, and bringing the important changes to the notice of the authority.

4.3.15. Review of the Previous Plan Some of the broad parameters in the light of which a review could be usefully done would relate to the extend and validity of population projections, quantum of land needed for development as per the plans and the extent to which this actually become available, qualitative and quantitative targets for the development of shelters and the required infrastructure services and the actual achievements in this regards and other important developments which were not anticipated, but impinge heavily on the entire process of the planned development of Delhi. As regards to the actual acquisition and development of land, studies made for the preparation of MPD-2021 show that there have been gaps between the area targeted for, and for actually acquired, as also between the area acquired and that, which could be developed. Another important observation during the period of the last Master Plan is the unanticipated phenomenal growth of automobile in Delhi. The experience of past two Master Plans also shows that while projections regarding. Various basic infrastructure services have been made with reference to the population growth projections and the related increased urbanization requirements; there has been very little practical convergence between the Master Plan and the actual development of infrastructure services.



54

Actual implementation of the master plan- the practicality and current relevance of some of the provisions of the master plan do not themselves become a stumbling block or otherwise leave scope for this violation. Lessons learnt by the past Master Plan are that, master plan can be seen as a elaborate set of do’s and don’t and its success depends on conversion of the policies and strategies outlined in it into time bound development and action plans, periodic revenues and close monitoring and on the people’s will and willingness to adhere to discipline in the use of land, roads public space and infrastructure.

4.3.16. Other Issues Relating to Delhi Master Plan • The Planning process needs reforms and innovations as follow up of the Master Plan had

always been a slow starter and could not meet projected targets adequately such as preparation of Sub-Regional Plan, Zonal Plans etc.

• Others aspects like Environmental concerns, Integrated public transport, Infrastructure services, enforcement and monitoring up to date maps and basic information have been other problems.

• Local level participation in the planning process its transparency and coordination, building approvals, slum rehabilitation, social housing and legal reforms also requires attention for implementation of provisions addressed in the Master Plans.

• The apparent and frequent violation of planning and development control norms. There is a growing variation between the Plan for Delhi and the city on the ground. Hence Plan Monitoring & Review of Master Plan is essential.

• Flexible land use or mixed land use- A major issue that has been debated is that of segregated land use versus flexible land use, while adhering to the requisites of environment the current thinking is in favor of flexible land use, which reaps the synergies between workplace, residence and transportation as also between complementary vocations. This issue is still debatable, since the extent of flexibility can still be questioned and hence the relevance of the master plans.

4.3.17. Environmental Consideration in Delhi Master Plan 2021 The Delhi Development (Master Plan and Zonal Development Plan) Rules, 1959 the content of the Draft Master Plan describes the items that need to be incorporated in the Plan, but it also mentions that, the Master Plan may include all or any of the items listed. That means that the inclusion of the list of items in the Master Plan is left totally at the discretion of the development authority. The content of Delhi Master Plan from the list of items mentioned, to be considered in the Master Plan, there is no a special mention or concerns for environment. But even after lack of environmental concern in the regulations, the attempt to incorporate environment in Delhi master plan 2021 is commendable. The environmental consideration in the Plan are given below- The Vision The vision according to Master Plan 2021 is to make Delhi a global metropolis and a world-class city, where all the people are engaged in productive work with a decent standard of living and quality of life in a sustainable environment. The Delhi Master Plan 2021

• Environmental objective of the plan- Creation of a sustainable physical and social environment for improving quality of life.

• the Delhi Master Plan gives a detail list of facilities to be provided at each level in the urban hierarchy, in which Solid waste management facility is mentioned only at neighborhood level (Dhalao including segregation). There is no mention of solid waste storage and



55

disposal site/facility at any higher level, while sewerage and water supply has been given a good though-out the hierarchy of urban development.

• Redevelopment exercise for the walled city, the MPD-2021 has specified minimum road width and prioritized of road widening dictated by fire and other disaster management criteria.

• The Housing strategy of MPD-21 incorporates specific approaches for development of new housing areas, up gradation and intensification through redevelopment of existing housing areas including unauthorized colonies, housing in villages and Special Area with consideration of fire safety and disaster management facilities.

• MPD-21 also tries to address some environmental issues through norms for physical infrastructure planning in housing, like rainwater harvesting should be integrated, natural drainage should not be disturbed, dual pipe system of recycled water recommended, use of non-conventional sources of energy for public areas and provision of decentralized sewerage treatment plant.

• MPD-21 has attempted to introduce environmental issues into shopping and commercial areas through proposal like incorporation of roof top harvesting system, separate dry and wet dustbins, arrangements for solid waste disposal, preliminary effluent treatment and introduction of energy audits for the commercial establishment.

• The MPD-2021 also spells out norms based on environmental consideration for redevelopment of cluster of industrial concentration in non-conforming and the industry use zone guidelines/ development controls.

• Further to reinforce the natural environment, MPD-2021 proposes the following three fold approach and strategy- i) Management of Natural Resources and the related environment infrastructure and services in a manner that would lead to optimization of use of natural resources, and reduction/abatement of pollution; ii) Conservation and Development of the Natural features with a view to enhancing their environmental value; and iii) Development and preservation of open spaces, greens and landscape/ recreational areas.

Note- for a comprehensive list of the content of the Delhi Master Plan 2021 refer Appendix - D

4.4. Conclusion Each city is unique in its character and each cities have their own issues and problem. If we compare the plan preparation process of the two cities London and Delhi. The London plan preparation process is more sensitive towards environment and is more participatory than the Delhi master Plan. That is because in case of London Plan, the vision of plan is derived from a public consultation process and the statutory requirement of the sustainable appraisal ensure environmental incorporation (for comparative analysis refer table 4.1), otherwise the preparation process of both the cities are quite similar. In case of environmental consideration in the plan, both the cities have tried to address their environmental issues to the best of their ability, the list of the component considered are given below in the table 4.2. In case of implementation and monitoring mechanism, the London plan is more detailed and comprehensive than the Delhi Master Plan. To guide the implementation process the London plan gives detail phasing of the projects proposed and for monitoring the London plan, it gives a list of objective-wise performance monitoring indicator and as a statutory requirement the mayor have to publish an annual monitoring report, while Delhi Master Plan only gives the development code and monitoring framework for the plan (refer table 4.3.).



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Table 4.1. Plan Preparation London Plan 2004 Delhi Master Plan 2021

Mayor + Greater London Authority Delhi Development Authority

The Greater London Authority Act 1999 The Delhi Development Act 1957

Mayor's Vision + Consultation of the citizens DDA's Vision

Yes No

15-20 years 20 years

3- months 3-months

Yes Yes

Responsible Authority

Act under which the Plan is conceived

Public consultation period

Vision

Sustainable Appraisal

Time span of the Plan

Exclusive panel Public hearing

Plan

Pre

para

tion

Table 4.2. Environmental Component in the Plan

London Plan 2004 Delhi Master Plan 2021

To accommodate London’s growth within itsboundaries without encroaching on openspaces and to make London a moreattractive, well-designed and green city

Creation of a sustainable physical and socialenvironment for improving quality of life

Support the establishment of green Industriesand green practices

Spell out norms for industries based onenvironmental consideration

Reduction of waste, Municipal solid wastemanagement strategy for the area, spatialpolicies, criteria for selection of sites for waste management and disposal, waste producedand disposal method.

Recycling of solid waste, alternative to landfillslike- vermiculture, fossilization and composting,constitution of Waste Minimization Circles andimplementation and monitoring of Bio-MedicalWastes( Handling & Management) Rules 1998

Better use of aggregates, re-use ofconstruction and demolition waste

No policy for Minerals

Strategies for -integration of land use andtransport policy, promoting sustainable designand construction, air quality assessments atplanning stage, promoting cleaner transportfuels, modeling of scenarios, monitoring plan

Source of pollution, Stress on publictransportation policy, control of designatedindustries.

Promoting Energy efficiency and renewableenergy, zero carbon development, technologyand design. Energy assessment of proposedmajor developments

Concept of energy efficiency in buildings, Zero-fossil Development and Energy Audit. Promotinguse of renewable energy as an mandatoryrequirement in buildings like use of Solar energy

Demand for Water supplies, Water qualityand strategies, maximizing rainwaterharvesting opportunities, using grey waterrecycling systems, repair or replacement ofwater supply infrastructure

Demand for water supplies, promoting rainwaterharvesting at building level and site level, conceptof "Zero run-off drainage" protecting the ecology ofaquifers, guidelines for site planning to promoteground water recharge, waste water recycling.

Env

ironm

enta

l Com

pone

nt C

onsi

dere

d

Energy

Water

Planning for Minerals

Air

Objective considering Environment

Industries

Planning for Waste



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Table 4.2. Environmental Component in the Plan (Continued) London Plan 2004 Delhi Master Plan 2021

Improving the present infrastructure in order tohave safe, reliable system and minimizesenvironmental damage

Provision of low cost sanitation system whereregular system is not available, Decentralization ofSTP's at sub city level and mentions possibility ofrecovering energy/ gas as fuel from sewerage

Sustainable Drainage, Promoting Biodiversity,flood plain and flood defense, Designguidelines

Source of pollution, indication of measures forrejuvenation of the river.

spatial Strategies, transportation strategies Permissible limits, implementation of Noisepollution (level) rules 2000, measures to preventnoise pollution

Impacts of climate change and strategies issue not considered

Strategies dealing with Hazardous substances Location and storage based on the disastermanagement plan.

Affordable housing, Improving conditions forwalking and cycling, design consideration fordisabled, children and old people, developingthe open spaces and recreational area,biodiversity and nature conservationconserving the built heritage/ historicenvironment and protecting the view.

Housing for poor, planning norms for recreationaland green areas, delineation of heritage zones,conservation of built heritage, social infrastructureprovision standards(health, education, sport,security and education)

Climate change

Sewerage systemEn

viro

nmen

tal C

ompo

nent

Con

side

red

Hazardous substance

Noise

Living Environment

River

Table 4.3. Implantation and Monitoring

London Plan 2004 Delhi Master Plan 2021

Indicative average annual phasing of growth injobs and homes, Phasing of public transportcapacity increases and main stakeholders andtheir contribution

Development code

objective-wise London Plan performancemeasuring indicators, publish annualmonitoring report- state of strategic planning inLondon and set priorities for the coming year

Monitoring framework for development, monitoringunit

Implementation

Monitoring



58

CChhaapptteerr 55.. DDeevveellooppmmeenntt PPllaann aanndd EEnnvviirroonnmmeenntt –– CCaassee ooff AAhhmmeeddaabbaadd

5.1. Background Ahmedabad is the largest city of Gujarat and the sixth largest of India. Gujarat became a state in 1960 and Ahmedabad was the capital of the state. In 1970 the capital was shifted to Gandhinagar, but Ahmedabad is still considered the trade capital of Gujarat. The rapid urbanization growth of urban sprawl of Ahmedabad and increasing population pressure is resulting in deterioration of infrastructure facilities, loss of productive agricultural lands, green open spaces, loss of surface water bodies, depletion of ground water aquifers zones, air pollution, water contamination, health hazards and many micro-climate changes. So in order to guide the growth of the city, a Development Plan mechanism was needed and was provided by the Gujarat Town Planning and Urban Development Act, 1976.

5.2. Gujarat Town Planning and Urban Development Act, 1976 In the state of Gujarat, the Gujarat Town Planning and Urban Development Act, 1976 consolidate and amend the law relating to the making and execution of Development Plans in the state of Gujarat. In this Act, the Development Plan is defined as a Plan for the development or re-development or improvement of a development area. For the first time provision for a Development Plan was made in the Bombay Town Planning Act, 1954, enabling the local authority to prepare the Development Plan for the whole of its area. The first Development Plan was prepared by Ahmedabad Municipal Corporation (AMC) under the Bombay Town Planning Act, 1954 and was sanctioned by state government in 1965. The Bombay Town Planning Act, 1954, provided for preparation of Development Plan for the area of local municipal authority only. With the increase in trend of urbanization, the development progressed along the periphery and outside the limits of local authority and there was no control of such development. Therefore, the Gujarat Town Planning and Urban development Act, 1976, was enacted which came into force on 01/02/1978. The Act interalia provides that, where the state government is of the opinion that the object of proper development of any urban area will be best served by entrusting the work to special authority, it may declare such area as urban development area, and constitute an urban development Authority for such area16.

5.2.1. Delineation of Development area Under Gujarat Town Planning and Urban development Act, 1976, under section 3 -The state government may for the purpose of securing planned development of areas within the state, declare, by notification, and in such other manner as may be prescribed, any area in the state to be a development area. But there is no basis or criteria for delineation of the development area in the Act; it is totally left at the discretion of the Government of Gujarat to declare an area as a development area. Delineation of development area is a political decision, hence one cannot justify the present form of development area, and the best example is odd shape of the Ahmedabad development area (refer map 5.1.). In Case of Ahmedabad Development Area, According to the Draft Development Plan 2011 the basis for delineating the development area is not known till date.

16 AUDA. (1997), Revised draft development plan of AUDA -2011 AD Part ii policies, proposals and programmes, AUDA, Ahmedabad



59

Map 5.1. AUDA Proposed Landuse 2011 Plan

5.2.2. Ahmedabad Urban Development Authority The Gujarat Town Planning and Urban Development Act, 1976 came into force on the 1st February, 1978. The Act, interalia, provides that where the state government is of opinion that the object of proper development of any urban area will be best served by entrusting the work to a special authority, it may declare such an area to be an urban development area and constitute an authority for such area. Accordingly, the government of Gujarat has declared the areas covering Ahmedabad Municipal Corporation and areas of surrounding other 164 towns and villages to be an urban development area. Government has also constituted the authority for the said urban development area to be called the Ahmedabad Urban Development Authority(AUDA) under section 22 of the Act. Function of AUDA According to section 23 (1) of Gujarat Town & Urban Development Act 1976, the function and powers are grouped, according to the nature of activities. (a) Planning Function

• To undertake the preparation of Development Plan under the provisions of the act, for the urban development area.

• To undertake the preparation of Town Planning Scheme under the provisions of the act, if so directed by the state government

• To carry out the surveys in the urban development area for the preparation of Development Plans or town planning schemes.

(b) Implementation Function • To execute works in connection with water supply, disposal of sewerage and provision of

other services and amenities.

Source- AUDA, 1997



60

• To carry any development works in the urban development area as may be assigned to it by the state government from time to time.

(c) Coordination function • To guide assist and direct the local authority or bodies and other authorities functioning in

the urban development areas in the matter pertaining to the planning, development and regulation of urban area.

(d) Enforcement Function • To control the development activities in accordance with the Development Plan in the

urban development area. (e) Powers

• To acquire, hold, manage and dispose of property, movable or immovable as it deems if necessary.

• To enter into contracts, agreements or with a local authority person or organization as the urban development may consider necessary for performing functions.

• To exercise such other powers and perform such other functions as are supplemental, incidental or consequential to any of the fore going powers and functions or as may directed by the state government.

• The urban development authority may with the approval of state government delegate any of its function to the local authority or authorities functioning in the urban development area.

5.2.3. Content of a Draft Development Plan under Section 12 of the Act. A draft Development Plan shall generally indicate the manner in which the use of land in the area covered by it shall be regulated and also indicate the manner in which the development there in shall be carried out. In particular, it shall provide, so far as be necessary, for all or any of the following matters, namely:-

a. proposals for designating the use of the land for residential, industrial, commercial, agricultural and recreational purposes;

b. proposals for the reservation of land for public purposes, such as schools, colleges and other educational institutions, medical and public health institutions, markets, social welfare and cultural institutions, theatres and places for public entertainment, public assembly, museums, art galleries, religious buildings, playground, stadiums, open spaces, diaries and for such other purposes as may, from time to time, be specified by the state government:

c. proposals for designation of areas for zoological gardens, green belts, natural reserves and sanctuaries;

d. transport and communications, such as roads, highways, parkways, railways waterways, canals and airport, including their extension and development:

e. proposals for water supply, drainage, sewage disposal, other public utility amenities and services including supply of electricity and gas;

f. reservation of land for community facilities and services; g. proposals for designation of sites for services industries, industrial estates and any other

industrial development on an extensive scale; h. preservation, conservation and development of areas of natural scenery and

landscape; i. preservation of features, structures or places of historical, natural, architectural or scientific

interest and of educational value; j. proposals for flood control and prevention of river pollution; k. proposals for reservation of land for propose of union, any state, local authority or any

other authority or body established by or under any law for the time being in force;



61

l. the filling up or reclamation of low lying, swampy or unhealthy areas or leveling up of land; m. provision for controlling and regulating the use and development of land within the

development area, including imposition of conditions and restriction in regard to open space to be maintained for buildings the percentage of building area for a plot, the location, number, size, height, number of stories and character of buildings and density of built up area allowed in specified area, the use and purposes to which a building or specified areas of land may or may not be appropriated, the sub-divisions of plots, the discontinuance of objectionable uses of land may or may not be appropriated, the sub-divisions of plots, the discontinuance of objectionable uses of land in any area in any specified periods, parking spaces, loading and unloading space for any building and the sizes of projections and advertisement signs and hoardings and other matters as may be considered necessary for carrying out the objects of this Act;

n. provision for prevention or removing pollution of water or air caused by the discharge of waste or other means as a result of the use of land;

o. Such other proposals for public or other purposes as may from time to time be approved by the area development authority or as may be directed by the state Government in this behalf.

Shortfall in the Content of a Draft Development Plan under Section 12 of the Act • The content of the Development Plan specifies the use of land in the area, but there is no

mention about the use of water bodies and the river or rivulets. And apart from preventing water pollution there is no mention of preservation of such water bodies from encroachment.

• There is no proposal for reservation of land in the Development Plan for economically backward class of people or the urban poor who dwell in the slums. There is only provision of land for economically backward class in the Town planning scheme (extent of 10% reservation).

• The Development Plan provides for supply of water, there is no provision to control the ground water extraction which is a major concern in Gujarat.

• There is no provision of preservation of areas of social, religious or sentimental value. • The Development Plan does not have provision to identify the riot prone or vulnerable

places which caused major loss in term of life and property to the cities like the riots of 2002.

5.2.4. The Development Plan Making Mechanism Preparation of the Draft Development Plan After declaration of an area by the government as a development area, and after constituting an authority for such area, under section 9.(1) of the act no later than three years after the declaration of such area as a development area or within such time as the state government may, from time to time, extend, the development authority has to prepare and submit to the state government a Draft Development Plan for the whole or any part of the development area in accordance with the provisions of the Act. Inspection by the public After preparation of the Draft Development Plan, and submitted to the state government under section 9, published it in the official gazette and in such other manner, a copy of the Plan as prepared under section 9 in respect of any area shall be kept open for inspection by the public under section 10, during office hours at the head office of the area development authority, or as the case may be, at the office of the authorized officer, inviting suggestion or objections from any



62

person with respect to the Development Plan within a period of two months from the date of its publication. Suggestions or Objections and Modification if required Within two months of publication of Draft Development Plan, any person communicated in writing to the area development authority, or, as the case may be, to the authorized officer any suggestion or objections relating to the Draft Development Plan, the said authority or officer shall consider such suggestions or objections and may modify such Plan as it or he thinks fit. The Modification made after publication of Draft Development Plan, is kept inspection by the public for inviting suggestion and objections from any person with respect to the proposed modifications within a period of two months from the date of publication of such notice. Submission of the Draft Development Plan The Submission of Draft Development Plan to the state government for sanction under section 16. (1) Of the Act should be within a period of six months from the date of publication of the Draft Development Plan under section 13. The said period or periods shall be extended but shall not, in any case, exceed twelve months in the aggregate. Upon receipt of the Draft Development Plan under section 16, the state government may, by notification-

1. Sanction the Draft Development Plan and the regulation so received , within the prescribed period, within the prescribed period, for the whole of the area covered by the Plan or separately by any apart thereof, either without modification, or subject to such modification, as it may consider proper;

2. Return the Draft Development Plan and the regulation to the area development authority or, as the case may be, to the authorized officer, for modifying the Plan and the regulations in such manner as it may direct:

3. Refuse to accord sanction to the Draft Development Plan and the regulations and direct the area development authority or the authorized officer to prepare a fresh Development Plan under the provision of the Act.

Extension or reduction of Development Plan If at any time after a Development Plan prepared for any area has been sanction, the state government is of opinion that it is necessary to extend or reduce the limits of such area, it may, by notification, extended or reduce the limits of such area under section 18. (1). May direct the area development authority to prepare, publish and submit to the state government for sanction within the period specified by the state government in this behalf, a Draft Development Plan for the extended area or, as the case may be, the proposals for the withdrawal of the Plan from the reduced area after following the procedure prescribed under this Act for the preparation, publication, and sanction of a Development Plan. Revision of Development Plan Under section 21of the Act. at least once in ten years from the date on which a final development plan comes into force, the area development authority shall revise the Development Plan after carrying out, if necessary a fresh survey shall be conducted. Restriction on development after publication of Draft Development Plan On or after the date on which a draft Development Plan is published in the official gazette under section 13 in respect of any development area, no person shall carry on any development in any building or in or over any land, within the limits of the said area without the permission in writing of the appropriate authority and without obtaining certificate from the appropriate.



63

Figure 5.1. The Development Plan Making Mechanism

5.3. Environment and Development Plan Ahmedabad As the chief metropolitan of the state, urban planning and development was going on in isolated manner, confined mainly to the areas of the local authorities of cities and towns. For the first time, ideas of integrated and area approach to the problems of urban planning and development programme was introduced through the Gujarat Town Planning and Urban Development Act 1976 and the first Development Plan was prepared by Ahmedabad Urban Development Authority (AUDA) in 1981. Before one starts to prepare a Development Plan, one has to have a demarcated development area. But in case of Ahmedabad the very basis on which the Ahmedabad urban development area was delineated, is not available.17 There is no reasoning or justification for including or exclusion of certain area in Ahmedabad urban development area.

17 AUDA. (1997), Revised draft development plan of AUDA -2011 AD Part ii policies, proposals and programmes, AUDA, Ahmedabad.

Six months + Extension = 12 months

Publish Draft Development Plan

Inspection by the public- inviting suggestion or objections Time Span - two months

Modification of the Draft Development Plan


Draft Development Plan Modification of the Draft

Development Plan if required

Once in ten years

Within three years

Constitution of Ahmedabad Urban Development Authority

Declaration of the Urban Development Area

State Government Approval

Final Development plan Modifying the Plan and the

regulations in such manner as it may directed

Refuse to accord sanction and ask for preparation of a fresh

Development Plan

Inspection by the public- inviting suggestion or objections

Revision of the Development Plan



64

5.3.1. Environmental issues in Ahmedabad Ahmedabad is one of the textile and industrial city and now developing as pharmaceutical city of India. Availability of resources for Industrial set-up, very well connectivity to other important cities and policies favoring development are resulting into fast urbanization, increase in population and economic development. Along with the advantages, environment degradation, vulnerability to disasters and poor quality of life are the negative dimensions of an industrial city. Urban areas are becoming most uncomfortable areas to live due to lack of breathing spaces, open areas and visual comfort. The classified images of Ahmedabad city explain spatially the growth of city within a decade (refer Image 5.1.). The urban sprawl has been taken place in all directions but more significant in south-east and western region of Ahmedabad. The vegetation in south-east is reduced drastically to provide the land for development. In western Ahmedabad, expansion as well as densification took place in last 10 years. The same case is with peripheral development in eastern Ahmedabad (around walled city). According to the Study conducted by Raykar Pratima (2005), there is increase in total built up of 157.73 sq km and vegetation cover is decreased by 156.51 sq km.

Source-Raykar, P. (2005) Classification for 1991 Classification for 2000

Table 5.1. Landcover Comparison

Image 5.1. Satellite Image Classifications

Source-Raykar, P. (2005)

Landcover Area in 1991 (Sq Km)

Area in 2000 (Sq Km)

Difference (Sq Km)

Very Dense buit-up area 40.1 58.45 18.35Medium Dense built-up area 26.14 85.53 59.39Built-up + Sparse Vegetation 87.89 167.87 79.98Barren 73.79 45.53 -28.26Sparse Vegetation 291.39 224.79 -66.6Dense Vegetation 176.52 114.88 -61.65Water bodies 6.79 3.75 -3.05Total Sand 2.03 3.87 1.85Total 704.65 704.65



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Like any other city Ahmedabad is also facing problem of deteriorating environment. A few of the environmental issues are mentioned below-

• Exploitation of ground water source • Steady decline in water quality • Contamination of water • Untreated waste water disposed in River Sabarmati • Water logging and flooding problems • No primary collection of waste • Disposal of bio-medical wastes with other wastes • No waste segregation done • Rising air pollution levels in the city • Slums • Lack of Recreational Facilities and the decrease of green/ vegetation cover • Much higher noise levels than the permissible limits • Traffic congestion

Note- These issues will be dealt in detail in the subsequent section.

5.3.2. History of Development Plan in Ahmedabad The Bombay Town Planning Act 1915, was the first act enacted in the erstwhile Bombay state, of which Gujarat formed a part. It provided for making of town planning scheme for certain selected areas in the urban centre’s. Accordingly numbers of town planning schemes were prepared long back for the different areas of Ahmedabad local authority. The Act however did not provide for preparation of overall Master Plan/Development Plan for the whole local authority area for promoting planned and orderly development of the area coming under the jurisdiction of local authority. For the first time provision was made in the Bombay Town Planning Act, 1954, enabling the local authority to prepare a Development Plan for a whole of its area and with the enactment of the Act of 1954, the 1915 Act was repealed. Under the then Bombay Town Planning Act 1954, the planning function was confided to the area within the jurisdiction of local bodies. The peripheral areas of the city, outside the jurisdiction of the municipal limits which are under pressure and have a very good potential of the developments were not under the control, as per this Act and there was no statutory provision for the planning of the same. The growth in this area has a tendency, proceeding in an unplanned manner, in absence of any Development Plan or any development control under a definite statute. This unregulated development on the peripheral areas snowball into a liability when they become the apart of the major town or city in so far as provision of the infrastructure facilities and specific amenities are concerned. Therefore, the Gujarat Town Planning and Urban Development Act, 1976, was enacted which came into force on 01/02/1978. The act provided for declaration of development area which extends much beyond the boundary of local authority and preparation of Development Plan and Town Planning Schemes for the development area declared. According to the act, the Government has constituted the authority for the Ahmedabad urban development area to be called the Ahmadabad Urban Development Authority and the first Draft Development Plan was prepared by the Authority in 1981. Development Plans till Date Not many seem to know that the AUDA Plan of 1981 is not the first one prepared for development of the Ahmedabad urban area. In fact it is fifth interestingly, though all the four Plans are intended to serve almost the same purpose, they differ substantially in orientation, approach, emphasis and



66

interpretation of the direction of urbanization in the region. They show that planning, like most other things in our land, is not so much hard facts and objectivity, it is often personalities. The first proposal for Ahmedabad metropolitan area was prepared by a US-trained, flamboyant Ram Setya, who worked as senior town planner in the state Town Planning and Valuation Department during 1967-69. His concept was of ribbon development. He emphasized development of the Ahmedabad- Boroda-Surat-vapi corridor as the potential industrial region of Gujarat. He even suggested location of an international airport on the north-east side of Mehmadabad town to serve the area. The physical form of this plan, intended to cover a projected population of 45 lakhs in the year 2000, was of concentric growth around the existing of Ahmedabad Municipal Corporation. This Plan was later reviewed and amended by a three-man committee appointed by the state government. But the amended Plan was considered of little value as it was not based on any studies. After Mr. Setya’s departure from the state Town Planning Department, Mr. Deshpande took over as deputy town planner department. He had a doctorate in transportation planning. Before he took over, during 1968-72 the state government had sought the assistance of the metropolitan transportation team headed by Mr. K.L. Rao of the town and country planning organization, New Delhi, to prepare a Transport Plan for the city and its influence zone. The team after three years of effort prepared a short-term operational Plan for improving the traffic junctions in the old fort wall-area and published a preliminary report on the long-term Plan of transportation network in the Ahmedabad metropolitan region. Using this as basis, Mr. Deshpande prepared a tentative Structural Plan of the Ahmedabad metropolitan area which emphasized transportation and traffic linkages with the existing railway and road facilities. It proposed development of a traffic corridor between Kalol and Mehmadabad and suggested an alternative land use plan to fit with the general concept of movement efficiency. The plan was unceremoniously shelved after Mr. Deshpande’s departure from the Town Planning Department. The third preceded the now infamous Urban Land (Ceiling & Regulation) Act of 1976. On the eve of the enactment of the Act a schematic land use Plan of the Ahmedabad metropolitan area known as the Urban Land Ceiling Master Plan (ULC Master Plan) was prepared by the chief town planner and handed over to the revenue department of the state government, exclusively to administer the ULC Act. The definition of vacant land has a reference to building regulations and unless the mater plan is prepared the various use-zones, cannot be identified. And without such zoning, development controls cannot be exercised. Thus was born the ULC Master Plan. It is an open secret that the said plan is an overnight exercise and consequently lacks a comprehensive frame of long term development needs. The AUDA Plan 1981 is fifth in succession. It has taken a line of least resistance by adopting the revised draft Development Plan of the AMC (the fourth plan) along with modifications suggested by the state government and also the zoning proposals of the ULC Master Plan prepared under the Urban Land Ceiling Act, 1976. Let alone its proposals, the AMC’s revised Draft Development Plan for Ahmedabad city covers only a ten-year period and, that too, between 1975-85, but AUDA’s plan period, incidentally, is 1980-2000 and ULC Master Plan is extremely tentative. This question the whole planning process, what respect will one have either for its perspective or provision of such Development Plan and what will be the faith of AMC after 1985 and further AUDA’s confession on Page 23 of the 1981 Draft Development Plan document that “the fact the very basis on which the Ahmedabad urban development area was delineated is not available” could scarily add to its credibility. At present sixth successor, the revised Development Plan 1997 is already sanctioned by the state government. The table below gives the list of Development Plan prepared and sanctioned under the said Acts for AMC and AUDA area.



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1981 Draft Development Plan Issues The 1981 draft master plan was the first master plan prepared under the Gujarat Town Planning and Urban Development Act, 1976 and sanctioned in 1987. Right from the beginning of The Assumptions of 1981 Draft Development Plan were questioned. Doubts were expressed about the validity and authenticity of the information based on which proposals were formulated. The whole affair looks even more tricky when one considers the constraints and limitation, and the information systems on which the entire edifice rests and which are quite thin, unscientific, and highly undependable. In fact the very basis on which the Ahmedabad urban development area was delineated is not available or not knows to the authority. Inspection by Public and Transparency The main concern of the people was the time span for inspection of the document by public. According to Mr. Kirtee Shah (1982), all sections of the people who have seen the plan are unanimous in their opinion that a two-month period to comment on such a massive, comprehensive and long-term plan is woefully inadequate, particularly when the facilities for study and dialogue were poor and the documents not easily available during the period. After all if AUDA took three long years to prepare the Plan after many studies and consultations, what was wrong if the 28 lakhs people, who were more or less expected to stand in a queue at the AUDA office to read their 20-year future, needed a little more time to understand it. when one knows the fate of three previous Master Plans and the Development Plan of the Ahmedabad city prepared by the Ahmedabad municipal corporation which, thought meant for the period 1975-85, which was approved in 1983 two year before the end of its term. The question is, if the development authority could take so long in preparing the plan and if the government could take whatever time it wills in approving it, why should the people for whom the entire planning process is meant be given just two months? One can even question the transparency of the authority in preparing the plan, Mr. H.K. Mewada, the chief Town planner and convener of the sub-committee during that period, normally a compulsory insider in such exercises, commenting on the lack of internal dialogue and coordination during the planning phase, is said to have stated, “I haven’t seen AUDA’s Draft Development Plan though I am in the government”. Fate of Ahmedabad Municipal Corporation Not many seem to realize that the 336-page thick document, which contains development proposals for 1296 Sq. Kms. Of Ahmedabad urban development area for the next 20 years, and which will cost Rs. 55,000 lakh to implement barely devotes a few lines to Ahmedabad city itself, for whose balanced and planned growth, the AUDA was constituted in the first place and according to Mr. kirtee shah, the Rs. 55,000 lakh budget includes nothing for the Ahmedabad Municipal Area, where at present 22.50 lakh people live and its own estimates 43 lakh people will be living by the year 2001. On the fate of this great mass of people, AUDA’s document says only this much: “For the Ahmedabad Municipal Area, the revised Draft Development Plan, prepared by the municipal corporation under the then Bombay Town Planning Act, 1954, along with the necessary modifications, suggested by the state government is adopted in AUDA’s Plan.

Area Prepared on Scantioned Revised on ScantionedAMC 21-Aug-65 01-Oct-65 26-Dec-74 16-Sep-83AUDA 25-Jun-81 02-Nov-87 28-Sep-97 18-May-02

Devlopment Plans till Date

Table 5.2. Development plan in Ahmedabad till Date



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This must be one of the most classic act of evasion, and if it is not so, then the very basis of AUDA’s formation and continued existence must be in question. Does AUDA want us to believe that the Ahmedabad Development Plan prepared by AMC sometime in 1974 is Valid in the context in which AUDA is planning urban development? Isn’t it a fact that the AMC’s Plan lacks the broader perspective as its horizons are limited to the municipal boundaries only? Will there be any difference in a plan which confines its limits to the geographical area of 96 sq. kms. and the one that covers and area of 1294 sq. kms. More importantly, Ahmedabad Municipal Corporation’s Development Plan covers the period 1975-85. AUDA’s draft Plan is for the years 1980-2001. so the AUDA’s Development Plan from the years 1985 onwards is without any focus for AMC area, or any base, because what it has incorporated is not valid after that year. Environment During the time when AUDA was preparing the Draft Development Plan 1981, the major concern in term of environment was water, the reason was Water (Prevention and Control of Pollution) Act 1974, was the only major act enacted till than. The plan mentions that on an average the environment of the authority area is healthy except in the city area. In city area the environmental conditions has deteriorated and the main cause for these is stated as the rapid growth of industries and automobiles. The major concern is industrial effluent which is poured into river Sabarmati, which is the main source of drinking water and also for irrigation. There is also problem of disposal of waste water and increase of carbon dioxide in air. Noise pollution is felt in some pocket in the old city which effects the human living environment; this is the level of mention or consideration in the draft Development Plan of 1981. According to the plan there is an urgent need for development of infrastructure such as drainage, sewerage and water supply. Regarding the slums, the plan proposes to a project for providing dwelling unit for slums on government land which is only 25% of the total slum. While rest will be dealt separately, but there is no elaboration of what it means by separately. If one goes through the Draft Revised Development Plan of AMC 1975-85, it might not have a separate section for environment, but it tries so incorporate or look into minor detail of climate and natural features of Ahmedabad like wind direction, lakes and pond, it even highlight the fact that Ahmedabad is an earthquake prone area and shocks are recorded, but no damages were recorded. It tries also to look at the floods in Ahmedabad and mention about the floods of 1973 which caused the most damage. Implementation One of the most important functions which AUDA is required to perform, is implementing the Development Plan for the Ahmedabad urban development area in a phased programme, according to priorities to be fixed in terms of location, needs and potential and availability to finance. In order to organize the development programme, it is envisaged that the urban development authority will play the role of a coordinating and monitoring agency and will decide the priorities of the development works. The major public bodies entrusted with the implementation of the development schemes are Ahmedabad Municipal Corporation, State and Central Government Departments, Districts and Taluka Panchayats, Gujarat Housing Boards, Slum Clearance Boards, GSTC and Ahmadabad Urban Development Authority. For the effective implementation of the Development Plan, it is suggested that the entire finance for the various developmental activities to be carried out by agencies of the state government may be routed through the authority. In reality, this would mean that what the slum clearance board should activities will be determined by AUDA. The funds to be spent on laying the water supply lines in Mehmadabad will be channeled through AUDA and AUDA will advise the Gujarat State Transport Corporation on rationalization of its uneconomic routes. After knowing the culture and history of institutional autonomy and after lack



69

of transparency in AUDA itself, would this be possible and does AUDA have required the manpower, skills and experience? Are the question posed by a lot of concerned individuals. Shortfalls in Sanctioned Development Plan 1981 Preparation

• Two-month period to comment on such a massive, comprehensive and long-term plan is woefully inadequate, particularly when the facilities for study and dialogue were poor and the documents not easily available during the period

• Lack of transparency of the authority in preparing the Plan • The Plan barely devotes a few lines to Ahmedabad city (AMC limit) itself, for whose

balanced and planned growth, the AUDA was constituted in the first place • The validity of incorporation Ahmedabad Development Plan prepared by AMC sometime in

1974 for a period of ten years in the Development Plan prepared by AUDA for a period of 20 years

Implementation • Under-development of designated urbanizable area and reserved land to the extent of 25% • Mismatch between actual development and proposed zone • No recreational facilities have been developed in areas earmarked for the purpose • Areas which were proposed for residential development have remained undeveloped • Sites reserved for the land development schemes by various government, semi-

government and statutory bodies have not been acquired by the respective agencies • No land has been acquired for development of proposed new roads, in the sanctioned

Development Plan • Lack of development of physical infrastructure regarding drainage, drainage and solid

waste Monitoring and Review

• Failure of the growth centers – Sanand, Kalol, Mehmdabad and Dehgam. • Negligible growth was experienced in the proposed industrial zones in the growth centers. • Mushrooming of unauthorized small-scale industrial units • No satisfactory progress made in development of river front for recreational purpose • AUDA has not been able to play the role of the coordinator in development works

undertaken by various agencies in AUDA area; all departments undertake their development works without consultation with AUDA.

After all this shortfalls, the Plan mentions it has reasonably succeeded in direction urban growth along anticipated lines, and the development has taken place in orderly manner by enforcement of GDCR, the basic frame of plan of 1981 still holds good. How can basic framework be good if its has major shortfalls in preparation, implementation and monitoring of the plan as mentioned above.

5.3.3. Revised Draft Development Plan 1997 The Development Plan for Ahmedabad urban development area approved in 1987 was revised by AUDA in 1997. The Ahmedabad urban development area covers an area of 1294.65 Sq. Km. Apart from Ahmedabad city it includes the growth centre like Kalol, sanand, Dehgam and Mehemdabad. In the Development Plan 1987 it was anticipated that incentives like tax relief and other benefits would be made available by the state government in these growth centers through modifications in the government industrial policy. But as this did not materialize, these four towns only experience marginal annual growth rates. The present of Ahmedabad has spread well beyond the present



70

municipal limits and even beyond the AUDA limits on the western side e.g. Beyond the villages of Ambli and Bopal.

5.3.3.1. The Draft Development Plan 1997 Preparation Process Review of Previous Development Plan A review of the sanctioned Development Plan, 1987 was carried out. The AUDA area was visualized as 3-tier system of development. The major achievements and shortcomings were identified. The issues that emerged from the review were (1) the urbanizable area which was proposed in 1987 remains still undeveloped to the extent of 25% (2) in certain cases, there has been a mismatch between actual development and proposed zoning. (3) The development of growth centers was not as per expectations. (4) There has been a mushrooming of unauthorized small-scale industrial units. Consultation Process with Public and Agencies Interaction were organized with various agencies ranging from farmers’ groups to trade and professional associations, governmental and semi-governmental agencies to take suggestion before the preparation of the revised draft Development Plan. Suggestions were invited from various sections of the public like the MPs, MLAs, representative of district panchayats, local authorities of the growth centers, AMC and various professional institutions – The Gujarat Chamber of Commerce and Industries, prominent citizens, semi-government and autonomous bodies to review the sanctioned Development Plan and provide inputs for the revised Development Plan. Land Suitability Analysis using Remote Sensing by ISRO A land suitability analysis with the help of remote sensing and GIS was carried out jointly by Space Application Center (ISRO) and AUDA to assess urban sprawl since 1972 and land suitability for development. It studied, landuse, hydro-geo-morphology, flood hazard, erosion, transportation links, ground water prospects, soil, topography etc. review of other studies, proposals and project experiences were also carried out before arriving at the proposals based on the inferences derived from them. Publish Draft Development Plan and Display for Public Scrutiny The revised Draft Development Plan was published on 27-11-1997 in the official state gazette. The Development Plan was displayed for public scrutiny for a period of two months from the date of publication at the AUDA office to invite objections and suggestions. Presentations were also made at various public forum like the Gujarat Institute of Civil Engineers and Architects, Gujarat Institute of Housing and Estate Developers, GCCI, School of Planning (CEPT), etc. Receiving objections and suggestions Approximately 35,000 objections and suggestions were received in response to the published Plan. Most of these were from individual land owners/ Khedut Mandals who were directly affected by the proposals of the revised draft Development Plan. They specifically pertained to the proposed ring road alignment, the reservation policy and the proposed special agricultural Zone. Responses were also received from various institutions in the city. These were reviewed and based on them; suitable modifications were made in the proposals wherever deemed necessary. Modification of the Draft Development Plan These changes have been indicated in the supplementary document which has been prepared with inputs from Environmental Planning Collaborative, Ahmedabad. The supplementary document has been prepared subsequently to modification of the draft Development Plan.



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Revision of the Development Plan in 2007

State Government Approval

Final Development plan Modifying the Plan and the

regulations in such manner as it may directed

Refuse to accord sanction and ask for preparation of a fresh

Development Plan

Inspection by the public- inviting suggestion or objections

Ahmedabad Urban Development Authority

Review of Previous Development Plan

Consultation Process with Public and Agencies

Publish Draft Development Plan


Modification of the Draft Development Plan by EPA and

AUDA


Draft Development Plan Modification of the Draft

Development Plan if required

Initial Analysis using Remote Sensing by ISRO

5.3.3.2. The ISRO -GIS and Remote Sensing Approach 1997- Volume 1 For any Development Plan proposal, one has to carry out extensive survey and studies to understand the area. Basic caveat for this is the availability of systematic, detailed, reliable, timely and accurate information on various facets of urban environment. Without understanding an area and its problems a proposal may not caters to the required needs of the city, but by the time the plan is made using conventional surveys, the data becomes old and the plan may not be suitable for implementation. So in case of Ahmedabad, this job was allotted to Space Application Centre (ISRO) to do various studies using GIS and Remote Sensing. It is because of this, ISRO with help of satellite images and with available data from previous report tried to cover certain area-

Figure 5.2. The Draft Development Plan 1997 preparation process



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Index Environmental component mentioned in the methodology, but lacking in the Plan.

ECOLOGICAL CONSERVATION

SUITABLE FOR INFRASTRUCTURE

SUITABLE FOR OPEN SPACE

SUITABLE FOR COMMERCE

SUITABLE FOR INDUSTRY

COMPREHENSIVE ANALYSIS OF DATA- By

ISRO

SOIL TEXTURE

EROSION HAZARD

SURFACE WATER

LAND USE

ELEVATION POINTS/ COUNTOURS

RLY STATION

ROAD

BUILT-UP

FLOOD HAZARD

GROUND WATER

OPTIMAL LAND SUITABILITY- By ISRO

ANTICIPATED ENVIRONMENTAL

DEVELOPMENTAL IMPACT ON SITE

SUITABLE FOR STRUCTURE

SUITABLE FOR AGRICULTURE

SUITABLE FOR RESIDENTIAL

STRATERGY OF LAND USE DESIGN- By AUDA INTEGRATION OF

SOCIAL AND ECONOMIC DATA

DENSITY AND THRESHOLD

LAND USE OPTIMISATION

FUTURE GROWTH AND DEMAND

DEVELOPMENT OF ALTERNATIVE CONCEPTUAL

LAND USE PLAN

SELECTION OF THE OPTIMAL CONCEPTUAL

LAND USE PLAN

DRAFT OF LAND USE PLAN

PUBLIC HEARING

PLAN APPROVAL AND PUBLICATION

PLAN IMPLEMENTATION

PLAN MODIFICATION

PHASED DEVELOPMENT LAND USE PLAN

LAND USE CONTROL AND REGULATION PLAN

ENVIRONMENTAL GUIDELINES

Figure 5.3. Detail Methodology for Preparation of the Development Plan

Source- ISRO, 1997



73

• Land use mapping, on a grid of 80 Sq km along with cover interpretation. • Study on ground water prospects • Geological study • Slope analysis • Soil analysis • Flood hazard • Surface water bodies • Settlements and transportation network.

Some issues related to The ISRO -GIS and Remote Sensing Approach 1997 The ISRO report was a good initial piece of study. But it mainly failed in the land suitability part. Identification of suitable land for urban development is one of the critical issues of planning. The land suitability designates land according to its physical capability regardless of any planner’s conceptual interest. ISRO carried out study regarding urban land use suitability, the suitability of the land for urban development was based on a set of physical parameters but also very much on the economic criteria, basically based on development constraints for land use for urban use. The Methodology prepared by ISRO (refer figure 5.3) mentions some environmental component, but in reality the land suitable does not touch on areas that are environmentally sensitive and need to be preserved for long term environmental and social benefits. (Ex. Forest, agriculture land etc.) Note- Ten important physical parameters are considered for the suitability analysis are 1) soil depth 2) soil texture 3) slope 4) land use/cover 5) Ground water prospects 6) flood hazard 7) erosion hazard 8) surface water bodies 9) distance from road and 10) distance form rail head.

5.3.3.3. The Revised Draft Development Plan 1997 and Environment The first aim mentioned in the Development plan is – To create good environment and to minimize the environment pollution with green spaces, open spaces and places of public activities with recreational areas. What does environment mean in this context, what is creating good environment means? Does it consider only physical environment, than what about the social environment? And to minimize the environmental pollution with green spaces, can be interpreted as remedial measures, than preventive measures to curb the environment pollution in Ahmedabad. So to what extent is Environment considered in the Development Plan, is it only a part of only aim or is it achieved in the Development Plan? The subsequent section will try to answer these questions. Population dynamics The Draft Development Plan mentions that the projected population of 43,46,190 for the year 1991 has not been achieved. Is this a good or a bad sign is what the Development Plan fails to perceive. It is a healthy sign in case of environment is considered, less population would mean less stress on resources. But it tries to justify that the population was not achieved because the proposed development was not developed. Can present natural resources like land and water in Ahmedabad cater to the projected population and can the required infrastructure be provided in time to prevent deterioration of environment? All this aspects need a closer look.18 As discussed earlier in the Delhi master plan, the whole relevance of the population projection needs to be questioned, since all the estimation of infrastructure, transportation etc is solely based on it. Can concept like carrying capacity or holding capacity based on land and resource like water help to understand what

18 According to ISRO (1997), the total groundwater exploitation in AUDA and AMC is 200 MCM/Yr. against the safe yield of 80 MCM/Yr.



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Table 5.3. Existing and Proposed Land use of AUC Area (Excluding AMC)

population figures can be dealt by a city like Ahmedabad and what can be sustained over a period of time. Sustainability is the key issue, the Development Plan projects population of each area and than identifies suitable land for accommodating this population, the land suitability does not consider infrastructure as a criteria. Development of Infrastructure is a major problem/ constrain for any development, the review of last Development Plan mentioned it as a major cause for lack of development of the identified urbanizable area. Land use The economic criteria has tended to dominate the land-use decision-making process in the Development Plans, which may in long term have resulted in environmental degradation accompanied by hazards to human life and property, leading loss of green cover and loss of precious agriculture land. Therefore land use decisions should have been based on environmental land suitability study, in order to prevent damage to environment and protect the environmentally sensitive zones (e.g. agriculture land, forests, water bodies and rivers) The Ahmedabad Development Plan claims that the land use suitability study of ISRO was considered while proposing the future land use for Ahmedabad, the methodology for proposing land use is not mentioned. If one takes up an exercise to study the transition of the proposed land use and understand the changes in land use of Ahmedabad form the Development Plan document, it a difficult proposition. The land use classification of the existing and the proposed land use are never classified on the similar basis. The Development Plan (DP) only gives the composition of the existing area in case of AUDA that too on very broad bases, but no proposed composition is given.

AUC area has been increased from 9126 to 28787 hectares, but the original composition of the increased area is not given. It consider the composition of the 9126 hectors of AUC area and than proposes landuse for the 28787 hector of AUC area (refer table 5.3). AMC case is also similar where the classification of existing and the proposed don’t match. The existing land use shows classification of open / vacant land and there is no segregation of this open area into agriculture, recreational, gardens and the proposed land use gives a clubed total of all land use, which is 8.61% of the total land use, so effectively it is very difficult to know how much open space is proposed (refer table 5.4). The main reason for giving such kinds of classification is that, the A.M.C. area

Sr. No.

Land Use Area in Hect.

% of Developed

Area

Sr. No. Land Use Area in Hect.

% of Developed

Area1 Residential, Roads,

Public and Semi-PublicType 1 (old residential

area)9938 34.523

Type 2 (new residential area)

4624.92 16.066

2 Public Activity Area 552 1.9183 Public and Semi- Public 243 0.844

3 Commercial 276 3.02 4 Commercial 1071.92 3.7244 Industrial 647 7.09 5 Industrial 987.58 3.4315 Garden open space

and P.G.41 0.46 6 Recreational 6300 21.885

6 Railway/ Roads/ Airport

406 4.45 7 Treatment Plants (AUDA, AMC)

745.16 2.589

8 High flood hazards 524 1.829 Agriculture 3800.42 13.202

Total 9126 100 Total area 28787 100

39.72

Source- Revised Draft Development Plan of AUDA- 2011 AD Part 1, Vol. 2

3559Residential include Gamtal

7 Water way and tank 3625

Existing Landuse of AUC Area (Excluding AMC Area) (1997)

Proposed Landuse of AUC (Excluding AMC Limit) (2011 A.D.)

38.99

2 Public & Semi- Public 572 6.27

1



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does not have any documentation of the existing land use, the land use proposed in the previous Development Plan, 1981 is considered to be the existing land use and there is no actual documentation done. Hence it is a very difficult or next to impossible from the DP to understand the transition of land use and do a comparative analysis. Table 5.4. Existing and Proposed Land use of AMC area

The old city of Ahmedabad is one of the most congested and the most dense area with narrow road approaches without any parking facilities, rather than reducing the congestion and density problem the Development Plan suggests to develop the closed mills in the eastern part of the city to be used as commercial as well as for low income housing group which may again led to densification of the area. Some of these areas can de develop as open area, as there is a greater need of open spaces in the eastern part of the city.

Figure 5.6. Ahmedabad old Textile mill Land

Sr. No.


% of Total Area

Sr. No.


% of Total Area

1 Residential 6664.44 34.92 1 Residential 8340.22 43.72 Village Site / Gamtal 895.59 4.69 2 Walled City and Village

Sites (Gamtal)645.56 3.38

3 Commercial 472.64 2.47 3 Commercial 263.06 1.384 General Industrial 2006.51 10.515 Special Industrial 786.72 4.12

5 Open / vacant Land 4473.36 23.44 6 Agriculture/ Recreational/ Open Space/ Gardens

1643 8.61

6 Education 344.19 1.8 7 Education 387.3 2.037 Roads 1426.65 7.478 Railway land 372 1.969 Water bodies 850.55 4.46 9 Water bodies (Including

rivers)937.97 4.92

10 Hospitals 98.36 0.5211 Burial Ground / Grave

Yard86.54 0.45

12 AMC Plots 467.18 2.45Total 19084 100 Total 19084 100

10.25

Source- Revised Draft Development Plan of AUDA- 2011 AD Part 1, Vol. 2

10 Area Under Reservations now designated as special

development area

1955.37

2932.78 15.37

Roads and Railways 2117.67 11.18

Existing Landuse of AMC Area (1997) Proposed Landuse of AMC Area (2011 A.D.)

4 Industrial

Source- CDP, Ahmedabad, 2006



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Figure 5.4. Depletion of Water Table

The Development Plan permits commercial use on the ground and first floor of any property abutting a road of width 18m or more, in all urbanizable zones. This has been done on the basis of observed recent trends and the realization that regulations completely contrary to the market realities are bound to fail. In other terms there has been violation of the previous GDCR and it is an attempt to regularize the said development. This kind of development usually causing congestion on roads due to the parking necessity, so along with changes in GDCR there are other factor which are related need to be incorporated. The Development Plan proposes a compact city form in order to ensure that precious urban land is used efficiently. But the term compact needs more elaboration, since in the analysis volume 1 of the Development Plan mentions that, high rise structures are zooming up on the western side of the city which may worsen the quality of life. Does compact mean high rise structure, or low rise dense development need clarification in the Plan. Industries Rapid industrial development, creation of slums and discharge of untreated industrial wastes in river, are some of the apparent reasons of air and water pollution in Ahmedabad. Environmental conditions has steadily deteriorated and thus created problems of health for the society. The other feature which intensifies the problems of public health is overcrowding in dwelling units and resulted substandard living conditions. Most of the industries in the study area are located with the Ahmedabad Municipal Corporation (AMC) limits. There are three major industrial estates within AMC which have various types of industries ranging from chemical, dyes and dyestuffs, engineering, rolling mills, pharmaceuticals, plastics etc. Due to the revised national industrial policy, no new large industrial projects will come up in AUDA area but are being set up on outside the urban development area in the region/district. Industries are encouraged to be located away from existing developed areas of Ahmedabad and because of this that most of the new industries are coming up outside the AUDA limits on the western part. But this might still have an impact on the air quality of the region. Water Groundwater The groundwater is being extensively utilized to meet the heavy industrial, civil and domestic water demand. This has led to a sharp decline in water levels over the years. The total groundwater exploitation in AUDA and AMC is 200 MCM/YR against the safe yield of 80 MCM/YR (ISRO, 1997). The unconfined aquifer has nearly been rendered waterless and the current water demand is mainly met by the confined aquifer system being tapped by numerous tubewells. The water levels have been declining fast over the years. This is due to uncontrolled pumping, over-exploitation and above all, lack of proper legislation on groundwater exploitation. As a result, there’s an ever increasing threat to the quality and the quality of the groundwater available. Source- CDP, Ahmedabad, 2006



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Presently there is inadequate coverage in term of water supply, only 85% of the AMC population receives piped water supply. Rest of the population, specially the AUDA depends on ground water, which is extracted through bore wells. In absence of perennial source in the city dependence on ground water is high. This is seriously affecting the ground water level. This is depleting at the rate of 2-3 M annually. During the study by ISRO, it was felt that Detailed and systematic hydro geological study is required to access the utilization and developmental potential of the groundwater system quantitatively in the AUDA area. A systematic survey involving collection of groundwater sample for quality analysis is required to access the potential of the water precisely. ISRO also suggested taking up a systematic and detailed study to draw a meaningful and effective water resource Development Plan of AUDA area. Such a Plan would indicate combination of sites suitable for water harvesting/artificial recharge along with appropriate zones/sites for ground water abstraction for sustaining adequate supply against the necessary water demand in future The Development Plan does not consider the problem of contamination of water supply due to old service connections. Neither there is a Plan for sustainable withdrawal of water and recharging the ground water source. The increasing land sealing due to development of Ahmedabad has also contributed to loss of ground water recharge area. The DCR only regulate the control of water pollution but there is no control on extraction, but it provides for provision of percolating well for building unit exceeding 1500 sq. mtrs for promoting ground water recharge River Sabarmati The Sabarmati River is being highly polluted due to the development around with untreated sewage left into the river along with industrial effluent released in the river which is the main source of drinking water. And since the Development Plan study mention that the bed of the river is highly porous in nature, it can lead to contamination of ground water. There are attempts to clean the Sabarmati River through Sabarmati river action Plan under National River Conservation Plan. Lakes and Ponds In year 2000 there were three special civil application filed in Gujarat High Court at Ahmedabad, all the petitions centered around the question of protecting, preserving and improving the water-bodies in Ahmedabad and safeguarding them against encroachment. The first application No. 10621 was for removing all encroachments on the land of Lake Chandola and for executing the work for distillation, reviving feeder streams and taking effective steps for reviving and recharging it. The second application No. 11635 was for removing unauthorized encroachment from Lakhudi talavadi in Navrangpura and the third application No. 11049 stated that instead of developing the ponds at Memnagar and Vastrapur, illegal constructions were allowed to come up and no action was being taken by the authorities to remove them. Constitutional and statutory provisions clearly bring to fore the paramount duty of the State Government, Municipal and Panchayat authorities, the Area Development Authorities and other legal authorities, to protect and improve water-bodies as a part of environment. There are ample legislation to arm these authorities with the power to preserve these natural resources and prevent their abuse. But Most of the water-bodies in Ahmedabad have virtually been destroyed or encroached on account of negligence of the authorities. It is also noted that, natural drainage channels drainage connecting different water ponds have either encroached or blocked and due to which the water that used to be stored in the ponds is lost in form of run-off. The court directed the authorities that care should be taken that water bodies are not converted to any other use in the Town Planning Schemes / Development Plans that may be made hereafter. The present revised Development Plan 1997 supplementary report mentions about development of talavs/lakes and the GDCR provides for protection and development of talav/lakes through restricting development within 9 meter of the water body. The distance of 9 meter has no justification and was even under debate in the special application in the high court.



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Hazards and Disaster • Flood hazard- the initial development study identifies only river Sabarmati as a potential

flood hazard prone zone. And the Development Plan mentions some areas in the western Ahmedabad like Naroda area, which have been built in low lying areas without any proper planning. But in reality Ahmedabad city has major water logging and flooding problems. City experience it worst floods in 2000 when large area of western (which is suppose to be a planned area) and eastern Ahmedabad were affected. This floods were caused because of poor storm water drains coverage and the planning within considering the natural topography and slope of the land.

• Riots- there are no demarking of areas prone or vulnerable to riots in the Development Plan. This is one of the most important issues in Ahmedabad and thought-out most of the cities of Gujarat. The riots of 2002 caused heavy loss of life and property. Therefore there is a need to study the riot prone area and demarcate them as sensitive zones.

• Earthquake- the planning for Ahmedabad originally didn’t consider the fact that Ahmedabad falls in the earthquake prone area (zone-3). Because of this reason there was mass destruction of property and heavy losses of lives in the earthquake of that shook Gujarat in 2002 and hence latter on, the GDCR for Ahmedabad was revised and provision were made for structural safety of the building.

• There is no consideration for a Disaster Management Plan for AUDA as a whole. The planning process is a piece meal process. Major consideration like the project for gas supply in the city is not even considered in the Development Plan.

Pollution

• Air and water- The GDCR mentions that competent authority may stipulate conditions for controlling air and water pollution, since the provision in the GDCR is very general, there is Air and water pollution caused by industries. There are projects like the Sabarmati conservation plan which are addressing the issues of river pollution. Apart from this the current industrial location policy, through its incentive mechanisms, favors the location of large scale and obnoxious industrial outside the urban area rather than inside it. But this reduces only the pollution level in the urban area and causing problem in the outside area.

• Noise- is not given importance in the Development Plan. Noise pollution is major problem in urban area which causes a lot of mental problems. The Development Plan mention about the noise pollution in some areas, but they are not mapped.

Physical and Social Infrastructure The Development Plan feels that, it will be difficult to adopt uniform standards and find out the exact requirements of these physical and social infrastructure facilities for AUDA area. It feels that it would also be difficult to show the locations of the various services and amenities, location of college, secondary schools, hospitals and dispensaries, town hall, auditorium, city club, community hall etc., at macro level planning of the Development Plan. So only standards are mentioned in the Development Plan, which are as per Delhi development Authority. The Development Plan mentions that, the provision of all these services and amenities will still however be worked out in the Town Planning (T.P.) Scheme proposals or at micro level planning. A T.P scheme involves planning of about 100 hectare of land and one could understand if community level infrastructure was provide through a T.P scheme, but locating city level infrastructure through T.P scheme can be debated. Solid Waste Solid waste problem is of least consideration for the Development Plan (DP), the Draft DP part 1, volume-2, surveys, studies and analysis, dedicates about five lines to solid waste and there is no



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proposal for solid waste in the Draft DP. Hence it gives a feel that solid waste is no issue for Ahmedabad. The DP does not even mention the amount of waste generated and the way the solid waste is handled and disposed. According to CDP Ahmedabad 2006, there is no primary collection of solid waste in the AUDA area. There are major problem of disposal of bio-medical waste. 6% of the total 604 private hospital are tied with AMC. No waste segregation done, unscientific techniques are used in waste disposal. The laws governing the urban local bodies make it obligatory to ensure regular cleaning of public streets and disposal of wastes collected there from. The private roads, or the slum pockets, which are generally situated on the private plots, therefore do not get the SWM services. In absence of adequate legal provision, even the citizens in general do not organize themselves for the proper storage of wastes at source, for its community collection and for its disposal in to the municipal system. There is a gap in legislation as it neither makes it mandatory for the people to have a domestic bin and community bin and to dispose of their wastes into municipal systems nor makes it compulsory for the urban local bodies to make door-step collection of wastes or community based collection, resulting in unsanitary conditions in the urban areas affecting the environment substantially. There are also other issues like the interface area between the Nagar Palikas, the interface area or the boundary area of the Nagar Pallika which is a an imaginary line on paper, are always area of dispute between Nagar Palikas. Hence there is usually no solid waste collection from such areas. The formation of the AUDA was based on the urban planning and controlling the development activities. After 1990, AUDA was involved in the different infrastructure project such as roads, over bridges, street lights, parks and gardens, drainage, storm water line, housing projects and fire station. Despite of the fact that AUDA‘s role is limited to undertaking planning and infrastructure development, people expect it to fulfill all municipal functions, such as solid waste management, maintenance of roads and maintenance of other infrastructure. In fact, these functions are supposed to be carried out by Nagarpalikas and Gram Panchayats within AUDA area. However, they have poor resources and are unable to adequately carry out their functions. As per the Municipal Solid Wastes (Management and Handling) Rules 2000, every municipal authority is responsible for collection, segregation, storage, transportation, processing and disposal of municipal solid waste. While the Development Authorities is only responsible for identifying the landfill sites and hand over the sites to the concerned municipal Authority for development. Sewerage Systems There is inadequate sewage system coverage in the AUDA area. The sewage network in Ahmedabad city presently caters only to 75% of the area. Untreated sewage is disposed in the river Sabarmati, due inadequate treatment facility. There is also a problem in the way the individual soak-pits and septic tanks used are maintained in some the city leading to choking and overflows. Only half the sewerage is being treated which the rest of it is disposed off in Sabarmati River. Less polluting industries are also disposing off their wastes either in Kharicut canal or within the estate, while the rest of the industries of Ahmedabad are putting their effluent into manholes have been reported. Infiltration of rainwater into the sewage lines is some areas further aggregates the problems during the monsoon months. The present method of disposal of sewage by pumping into the river is a very crude wasteful and objectionable method. The present system also is not capable of delivering the total quantity of sewage to the outfalls. The Development Plan feels the need of completely redesigning the sewer system. Urban Environment The environment essay in the Draft Development Plan, 1981 and the Draft Development Plan, 1997 part-1, volume-2, is almost same with minute modification in language. Even after more than



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a decade of development and change the attitude of the authority towards environment haven’t changed much. Environmental monitoring of urban activities has relied mostly on regulations that stipulate what cannot be done. Air, water and soil pollution is monitored by appropriate public agencies like Gujarat pollution control board with the exclusive mandate to do so. In urban Development Plans urban environmental management is mainly done through the mechanisms of development control regulations, and zoning. Development control regulations contain stipulations on the densities of development, open spaces, building heights, etc. While such mechanisms continue to be important, it is essential what we also include positive pro-active actions that would enable the city to offer itself the opportunities to enhance the larger built environment. It is important that a Development Plan should include the Development Projects which are formulated whit a view to enhance the overall urban environment. Road and Transportation The peripheral areas of Ahmedabad have poor connectivity with Ahmedabad. The area which were incorporated within city limits in 1986, are not very well connected and the road network is not fully develop as proposed in the Development Plan 1987. Partially develop right of ways, poor junction design and parking. The Ahmedabad lacks public transport and there is a need for a mass or rapid transport system required which is mentioned as a concern in the D. P. The experience has shown that failure of the mass transport service to cope up with the demand has brought about increase in the number of vehicles, without corresponding increase in length and area under roads. One cannot expect better results with only 20% of total trips being carried by bus transport and the number of two-wheelers getting doubled in only five years, without improvement in carrying capacity of the road network. The heavy volume of traffic coupled with heterogeneous mixed composed of slow and fast vehicles and stray cattle competing on narrow outdated roads of central area has brought down the average speed of motor vehicles to almost crawling level in the old city. This has not also adversely affected the operational efficiency of the major functions but also brought with it the problems of environment pollution due to noise, exhaust gases etc. The city is facing the problem of traffic congestion since long and it becomes acute day by day with the increase of development activities on the fringe area year by year particularly in the eastern and western part of the city where the rate of growth and trend of development is more to north and south direction. The work place situated in the central and the eastern part and the residential areas located on the western part causes the movement of people in remarkable manner from west to east in the morning and from east to west in the evening. The pick-hours timing makes the movement very difficult causing the wastage of time and creating lot of pollution. Therefore there is an urgent need that the Development Plan should consider land use and transportation together to avoid such mistake in future. Housing Consideration The economical breakup of population is very important, on the basis of this the type and amount of housing target required for each group will be determined. The Development Plan only focuses on the total existing housing stock and its shortfall. But it there is no mention about, what type of housing is in shortfall. It is expected in the Development Plan that public housing agencies particularly AMC, GHB, GRHB, etc., would separately take up schemes for 25% of total slum dwelling. And the rest slum families will be remaining and it is expected that this population will have to be dealt separately, there is no details given in the Plan for dealing with the 75% of sum dwelling.



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Open Spaces Open spaces will be basically serving as air lungs to the city in addition to their basic function as parks, playground, recreation etc., which is badly required to take care of pollution and enhance the total environmental conditions. At present the city lacks large city level open spaces as well as neighborhood level open spaces. AUDA has provided open spaces in its T.P. Schemes, but none of the plots have been developed till date, according to the Plan. The existing mechanisms for developing open spaces are through T.P. Schemes and specific reservations for open space. As per today’s practice, only 2-3% of the scheme area goes into open spaces. So in order to improve the green spaces in the city the GDCR provides for compulsory provision tree during approval of building plan and the trees to be provided at the rate of 1 tree for every 100 Sq.mts of building unit, but the issue here is that by provision can we ensure that in reality that number of trees will be planted? And if planted will they be cared for? Heritage Conservation Historic, archeological or otherwise culturally significant structure and places, includes buildings and natural area, contribute a sense of time and scale and identity to the build environment. At present, there is an immediate need for implementation of heritage conservation regulations, as the city of Ahmedabad is experiencing indiscriminate partial selling of historic wooden facades, neglect of buildings and their surroundings, destruction of natural features, vandalism, thoughtless exploitation of heritage and blatant encroachments. Hence the Development Plan proposes to introduce special heritage conservation regulation as a part of the GDCR for the entire city. But this wont be effective in absence of comprehensive listing of heritage buildings/precincts, so there is a need for comprehensive list of heritage property Proposed Projects Slum up gradation It is proposed that slum networking should be carried out in Ahmedabad. It is a comprehensive project for upgrading/providing infrastructure in the slums and integrating it with the city’s infrastructure. The slum networking project is addressing the current infrastructure demand in slums keeping in the view the number of dwelling unit existing in each slums. Simultaneously expansion / densification of the slums are taking place at a rapid pace. In such a scenario the infrastructure provided in the slums will become wholly inadequate, over stressed and may nullify improvement made and leading to degradation of the environment. Therefore there is a need of slum checking. Slums are most vulnerable to fire. There is not concern show about fire hazards in low income housing development as well as slum up gradation in the GDCR. The Sabarmati river front development project The Development Plan, 1997 proposed to develop Sabarmati river bank with open spaces of different nature, appropriate landscaping and other improvement by undertaking a detail separate project itself. Open space according to the zoning of GDCR allows no construction. River was a large continuous open space the largest one left in Ahmedabad. Once upon a time this river acted as a major open space in the summer due to the river bed drying out. Which is lost as there is barrage built that retain water in the river throughout the year. The Sabarmati river front development project proposes to reclaim land from either side of the river, which will reduce the width of the river causing major changes to the natural water body. Reducing the width of the river will cause reduction in carrying capacity of the river may cause flooding and heavy erosion. To rectify the carrying capacity there will be a need for dredging the river at a larger extends which will led to loss of the river bed. The river is not only a city subject, it has a regional context, such development may lead to a larger regional impact.



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Map 5.2. Growth Centers in Ahmedabad Urban Development Area

Apart from this the project mentions that 42.08 Hectare of reclaim land will be available for an open space which is only 26.3% of the total reclaim land. And the rest of the land will be used for developmental purpose like roads; services etc. and 20% of this land will be used for commercial and development purpose. So rather than decongesting the existing old city area the project add on more development, which in fact may led to more congestion. Issues of the Growth Centers The wisdom of developing Sanand, Dehgam, Mehmadabad and Kalol as growth centers (for location of this growth centers refer Map 5.2). However, the assumption that they would check the flow of migration and direct it away from Ahmedabad, which would ease the pressure on the city, is certainly open to debate. Some of these questions that require studied answers are: is it wise to attract population in the newly developing urban centers within the radius of 20 kms from the main city? Is the proposed level of investment adequate? Even if it is adequate for the internal development of the concerned town, it is sufficient for it to function as Ahmedabad alter ego? If in these growth centers jobs are created through new industrial and if other infrastructure development lags behind, or if due to paucity of resources or change in the strategy due to political or other reasons if development is stalled temporarily or stopped permanently won’t the floating population jump to Ahmedabad? In that case, will not the effort be counter-productive? Till date some lands have been acquired for township in these towns by AUDA but no infrastructure services and facilities for township area. No other lands reserved for public purpose for AUDA and Local Authorities in these four centres have been acquired as proposed in the sanctioned Development Plan. Hence the questions raised above are quite valid.

Sanand

Mehmedabad

Kalol

Degham

Source- AUDA, 1997



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GDCR Provisions General Development Control Regulation is a very important part of the Development Plan; it proposes the procedures for developing any area within the legislation of the Development Plan. It is a control mechanism for controlling the growth of the city in a planned way, in line with the Development Plan. The GDCR of Ahmedabad Development Plan gives details about the way an application should be made for any development permission. This application will contain detail of services provided, the structural safety of the building and fire safety. All the development should also confirm to other acts and regulations, like the Petroleum Pipelines (Acquisition of right of user in land) Act, 1962, the Indian Oil, Mines Regulations, 1933,the Indian Electricity Rules, 1956, regulated as per the provisions of Civil Aviation Department, Gujarat Smoke Nuisance Act, 1963, Water (Prevention and Control of Pollution) Act, 1974 and Air Pollution Control Act-1981. Considering the safety of the citizens and in order to protect the environment and prevent environmental deterioration, the GDCR prescribes certain condition for a site for construction of the buildings. The requirement are based on health and sanitary point of view, topography and drainage aspects, impact on urban aesthetic of environment or ecology and/or on historical/ architectural/esthetical buildings and earthquake intensity.19 Fire safety and safety of lifts in high rise buildings have been given enough thought in the GDCR. The prescribed distance from water courses in GDCR doesn’t have any justification and there is no regulation for use of the water body or land use around the water bodies. In case of industrial development, the GDCR mentions that no industrial effluent shall be disposed or exposed so as to cause nuisance and endanger public health and there are general provision for controlling air and water pollution The GDCR also provides for provisions for special developments like regulations for Gandhi Ashram: comprehensive area improvement scheme, regulation for existing slum redevelopment rehabilitation schemes on self financing basis and for Sabarmati river front development scheme. The GDCR also gives consideration for Physically Handicap Person, but these regulations only apply to the buildings of physically handicapped persons and buildings and facilities used by the public, but it does not apply to private & public residences. So what happens to a handicap staying or going into a residential colony?

5.3.3.4. Implementation Reservation of Land The Development Plan prepared in 1981 reserved a total of 800 ha of land under green belt along the whole of Ahmedabad city. The study carried by ISRO from the Remote Sensing Data 1997, it is observed that now only 292 ha are lying vacate while the other area has been either encroached or occupied. Implementation of 1981 Development Plan has revealed that by one or other reason such as lack of finances, lack of desire, Urban Land Ceiling Act, opposition from the land owners for the total deprivation of their land etc. the lands of different reservations have not been acquired and have been put to respective uses as anticipated in the sanctioned Development Plan by the various organizations. Ultimately the fate of the lands falling within the reservations is sealed and it has encouraged litigations and unauthorized encroachment. The most potential land thus is unused and idle only because of reservations. The noble intention and ideology of the reservations as envisaged under the act has not achieved. So the present Development Plan proposes special area T.P. Scheme on top priority for that the 928 hectare of land reserved. 19 The original GDCR of 1997 didn’t have any consideration for earthquake, but after the earthquake of 2001 earthquake become an important component for prescribing regulations in the GDCR.



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Town Planning Scheme (TPS) Town planning scheme is considered to be most effective instrument for implementing the Development Plan proposal. Under section 40. (3) A town planning scheme act gives the list of items that T.P. Scheme can make provision for, some of the important one are listed below-

• The preservation of objects of historical or national interest or natural beauty, and of buildings actually used for religious purpose;

• the reservation of land to the extent of 10 % or such percentage as near thereto as possible of the total area covered under the scheme, for the purpose of providing housing accommodation to the members of socially and economically backward classes of people;

Allotment of land The allotment of land from the total area covered under the scheme, to the extent of –

I. Fifteen percent for road II. Five percent for parks, playgrounds, gardens and open spaces, III. Five percent for social infrastructure such as school, dispensary, fire brigade, public utility

place as earmarked in the draft Town Planning Scheme, and IV. Fifteen percent for sale by appropriate authority for residential, commercial or industrial use

depending upon the nature of development. Implementing the Development Plan through T.P. Scheme At present there are only tow main methods for developing land: Bulk Land Acquisition and Town Planning Scheme. Bulk Land Acquisition carried out under the Land Acquisition Act ,1894 where the agency acquire the land and compensation is paid to the owner. The land acquisition procedure is time consuming, need capital to acquire the land and the compensation is paid on basis of prevailing price while after developing, the agency sell it at the market price. Due to the complexities of the land acquisition act, 1984, the land pooling Town Planning Scheme have gain popularity and The Development Plan of Ahmedabad however totally depends on the TPS for implementing most of its proposals. The Development Plan mentions that, the provision of all services and amenities will be however be worked out in the Town Planning Scheme proposals. TPS is a micro planning instrument, where as Development plan is a macro planning instrument which envisages the city as one entity. The Development Plan of Ahmedabad leaves most of the location decision of important services, infrastructure and amenities to the TPS. How can a TPS meant for an area of about 100 hectare take decision of locating city level infrastructure, services and amenities? Therefore there is a need for clearly identifying the component the Development Plan which can be dealt through a Town Planning Scheme. The Development Plan has no proposal for housing for weaker section, while it was town planning scheme that has provision for providing housing for weaker section, but that to extent of 10%. That means that it can be lower than that. The present draft Development Plan 1997 proposes deduction of 40% of original plot area shall be made for scheme purpose and the rest of 60% of original holding shall be allotted to the owner in the form of final plots. The 40% deduction doesn’t have any provision for housing for weaker section. After National Environment policy 2004 stating “The key environmental challenges that the country faces relate to the nexus of environmental degradation with poverty in its many dimensions. These challenges are intrinsically connected with the state of environmental resources, such as land, water, air and their flora and fauna”. With the present Town planning scheme provision, the draft Development Plan 1997 total eliminates the provision of housing for weaker section. Issues of Town Planning Scheme

• It is time consuming and laborious • Delay in sanction to the draft scheme, preliminary scheme and final scheme by govt.



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• Delay in survey of the scheme area and demarcation of proposals of the scheme. Firstly declaration of intention to prepare town planning scheme takes time, possible due to absence of appropriate administration structure and shortage of trained staff. Secondly, the delay in finalization of scheme by the state government encouraging unauthorized construction and encroachment of reserved plots in TPS. Within AMC area, till now only 40 T.P. schemes have been approved covering only 40 % of the total area and another 16 are lined up for approval.

• Also, certain processes like minor variation in the TPS have to undergo same process as the preparation of TPS. This results in unnecessary wastage of time and increases that the cost. Also certain procedures like sending the plan to the TP committee for their approval, which is not on pre-requisite as per the TP Act, causes delay.

• The original Development Plan 1981 of Ahmedabad envisaged provision of green belt in the city periphery. While preparing the town planning schemes, the reserved area for green belt was not taken into account. As a result DP green belt was removed but during the intervening period the entire area got covered with buildings and schemes areas and either side remained unconnected.

• Considerable time passes for implementation of the scheme proposals and collection of incremental contribution.

• Due to delay in every level, estimate of cost of work escalates. • Environmental impact assessment is not evaluated.

Monitoring Plan monitoring has two main objectives:

• The socio-economic and functional efficiency of the performance of human settlement has to be monitored and evaluated so that changes required to improve the quality of life could be identified and put into action through the appropriate measures.

• The plan should be continuously made responsive to the emerging socio-economic forces. Development Plan feels that, during the Plan implementation all aspects of development i.e. housing, transport, work centres, recreation, infrastructure etc., need study and research to make the plan effective in providing high quality living environment. There is also a requirement of monitoring frame work to evaluate the achievement of physical targets prescribed in the Plan and identification of physical and socio-economic change in the city to review the plan policies.

5.4. City Development Strategy (CDS) Ahmedabad After the 74th constitutional amendment act 1992, the urban local bodies in India were given constitutional status and were endowed with power and functions. The city development stratergy approach, supported by the World Bank, was a major step in this direction. This concept was first introduced in India in Tamil Nadu in 1999 where in CDS was prepared for the towns of tirupur and Coimbatore. Ahmedabad CDS was initiated in 1999 as an integral part of a comprehensive approach to urban development. The objective of Ahmedabad CDS is to make the cities sustainable by improving the level and quality of basic services. CDS is a short term plan which extent to a period of five years prepared for Ahmedabad Municipal Corporation Vision and goals of the CDS Formulation of vision and goals are identified in a CDS through a series of consultations with Govt. officials, Institution and public. This makes the process more participatory, and through this process the issues are identified and prioritized.



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The CDS have identified environmental issues identified and these issues are dealt in detail. First the present situation and issues in each section are identified and than based on issues future requirement strategies and action Plans/ tasks are identified along with the concern institutions. The environmental issues dealt by CDS can be categorized in the following way- Environmental services

• Water supply, sewerage system, storm water drainage, solid waste management Living Environment

• Housing and slums- Housing, Slums, Slum Networking Project • Social Amenities- Educational Facilities, Health Facilities, Open Spaces. • Cultural heritage

Physical Environment • Environment – Water, Air quality and Noise Pollution.

Issues Related to CDS CDS is a corporate plan; it is not a statutory Plan like the Development Plan and it’s an optional proposition, the Ahmedabad CDS was prepared by the funding of World Bank and it lasted for a period a period of 3-year. CDS uses the participatory approach for planning, but it major constrains is its implementation. Implementation is a major concern as the financial alternatives are not provided in the plan. The strength of CDS lies in its issue identification, prioritization of these issues and proposal of strategies and actions.

5.5. City Development Plan (CDP) Ahmedabad In Ahmedabad, in May 2005, in line with the Vibrant Gujarat Vision of the Government of Gujarat, AMC and AUDA conceived a six-year-plan to ensure delivery of basic infrastructure services to the entire area under their jurisdiction and set the stage for the next level of development. The Jawaharlal Nehru Urban Renewal Mission (2005-06) also gave the city an opportunity to carry forward this initiative and place the reform process on a higher plane. This would also be an opportunity for the city to undertake a mid-course assessment and re-position its priorities with changing needs within the JNURM framework.

5.5.1. City Development Plan Preparation Process The City Development Plan presents a perspective of and a vision for future development of the city. The framework for preparing CDP as outlined in JNNURM toolkit is presented below in figure 5.5. The key aspect of preparation of CDP is that of involving community in decision process. The city of Ahmedabad has adopted an elaborate consultative process. Consultations The underlying principle of the City Development Strategy is to enable cities move in the direction of becoming more competitive, better managed, livable and bankable. The main objective of the City Consultations was to develop a long-term vision of Ahmedabad’s development through a participatory process involving a wide cross section of citizen including elected representatives, professionals and other stakeholder groups, identifying the most pressing issues facing the city and evaluate strategies to achieve the objective. The stages of consultation process in given below- Phase-I Consultations: City Visioning and Strategy Formulation. Phase-II Consultations- The primary objective was to identify projects, assess possible environmental and social consequences of projects and evolve a management framework.



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Phase-III Consultations: Detailed Project Formulation- The project identified for this are The Sabarmati Riverfront Development Project and Bus Rapid Transit Project.

Issues Related to CDP The City Development Plan is conceived within the JNURM framework, to avail fund from the central government for developing city level infrastructure. The CDP is more of a city development project proposal and lacks statutory status.

5.6. City Development Plan and City Development Strategy Environmental issues in CDP and CDS of Ahmedabad are dealt in detail rather than the Development Plan. They both identify and proposes strategies for environmental issues like environmental services (Water supply, Drainage, Sewerage and solid waste), urban environment (Air, water, Noise) and living environment (Housing and slums- Housing, Social Amenities- Educational Facilities, Health Facilities, Open Spaces, Cultural Heritage). But Development Plan is a statutory plan, while CDP and CDS are corporate Plan has no statutory status. CDP is actually an updated version of CDS and the only difference between the CDS and CDP is that the CDP proposes Financial Operation Plan for the identified projects in each sector. Since CDP is prepared under the JNURM, and since a part of the project will be funded through JNURM this plan implementation will be more viable.

5.7. Inferences and Findings The Plan Preparation Process The Town planning/ Development Act The Town planning/ Development Act specify the procedure for preparing a Development Plan for a city and through this Acts a development Authority is constituted for planning and regulating the development of the city. The Town planning/ Development Act of the cities considered for the study have been enacted at different point of time. The earliest being Delhi Development Act 1957, followed by Gujarat Town & Urban Development Act 1976 and latter The Greater London Authority

Source – CDP Ahmedabad

Figure 5.5. City Development Plan Preparation Process



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Act 1999. Among all these Acts, it is only the Gujarat Town & Urban Development Act 1976, which specify the content of the Draft Development Plan and there were come environmental shortfall that were observed in the content of the Draft Development Plan and they are as follow-

Physical Environment • The content of the Development Plan specifies the use of land in the area, but there is no

mention about the use of water bodies and the river or rivulets. And apart from preventing water pollution there is no mention of preservation of such water bodies from encroachment.

• The Development Plan provides for supply of water, there is no provision to control the ground water extraction which is a major concern in Gujarat.

Living Environment • There is no proposal for reservation of land in the Development Plan for economically

backward class of people or the urban poor who dwell in the slums. There is only provision of land for economically backward class in the Town planning scheme (extent of 10% reservation).

• There is no provision of preservation of areas of social, religious or sentimental value. • The Development Plan does not have provision to identify the riot prone or vulnerable

places which caused major loss in term of life and property to the cities like the riots of 2002.

Delineation of Development Area None of the Acts, of the cities considered for the study specifies the basis or criteria for delineation of development; it is totally left at the discretion of the Government to declare an area as a development area. Delineation of development area is a political decision; hence one cannot justify the present form of the development areas.

London Plan 2004 Delhi Master Plan 2021 Ahmedabad Development Plan 2011

Mayor + Greater London Authority

Delhi Development Authority (DDA)

Ahmedabad Urban Development Authority (AUDA)

The Greater London Authority Act 1999

The Delhi Development Act 1957

Gujarat Town & Urban Development Act 1976

Mayor's Vision + Consulatation of the citizens

DDA's Vision AUDA's Vision

Yes No No

15-20 years 20 years 20 Years

3- months 3-months 2- months

Yes Yes No

Responsible Authority

Act under which the Plan is conceived

Vision

Sustainable Appraisal

Time span of the Plan

Public consulataion period

Exclusive panel Public hearing

Plan

Pre

para

tion

Vision From Development Plan document of Ahmedabad the overall vision of Ahmedabad is not apparent. While in case London and Delhi plan the Vision is clear conceived and environment and sustainability are integral part of the vision. The Development Plan of Ahmedabad or the Delhi Master Plan lacks the initial consultancy process for developing the vision like the London plan. In case of Ahmedabad D.P 1997 and Delhi MPD 2021 the vision of the city is conceived by the concern development authority (an appointed body), while in case of London the Mayor (elected

Table 5.5. Summary of the Preparation Process of the Development Plans



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representative of the city) through a consultation process along with the citizens conceives the vision, making the process more democratic and participatory. Sustainable Appraisal London Plan goes through a Sustainable Appraisal process during the preparation stage, which increases the environmental credibility of the Plan, while Delhi and Ahmedabad Plan has no such provision during the preparation process. Public consultation/ Inspection by Public London Plan and the Master Plan of Delhi have a public consultation period of 3-Months, while citizens Ahmedabad has only 2-month time for going through the Development Plan and making suggestion. In case of Ahmedabad the people who have seen the plan are unanimous in their opinion that a two-month period to comment on such a massive, comprehensive and long-term Plan is woefully inadequate, Particularly when the facilities for study and dialogue are poor and the documents not easily available during the period. The suggestion and objection to the London Plan and the Master Plan of Delhi goes through an exclusive panel public hearing where all the objection and suggestion are considered and a report is sent to the concern authority for reflection. The Exclusive panel in case of London is appointed by the elected Government (democratic), while in Delhi it is appointed by the Delhi development Authority. In case of Ahmedabad Development Plan no such panel is appointed. The London plan preparation process is more sensitive towards environment and is more participatory than the Delhi and Ahmedabad Master/ Development Plan.

Environmental Consideration in the Development Plan Environment, sustainability and green cities are very common word used in formulating the objective of a Development Plan. In case of environmental consideration in the plans, both the London and Delhi Plans have tried to incorporate their environmental objective in the Plan. While in case of Ahmedabad it is just another common word. The environmental objective of the Plan, is no where reflected in the Plan, except for some provision in the GDCR. As mention earlier the environmental attitude in Ahmedabad have not changed much over a decade, the same environmental essay of 1981 have been repeated in the plan prepared in 1997 with minor language modifications. This actually portrays the attitude of the Ahmedabad Urban Development Authority towards environment. The London and Delhi Plans are much more sensitive towards environment than the Ahmedabad Development Plan. The levels of the environmental consideration in the plans are given below in the table5.6. Table 5.6. Environmental Components in the Plans


To accommodate London’sgrowth within its boundarieswithout encroaching onopen spaces and to makeLondon a more attractive,well-designed and green city

Creation of a sustainablephysical and socialenvironment for improvingquality of life

To create good environmentand to minimize theenvironment pollution

Support the establishmentof green Industries andgreen practices

Spell out norms for industriesbased on environmentalconsideration

No major environmentalconsideration except forregulation to control effluentdisposal

Industries

Objective considering Environment

Envi

ronm

enta

l Com

pone

nt C

onsi

dere

d



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Table 5.6 Environmental Components in the Plans (Continued)


Reduction of waste,Municipal solid wastemanagement strategy for thearea, spatial policies, criteriafor selection of sites forwaste management anddisposal, waste producedand disposal method.

Recycling of solid waste,alternative to landfills like-vermiculture, fossilization andcomposting, constitution ofWaste Minimization Circles andimplementation and monitoringof Bio-Medical Wastes( Handling& Management) Rules 1998

Waste is of least concern, nostudy of solid waste situationand no proposal formanagement.

Better use of aggregates, re-use of construction anddemolition waste

No policy for Minerals No policy for Minerals

Strategies for -integration ofland use and transportpolicy, promotingsustainable design andconstruction, air qualityassessments at planningstage, promoting cleanertransport fuels, modeling ofscenarios, monitoring plan

Source of pollution, Stress onpublic transportation policy,control of designated industries.

Mentions about problem of Airpollution, DCR mentions thatcompetent authority maystipulate conditions forcontrolling air pollution.

Promoting Energy efficiencyand renewable energy, zerocarbon development,promoting technology anddesign to conserve energy.Energy assessment ofproposed majordevelopments

Concept of energy efficiency inbuildings, Zero-fossilDevelopment and Energy Audit.Promoting use of renewableenergy as an mandatoryrequirement in buildings like useof Solar energy

Only mention of agency dealingwith power supply.

Demand for Water supplies,Water quality and strategies,maximizing rainwaterharvesting opportunities,using grey water recyclingsystems, repair orreplacement of water supplyinfrastructure

Demand for water supplies,promoting rainwater harvestingat building level and site level,concept of "Zero run-offdrainage" protecting the ecologyof aquifers, guidelines for siteplanning to promote groundwater recharge, waste waterrecycling.

Demand for water supplies,need to investigate sources ofsupply, existing water supplycoverage, GDCR provides forprovision of percolation well forbuilding unit exceeding 1500 sq.mtrs for promoting ground waterrecharge. Mentions aboutproposal for developingTalav/lakes

Improving the presentinfrastructure in order tohave safe, reliable systemand minimizesenvironmental damage

Provision of low cost sanitationsystem where regular system isnot available, Decentralization ofSTP's at sub city level andmentions possibility ofrecovering energy/ gas as fuelfrom sewerage

Existing problems, need toredesign, enlarge and extendthe present sewerage system

Envi

ronm

enta

l Com

pone

nt C

onsi

dere

d

Planning for Waste

Planning for Minerals

Sewerage system

Water

Air

Energy



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Table 5.6. Environmental Component in the Plans (Continued)

• Environment is a major force driving London and hence the Plan proposes to use resource

efficiently, hence it proposes to accommodate growth without encroaching on green space, while Delhi and Ahmedabad are increasing their spread of the cities and hence loosing out the green space for development.

• London Plan proposes to use natural resources more efficiently, increase its re-use of resources and reduce levels of waste and environmental degradation, while no such concern are shown in Ahmedabad Development Plan, while Delhi master plan attempts to re-use resource it water resource.

• The London Plan gives an opportunity to plan growth in ways that make better use of key resources such as land, buildings and construction materials, water, energy and waste, it proposes policies for land utilization, re-use of construction material, use of grey water and harvesting rainwater, use of renewable energy and Energy assessment of building and


Sustainable Drainage,promoting biodiversity, floodplain and flood defense,promotion of Designguidelines

Source of pollution,identification of measures forrejuvenation of the river.

Source of pollution, mentionsproposal for river frontdevelopment

spatial Strategies,transportation strategies

Permissible limits,implementation of Noisepollution (level) rules 2000,measures to prevent noisepollution

Mention about the problem ofnoise pollution in some areas-no details provided.

Impacts of climate changeand strategies

issue not considered Issue not considered

Strategies dealing withHazardous substances

Location and storage based onthe disaster management plan.

No consideration

Affordable housing,Improving conditions forwalking and cycling, designconsideration for disabled,children and old people,developing the open spacesand recreational area,biodiversity and natureconservation, conserving thebuilt heritage/ historicenvironment and protectingthe view. social infrastructure(health, sport, security andeducation)

Housing for poor, planningnorms for recreational andgreen areas, declination ofheritage zones, conservation ofbuilt heritage, socialinfrastructure provisionstandards (health, education,sport, security and education)

Social infrastructure provisionstandards(health, education,sport, security and education)based on Delhi master plan,Provision for physicallyhandicap in building designused by them, compulsoryprovision of trees duringbuilding approval, Slumupgradation, conditions for siteconstruction based onenvironmental consideration,proposes to introduce specialheritage conservationregulation

Hazardous substance

Living Environment

River

Envi

ronm

enta

l Com

pone

nt C

onsi

dere

d

Noise

Climate change



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waste management. While incase of Ahmedabad no such attempts are made. While Delhi master plan provides for rainwater harvesting, recycle of waste waster, use of non renewable energy, energy assessment of buildings and solid waste with innovative methods to prevent the need of landfills.

• Ambient noise and Air quality along with biodiversity is considered in the London Plan. Ahmedabad Development Plan has a mentioned about the air and noise pollution problem but no effective remedies have been proposed. Delhi is still trying to reduce the Air pollution and try to reduce Noise pollution through development policies.

• The London Plan as well as the Delhi Master Plan has given enough thought about disaster management while Ahmedabad has to yet evolve a strategy.

• The London Plan gives enough consideration for housing affordability, housing deficits and culture and ethnic composition of the population and provides policies for it. While in Delhi the housing requirement is calculated along with the composition of housing but lack consideration for affordability of housing and the culture of the people. Ahmedabad is an extreme case where it gives details of vacant houses, slum and housing deficits, but it doesn’t consider affordability of housing and culture. The plan proposes only to deal with 25% of the slum population and it does not give the detail composition of the housing type proposed.

Other issues influencing Environment The Population - existing population and projected population figure are very important to determine the level of services the city should provide today and in future. Resources like land, water are scare; population beyond holding capacity will lead to deterioration of over all environment. The whole concept of population projection need to questioned, since all the estimation of infrastructure, amenities and other services are solely based on it. Land use- most of the land use decisions are dominated by economic criteria’s, the land suitability study focuses mostly on potential of developing the land. Land use decision plays the most important role for protecting and improving the overall environment. The land use classification also needs to be consistent in order to understand the kind of land use changes that a Development Plan has proposed. Flood hazards, Earthquake and Disaster management- the Development Plan of Ahmedabad give no consideration for disaster management. The attitudes towards such disasters are re-active, after the disaster certain changes were made in the GDCR. The Ahmedabad D.P is yet to give a comprehensive pro-active thought for a disaster management. Implementation and Monitoring Implementation and monitoring are the most important component of the Development Plan, what is the use of the Development Plan document if the proposal and the strategies are not implemented. The past experience of the previous Development Plan of Ahmedabad reveals that there has been little practical convergence between the Development Plan and the actual development. The Delhi Master Plan and the Ahmedabad D.P only prescribe development control norms, which are apparently and frequently violated leading to growing variation between the plan and the actual city of the ground. In case of London Plan, it prescribes annual phasing plan for phasing the London plan proposals and it also identifies the stakeholders and their contribution, which is very much lacking in Ahmedabad and Delhi Plan. Apart from implementation monitoring of the plan is very essential.



93

Incase London Plan lays down objective-wise performance indicator for the plan monitoring and published an annual monitoring report, based on the report suitable changes are made in the plan, this kind of mechanism are presently absent in Master Plan of Delhi and Development Plan of Ahmedabad. But Master plan Delhi at least has Monitoring framework and there are attempts made to setup a monitoring unit (Table 5.7. gives the summary of the implementation and monitoring programme of each plan). Table 5.7. Implementation and Monitoring


Indicative average annual phasingof growth in jobs and homes,Phasing of public transportcapacity increases and mainstakeholders and their contribution

Development code Development Control Regulation,Formulation of Draft T.P. Scheme,stakeholders involvement.

objective-wise London Planperformance measuring indicators,publish annual monitoring report-state of strategic planning inLondon and set priorities for thecoming year

Monitoring framework fordevelopment, monitoring unit

Mentions about the need for amonitoring framework

Monitoring

Implementation



94

CChhaapptteerr 66.. CCoonncclluussiioonnss aanndd PPrrooppoossaall 6.1. Conclusions Over time with the increasing environmental problem in cities, various attempts were made to protect and prevent environmental deterioration. In India, today there are about 200 legislation, policies and regulation to protect environment and many more yet to come. Even after existence of all these planning and protective laws, the environment of cities in India is deteriorating. City like Ahmedabad have been preparing Development Plan for past two decades and hence the Development Plans contribution towards its environment is becoming a concern. From the previous chapter it is unmistakably evident that lack of environmental consideration in the statutory Development Plan is partly responsible for the environmental deterioration in the Ahmedabad. The London Plan and Delhi Master Plan have tried their best to incorporate their respective environmental issues in the Plan, while the Development Plan of Ahmedabad only talks about the environment as a part of its aim, but this aim doesn’t reflect much in the Development Plan; apart to it concern about air and water pollution. Around the globe the environmental emphasis has changed because of the realization that environmental considerations should not be limited to concerns about just pollution control but should be more positive in aiming to create more comfortable, pleasant and stimulating surroundings natural and manmade environments. All the Plans considered for the study were prepared in different point of time, the Ahmedabad Development Plan was prepared in 1997, London Plan in 2004 and Delhi Master Plan in 2005, hence it is not actually desirable to compare London Plan and Delhi Plan with Ahmedabad D.P. But after comparing the last two Development Plans of Ahmedabad (1981 and 1997), it can be concluded that the attitude towards environment in Ahmedabad have not changed for more than a decade. Planning is a continuous process, with time new issues emerge and new legislations are enacted to protect environment. The Development Plan is a long term plan and hence it can’t afford to be static and rigid, it needs to be continues process where there should be timely incorporation of the emerging issues and the new legislations in the Development Plan. The development planning process of Ahmedabad needs to be more democratic, like the case of London Plan. Ahmedabad Development Plan needs to incorporate the public consultancy mechanism before preparing the Plan. The public consultancy will help the development authority to make the whole planning process more participatory and will help to understand the citizen’s aspiration towards the city. Through the consultancy process a vision of the city can be proposed with public and authorities co-operation. Apart from this, the duration two month for public inspection of the Development Plan is inadequate to serve the purpose within the mention time, while the citizens of London and Delhi get a period of 3 month for public inspection, in order to raise objection and suggest changes. The content of the Draft Development Plan in town planning act needs to be review since there are certain changes required as pointed out in section 5.2.3. The environmental components should be given more importance in the content, which will help to preserve and protect the environment of the area. Although a significant amount of time and resource are spent, AUDA still does not have a comprehensive, up to-date database, environmental components are not addressed explicitly and study maps do not cover all ecological characteristics. The whole planning process is affected due to lack of up-to-date base maps, and limitations of data create difficulties in quantifying and assessing the existing situation. Hence there is a need to build a good accurate and reliable data base for the city. Apart from building good accurate database and maps, there is also a need to address the current environmental issues in the Development Plan. This would help in making the Development Plan more sensitive towards the environment and will protect and enhance the environment of the Ahmedabad.



95

Preparing an environmental sensitive Development Plan is the first step, but there is also required that the Development Plan is properly implemented within the plan period. Like the areas proposed to be developed as open space in the Development Plan 1987 have not been implemented and thus have now been encroached upon by unauthorized development often leading to uncontrolled and haphazard development. This is due to either lack of will shown by the authority to implement the plan or due to financial constrain. There is a need to set up a monitoring unit to monitor both the implementation of the plan and the functioning of the authority and publishes a performance review, which would help in making timely adjustment in the plan. There are even problems in caused due to delay in sanctioned Development Plan/ town planning schemes by government. Like the Development Plan prepared in 1997 was sanctioned in May 2002. Sanctioning of the Plan is a political issue and looking at the present political system it a difficult proposition to expect any speedy sanction. Even the Town Planning Scheme which is considered by the Development Plan as an important instrument for implementing the plan are delayed, since time limit is specified in 1976 town planning act for publication of draft schemes but there is no time limit for Town planning officer to complete the scheme. Development Plan is an important mechanism for development of an urban area, but in real life development is taking place on it own without any concern for the plan. Hence the Development Plan remains a costly piece of document which doesn’t consider environment and the need of the area and the people. Hence present environmental problem of Ahmedabad is partly due to lacuna in the development planning system. Based on the lacunas identified in the study, an attempt is made to prepare a framework for preparing an environmentally sensitive Development Plan.

6.2. Proposal Based on the finding of the study, an attempt is made to prepare a framework which would help in conceiving an environmental sensitive Development Plan for Ahmedabad. This framework is divided into three major heads, that is -

• The Plan Preparation • The Development Plan Document and its Components • Implementation, Monitoring and Review

6.2.1. The Plan Preparation Delineation of Development Area Delineation of development area is a political issue. The present odd shape of the Ahmedabad development area is a product of a political decision, which includes town as far as 30 km away and ignores developing area 6km away. There is an urgent need to re-define the boundary of the Ahmedabad urban development area, and the decision should be based on a scientific study and not political interest. Vision The presently the vision of Ahmedabad is not apparent in the Development Plan document. Before the Plan is prepared, there should be a public consultancy process carried out. The public consultancy will help the development authority to make the whole planning process more participatory and will help to understand the citizen’s aspiration towards the city. Apart from public participation there is also a need of involving the state government, the local bodies, other authorities and department functioning in the development area, together they can develop a vision for the development area. The vision should also consider the state and national level policies.



96

Identifying and Prioritizing the Issues Presently the development authority identify the issues, the process can be made more participatory involving public, the local bodies, other authorities and public institutions functioning

Ahmedabad Urban Development Area

Existing

Delineation of the Development Area

The State Government

Based on a Scientific Study

Development Authority

Political Decision

Vision Existing Policies-

State / Central

Public Participation

Identify and Prioritize Issues

In General Environmental

The Town Planning & Urban Development Act

The Content of the Development Plan

Addition in the Act- refer section 5.2.3.

Inspection by Public 2- Months

Option 1- Inspection by Public – 3 Months

Local bodies, other Authorities

and public Institutions

Option 2- Improve the Facilities for Public inspection

Exclusive Panel hearing required to make the process more participatory

Objection & suggestion considered by the Development Authority

Development Plan

Existing

Proposed Additions

Proposed Additions

Figure 6.1. Proposed Framework for Plan Preparation



97

within the development area. Through this process the issues should be clearly identified as general and issues of environmental importance and further they can be given priority. The Town planning and Urban Development Act Content of the Development Plan The environmental components should be given more importance in the content, which will help to preserve and protect the environment of the area. The environmental component observed are-

• The content of the development specifies the use of land in the area, but there is also need to specify the use of water bodies and the river or rivulets. And apart from preventing water pollution, it should also include preservation of such water bodies from encroachment.

• There is need for reservation of land in the Development Plan for economically backward class of people or the urban poor who dwell in the slums.

• The Development Plan provides for supply of water, it also needs provision to control the ground water extraction which is a major concern in Gujarat.

• There is a need for preservation of areas of social, religious or sentimental value. • The Development Plan should have provision to identify the riot prone or vulnerable places

which caused major loss in term of life and property to the cities like the riots of 2002. The Inspection by Public The duration two month for public inspection of the Development Plan is inadequate to serve the purpose within the mention time, while the citizens of London and Delhi get a period of 3 month for public inspection, in order to raise objection and suggest changes. There is a need either to increase the time frame to 3 month or improve the facilities for public inspection, like making the plan available on time, making the plan available online and copies for all local bodies functioning within the area. Apart from this there is also a need for appointing an exclusive panel for hearing the suggestion and objection towards the plan and this panel will submit a report to the authority about the changes required in the Development Plan. This process will help in making the process more participatory and democratic.

6.2.2. The Development Plan Document and its Components Figure 6.2. Framework for the Development Plan Document Database and Studies Although a significant amount of time and resource are spent, AUDA still does not have a comprehensive, up to-date database, environmental components are not addressed explicitly and study maps do not cover all ecological characteristics. Hence there is a need to build a good accurate and reliable database for the city. The kind of database the authority should build and update is given below.

Develop an accurate and reliable database and conduct relevant studies

Environment components to be considered

Acts, regulation and Policies to be integrated in the Development Plan

Development Plan



98

• Demographic: population size, population distribution in relation to holding capacity, age sex structure, household size, rate of migration, causes of migration and Education level.

• Accurate base map of the development area. • Existing Landuse map– including computation of FSI consumed. • Topography, soil, slope details (contour map) and climate data. • Existing levels of infrastructure – road, water supply, sewerage, storm water drainage,

power supply, communication networks. • Details of proposed and ongoing city level projects and their implementation status (both

public and private) • Environment: Air quality, Water potential and quality (surface water, ground water and

piped water supply) and noise level (mapped within the Development area), access of population to safe drinking water, access to sanitation, removal of solid waste.

• Transport: traffic volume, model split, trip length, trip purpose, vehicle ownership, vehicle population, age of vehicles, public transport

• Housing: Slum and squatter settlements, housing type and composition, distribution of households by income, vacancy rate and housing stress areas.

• Economic Aspects: occupation, Income distribution, Employment, Participation rate, Employment in different sectors and shifting pattern.

• Industries: Type and scale of industries • Social infrastructure: level and distribution of Health facilities, distribution of police and fire

services, distribution of recreational facilities and level and distribution education facilities. • Natural Disasters: Floods intensity areas & effected population, Earthquake and any other

natural disasters etc. Studies Required in Ahmedabad The various kinds of studies which would help in conceiving the Development Plan are given below.

• Land Suitability Study- based on environmental consideration and anticipation environmental impact.

• Holding Capacity of the city based on its natural resource. • Detailed hydro geological study is required to access the utilization and developmental

potential of the groundwater system quantitatively in the AUDA area. • A systematic survey involving collection of groundwater sample for quality analysis is

required to access the potential of the water precisely. Environment Components to be Considered The present level of environmental deterioration is because of lack of Environmental concerns in the Development Plan. The study have tried to identify the lacuna in the present Development Plan and thereby proposing the environmental components that need to be integrated in the Development Plan. The following component are listed below, there is also an attempt made to list down some new environmental concept in their respective components.

• Industries: Integrate Green practices, integrating eco-industrial estate development, development norm should consider environment, clearly spelling out strategies for managing industrial pollution and waste, integrate the rule the Environment (Siting for Industrial Projects) Rules, 1999 relating to planning industrial area and integrate the Acts dealing with industrial pollution.

• Planning for Waste: the Development Plan should assess the waste generated and develop waste reduction, management and handling strategies. Promote recycling of waste, Identify the site for safe disposal of waste and even alternative to landfills can be developed like vermiculture, fossilation and composting. The waste should be handled and



99

managed according to Hazardous Wastes (Management and Handling) rules, 2000, Municipal Solid Waste (Management and Handling) Rules, 2000, and Bio-Medical Waste (Management and Handling) rules, 2003.

• Planning for Minerals: with the development of cities there is increase in demand for construction material. Since most of the construction materials are derived from nature. There is a need of timely intervention before the resources get exhausted. The Development Plan can promote the better use of aggregates, re-use of construction and demolition waste.

• Air: there is a need of integration of land use and transportation policy. Identify the pollution sources and carry out air quality assessment, promote cleaner transportation fuels, prepare a Monitoring Plan and integrate the Air (Prevention and Control of Pollution) Act, 1981.

• Energy: assess the demand for power, promote energy efficiency and renewable energy; introduce concepts like energy efficiency in building, zero-fossil development and energy audit. Promoting use of renewable energy (solar energy) through development code. Requirement for energy assessment of proposed development.

• Water: assess the demand for water supplies, maximizing rainwater harvesting opportunities, guidelines to promote ground water recharge, waste water recycling and integrating The Water (Prevention and Control of Pollution) Act, 1974

• Sewerage: installing reliable system and prevent untreated disposal, decentralization of STP’s can be an option.

• Noise: spatial strategies to reduce noise pollution, implementation of Noise Pollution (Regulation and Control) Rules, 2000

• Living environment: provision of affordable housing and improving condition for pedestrian and cyclist. Design consideration for disabled, children and old people. Protection and development of open spaces and recreational area. Delineation and conservation of heritage / historic environment and standards for social infrastructure provision.

• Disaster Management: along with Development Plan, prepare a disaster management plan for Ahmedabad.

• Plan for natural and Man-made Hazards. Other Acts, Regulation and Policies to be Integrated Below is the list of Acts that needs to be considered in the Development Plan. Environment Acts

• The Indian Wildlife (Protection) Act, 1972 • The Water (Prevention and Control of Pollution) Act, 1974 • The Air (Prevention and Control of Pollution) Act, 1981 • The Chemical Accidents (Emergency Planning, Preparedness and Response) Rules, 1996 • The Environment (Protection) Act, 1986 • The Environment (Siting for Industrial Projects) Rules, 1999 • Hazardous Wastes (Management and Handling) rules, 2000 • Municipal Solid Waste (Management and Handling) Rules, 2000 • Noise Pollution (Regulation and Control) Rules, 2000 • Bio-Medical Waste (Management and Handling) rules, 2003 • Draft National Environment Policy, 2004 • EIA- Draft Notification for projects, 2005

Other Acts related to Planning • The Easement Act, 1882 • The land Acquisition Act, 1894



100

• The Bombay Provincial Municipal Corporation Act 1949 • Indian Electricity Rules, 1956 • The Gujarat Municipal Act, 1963 • The Gujarat town Planning and Urban Development Act, 1976 • The Constitution of 74th Amendment Act, 1992 • Draft National Slum Policy, 1999 • The Gujarat State Disaster Management Act, 2003 • Draft National Urban Housing and Habitat Policy, 2005

6.2.3. Implementation, Monitoring and Review Figure 6.3. Framework for Implementation, Monitoring and Review Implementation Preparing an environmental sensitive Development Plan is the first step, but there is also required that the Development Plan is properly implemented within the plan period. To achieve timely implementation an annual phasing plan of each component of the Development Plan can be formulated and prioritizes can be decided. Along with phasing plan all the main stakeholders and the implementation agency should identified and their role in the implementing the Development Plan needs to be specified. The Town Planning Scheme or Land Acquisition are the instrument available for implementation of the Development Plan, but the choice of the instrument for implementing a particular development project or any component of the project should be specified in the Development Plan. Apart from all these, the Development Plan will also propose a detailed

Annual Phasing Plan

Development Plan

Stakeholders and Implementation Agency

The implementation Instrument

Development Code

Relevant Acts, Regulation and Policies

Monitoring Framework

Performance Measurement AUDA D.P

Annual Monitoring Report

Adjustment in the Development Plan



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development code, which is commonly known as General Development Control Regulation in Gujarat. The relevant Acts, Regulation and Policies mentioned earlier in the section 6.2.2 should also be integrated in the development codes. Monitoring and Review The Development Authority will prepare a Monitoring framework for the components of the Development Plan and specify the period for monitoring. The relevant Acts, Regulation and Policies mentioned earlier in the section 6.2.2 should also be integrated in the monitoring framework, to prevent violation of the legislations. Apart from this an annul Monitoring report will be prepared by the authority and suitable adjustment made to the Development Plan based on the annual report published. To assess the credibility of the Authority and the Development Plan, an exclusive panel should be appointed by the state Govt. to measure their performance. This process will help in carrying out timely adjustment in the development planning process and prevent damage to the environment.



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Development Plan and Environment - A case of Ahmedabad

Year Relevant Acts, Program's, Events andPolicies , amendments

Country Salient features / remark

2700-1700 bc.

Indus valley civilization India Advanced by 2500 b.c -these cities were laid outaccording to some preconceived plans, with highstandards of public health. The people of Mohenjo-Daroand Harappa took aims to plan baths, lavatories, drainsand fresh water tanks. This reflected their concerns forcommunity sanitation and health

18th -19th

Industrial Revolution England landscape of English was reshaped by the industrialrevolution.Industrialization was accompanied by rapid urbanization

1845 The great Indian peninsular railway company England/India 1852 made trial runs

1859 Forest and Herbiage Act southern Africa Govt,. Of Cape town colony- allowing the state tointervene and take over areas of wild and forestthreatened with destruction

1860 Bombay Irrigation Act India Sec. 61 penalizes the person who corrupts or fouls waterof any canal.

1860 The Indian penal code India Chapter XIV and particularly sec. 268 and 277 deal withpublic nuisances and offences affecting the public healthand safety

1864 Appointment of the sanitary commissions India for three presidencies of Bengal, Bombay and madras-under direction of the royal sanitary commissionappointed by British parliament in 1859

1864 Indian forest department established byBritish

India India is one of the First countries in the world to havestated scientific management of its forests. Dr. DietrichBrandis, a German Forest officer was appointed asInspector General of Forests in 1866. Established havingrecognized the need to have a premier forest service tomange the varied natural resources of the vast countryand to organize the affairs of the Imperial ForestDepartment

1870 Railway colonies and towns originated India1872 Bombay Municipal Act India The duties of the Corporation were set out1873 North India Canal and Drainage Act India prevent damage to any stream or river1882 Indian Easements Act India allows private rights to use a resource that is,

groundwater, by viewing it as an attachment to the land. Italso states that all surface water belongs to the state andis a state property and protects riparian owners against‘unreasonable’ pollution by upstream users

1878 comprehensive Indian forest act India supersede a preliminary act of 1865, Forests were dividedinto reserve forests, protected forests and village forests.Several restrictions were imposed upon the people’srights over forest land and produce in the protected andreserved forests.

1892 1st national park created America yellow stone1894 The Land Acquisition Act India was enacted for the purpose of compulsorily acquiring of

land required for public purpose or for purpose ofcompanies and for determination of the amount ofcompensation to be paid on account of such acquisition

1896 The code of Criminal Procedure India sec 133 and 144 provide for removal of public nuisance.

1897 Indian fisheries Act. India establishes two sets of penal offences whereby thegovernment can sue any person who uses dynamite orother explosive substance in any way (whether coastal orinland) with intent to catch or destroy any fish orpoisonous fish in order to kill

Appendix - A

Urban Planning and Environment- Acts and Regulations

Rohit NadkarniSchool of Planning,CEPT 105 Appendix- A


1898 1st city improvement trust in the country -Bombay

India In response to the plague epidemic of 1896, through anAct of the Parliament, It undertook a host of measures toimprove sanitary and living conditions in the city, repealedin 1925

1900 1st international environment conference London topic was the protection of wildlife of Africa1900 Kharagpur built by the Bengal Nagpur

railwaysIndia Railway settlement

1903 City Improvement Trust -Mysore India1907 Jamshedpur built India Modern layout1908 Indian Ports Act India Enactment relating to ports and port charges. Provides for

rules for the safety of shipping and conservation of ports.

1909 British housing and town planning act Britain legislation to bring the new residential standards into moregeneral use

1911 City Improvement Trust -Calcutta India1911 Delhi declared the new capital of British India

Empire India

1912 Hyderabad improvement trust India1913 Town planning acts was enacted in Bombay India On the lines of the British housing and town planning act

1909. This enabled local authorities to regulate suburbandevelopment's layout and density

1915 Patric Geddes visited India India Geddes unsparingly explained that survey was moreimportant than good surface planning. The planner mustconsider the citizen's potential and evolution within hisenvironment

1919 The Uttar Pradesh Town Improvement Act India

1919 City Improvement Trust -Lucknow, Kanpur India

1919 Delhi improvement trust India Extension of U.P. Act 19191919 Poisons Act India1920 Town planning acts was enacted in Madras India On the lines of the British housing and town planning act

19091920 city improvement trust -Allahabad India Created under the united provinces town improvement act

of 19191922 Town Improvement Act -Punjab India brought into effect only in1936 by constituting Lahore

Improvement Act.1923 Indian Boilers Act India prohibits the use of unregistered and uncertified Boilers

1927 Indian forest Act India is one of the many surviving colonial statutes. It wasenacted to ‘consolidate the law related to forest, thetransit of forest produce, and the duty leviable on timberand other forest produce’.

1928 the ghandian view of the simple life India1928 The protection of rural England England the growth of agrarian parties in eastern Europe to defend

the peasants from exploitation by the city dwellers

1931 New Delhi planned and design by Edwardlutyens completed

India New capital of India designed on modern town planningprinciples

1933 Bombay improvement act merged withBombay municipal corporation.

India

1936 The Nagpur Improvement Trust Act India Certain schemes of the Corporation such as undergrounddrainage scheme, schemes for improvement of roadjunctions are executed by the Trust on behalf of theCorporation

1937 town improvement act -Nagpur India1945 The city of Bangalore improvement Act India Repealed in19761945 The Kanpur Urban Area (Development) Act India

1945 Minamata Disease Japan suffering is all a result of the very wrongful and negligentactsof the Chisso Corporation who dumped mercury into thesea water andpoisoned the people of Japan

1945 Hiroshima bombing Japan



1946 Madras improvement act India1946 the health survey and development

committee (HSDC)India it discussed several aspects of town planning, while

dealing with problems of improving mans physicalenvironment.

1946 The blood of the village India1947 Mines and mineral (Regulation and

Development) ActIndia lays down the legal frame-work for the regulation of mines

and development of all minerals other than petroleum andnatural gas

1948 The West Bengal Land Development andPlanning Act

India

1948 The Bihar Restriction of uses of Land Act India1948 The Madhya Pradesh Town Planning Act1948 The Factories Act India Was the first to express concern for the working

environment of the workers. the 1987 amendment to thefactories act empowers the state to appoints site appraisalcommittees to advise on initial location of factories usinghazardous process and deal with disposal of watereffluents

1949 The Bombay Provincial MunicipalCorporation Act

India Chapters XII and XVII and sections 310 to 314 of this actdeal with the subject of pollution

1950 Environment issues- reflected in theconstitution of the Republic of India

India

1950 The Madras City Improvement Trust Act India1951 Industries (Development and Regulation) Act India An Act to provide for the development and regulation of

certain industries 1951 Town planning Act - Bihar India1951 The Hyderabad city improvement Act India1951-56

1st five year plan India Need to link up various solutions to the housing problemsof India permanently with sound town and countryplanning.

1952 Mines Act India seeks to regulate the working conditions in mines byproviding measures to be taken for the safety of theworkers employed therein

1954 Bombay town planning Act India incorporated the provisions of Bombay Town PlanningAct, 1915, and in addition made it obligatory on every locaauthority (barring village panchayats) to prepare adevelopment plan for the entire area within its jurisdiction.Came into force in 1957

1956-61

2nd five year plan India Each state should have a phased programme for thesurvey and preparation of master plans for all importanttown. These should provide for integration of land use andzoning principles in each town or area with a view toobtaining the maximum amount of efficiency andeconomy in working and living condition. town and countryplanning legislation should be enacted in all the states andnecessary machinery for its implementation should be setup.

1956 River Boards Act India enables the states to enroll the central government insetting up an Advisory River Board to resolve issues ininter-state cooperation

1956 Slum areas (Improvement and Clearance)Act

India

1956 The Orissa Town Planning and ImprovementAct

India

1956 Indian Electricity Rules India regulates and controlles the horizontal and vertical cleardistances to be kept open to sky near vicinity of gridlines.

1957 Delhi Development Act India Provision for master plan and replaced the Delhiimprovement trust

1958 Ancient monuments and Archaeological Act India

1959 The Assam Town and Country Planning Act India

1960 the Radioactive Protection Act U.K.



1961-66

3rd five year plan India Master plans for 61 class i and class ii cities and regionalplan for 11 regions. Central regional and urban planningorganization. A general approach to industrial location wasadopted in the early sixties.

1961 the Karnataka Town and Country PlanningAct

Amended in1965- i) Constitution of a high power StateTown Planning Board at State level for evolvingpolicies, programmes on Town Planning.ii) Constitution of Planning Authorities at City and Town

level for preparation of Development Plan andenforcement.

1961 The Gujarat Pancahyat Act. India this act enables the district panchayat to make bye-lawsfro purification and protection and protection frompollution of sources of water and for other connectedmatters

1962 American movements date its beginning toRachel Carson’s book on pesticide pollution,Silent spring

U.S.A the bible and founding event of the modernenvironmentalism

1962 The Atomic Energy Act India1962 1st Delhi Master Plan India Aim- to ensure that the spatial pattern of development,

and use of land, could conform to the development planand infrastructure and services could be laid out to thematch the same.

1962 Petroleum Pipelines (Acquisition of right ofuser in land) Act

India

1963 The Gujarat Municipal Act. India this act include in the functions of municipality the dutyand functions of regulating or abating offensive ordangerous trades or practices, taking steps to preventdamages to the health of the inhabitants from theinsufficiency or unwholesomeness of the existing watersupply

1963 Fazlore rehman committee on urban landpolicy

India To examine the problems of urban land and suggestpolicy measures on the subject

1965 Solid Waste Disposal Act. U.S.A U.S. Congress financed a statewide survey of dumps andlandfills to better understand the scope of waste disposalproblems in the U.S. The Act also provided more wastemanagement safeguards

1965 The nuclear Installation Act U.K. Establishes the nuclear licensing system and third partyliability obligations

1966 The Maharashtra Urban and RegionalPlanning Act

India to prepare regional plans, development plans arid townplan-ning schemes under the provisions of theMaharashtra Regional and Town Planning Act

1968 Insecticide Act India ensure availability of quality, safe and efficaciouspesticides to the farming community

1969 4th five year plan Legislative process was initiated for prevention of watercourses

1969 National environmental protection act U.S.A mandating all federal agencies and departments toconsider and assess the environmental effects ofproposals for legislation and other major projects.

1970 Establishment of the National Committee ofEnvironmental planning and co-ordination.

India The NCEPC functioned as an apex advisory body in allmatters relating to environmental protection andimprovement. However due to bureaucratic problems, thatNCEPC faced in coordination with the Department ofScience and Technology, it was replaced by a NationalCommittee on Environmental Planning (NCEP) withalmost the same functions

1970 the German green party Germany1970 The Maharashtra Pollution Control Board the first state pollution control board in India to begin

operating1970 The Radiological protection Act U.K. the purpose of disseminating information about the

protection of mankind from radiation hazards1971 Radiation Protection Rules India1971 The Tamilnadu Town and Country Planning

ActIndia the first Master Plan did not come until the Chennai

metropolitan development authority was set up in 1971,although the Act was of 1920



1972 Stockholm Conference on Environment (theMagna carta on human environment)

International Cautioned that the natural resources of the earth,including air, water, land, flora and fauna and especiallythe represented samples of natural eco-systems must besafeguarded for the benefit of the present and futuregenerations through careful planning and management,as appropriate inter generational equity. India a signatory

1972 The Indian Wildlife (Protection) Act India provides for the protection of birds and animals and for allmatters that are connected to it whether it be their habitator the waterhole or the forests that sustain them.

1972 The Pesticide Control Act U.S.A control of pesticides for reduction of unreasonable risks toman and the environment

1973 Chipko Movement India1974 Toxic substance control act U.S.A1974 The Water (Prevention and Control of

Pollution) Act, amended 1988India Passed for restoration and maintenance of

wholesomeness and cleanliness in our national aquaticresources. To implement the provisions of the act, centralstate pollution boards were formed. It vets authority in thestate pollution control board to establish and enforceeffluent standards and the quality of receiving waters. theact provides for prevention and control of water pollutionand the maintaining or restoring of wholesomeness ofwater

1974 The Pollution Control Act U.K. provides various regulatory and control measure to wastesdisposal

1974 The Gujarat Pollution Control Board started India As a requirement of the The Water (Prevention andControl of Pollution) Act, to implement the provisions ofthe act the pollution control board was formed

1975 High powered committee on urban waste India GoI set up a high-level committee for review of problemsof urban waste in India. The committee, in its report made76 recommendations, covering eight important areas ofwaste management

1975 The Andhra Pradesh Urban Area(development) Act

India

1976 The Resource Conservation and RecoveryAct

U.S.A protect human health and the environment from thepotential hazards of waste disposal, to conserve energyand natural resources, to reduce the amount of wastegenerated, and to ensure that wastes are managed in anenvironmentally sound manner. RCRA regulates themanagement of solid waste (e.g., garbage), hazardouswaste, and underground storage tanks holding petroleumproducts or certain chemicals.

1976 2 articles dealing with environment wereincorporated in the Indian constitution

Article 48-A and article 51-A(g) as a commitment toStockholm Conference

1976 Urban Land (Ceiling and Regulation) Act India Dealing with availability of urban land1976 The Bangalore Development Authority Act India

1976 The Karnataka Improvement Boards Act India1976 the Gujarat town planning and urban

development actIndia Came into force in February 1978

1977 The Toxic Substance Control Act U.S.A the act gave the Environmental Protection Agency (EPA)the power to acquire the plausibleinformation on all new and existing chemical substances.If it was found that any of these chemicalsubstances caused an excessive risk to the public or theenvironment, the EPA was authorized to controlthese unhealthy substances as they saw fit



1977 The Water (Prevention and Control ofPollution) Cess Act, amended 1992

India provides for the levy and collection of Cess or fees onwater consuming industries and local authorities. In orderto provide the pollution control boards resources forequipment and technical personnel and to prompt waterconservation by recycling

1978 US Council for Environmental Quality(USCEQ)

U.S.A issues regulations for NEPA which apply to USAID andspecific requirements for programmatic assessments.

1979 Three miles island incidents U.S.A nuclear power plants disaster1979 Silent valley Case- Palghat, Kerala India Hydro-electric proposed in the tropical forest- the high

court of Kerala refused to interfere in the matter and reliedheavily on government position

1979 The Bombay Metropolitan regionalDevelopment Authority Act

India an apex body for planning and co-ordination ofdevelopment activities in the Region

1979 The West Bengal Town and Country(Planning and Development) Act

India

1980 6th five year plan India Environment improvement of slum.1980 Department of Environment (DOE) India DOE performed an oversight role for the central

government. DOE did environmental appraisals ofdevelopment projects, monitored air and water quality,established an environmental information system,promoted research, and coordinated activities betweenfederal, state and local governments

1980 Forest (Conservation) Act India Prohibits state government from allotting any forestland orany portion thereof for any non-forest purpose withoutapproval from central government

1980 The tiwari committee India To suggests the administrative and legislative measuresthat ought to be taken for the protection of theenvironment. Five suggestions- 1) land and watermanagement 2) Natural living resource 3) Environmentalpollution and E.I.A 4) Human settlements 5)Environmental education and awareness

1981 The Air (Prevention and Control of Pollution)Act, amended 1987

India It provides for prevention, control and abatement of airpollution. It entrusts the power of enforcing this act to theCPCB. It lays down air pollution standards and isadministered by the SPCB.

1982 The Air (Prevention and Control of Pollution)Rules

India defines the procedures of the meetings of the Boards andthe powers entrusted to them.

1982 The Atomic Energy Act India deals with the radioactive waste1982 The Nuclear Waste policy Act U.S.A1984 Bhopal gas Tragedy India1985 Bhopal gas disaster Act India Led to Passing of Environment Protection Act.1985 Ministry of Environment and Forest of Govt.

of IndiaIndia defines the procedures of the meetings of the Boards and

the powers entrusted to them.

1985 National Capital Region Planning Board Act India NCR of Delhi -divided into 15 zones

1985 7th five year plan India Comprehensive plan for urban development1985 workshop on physical inputs to planning India Organized by the town and country planning organization

+ IIRS,dehradun 1986 The Environment (Protection) Act, amended

1991India The umbrella legislation. This is applicable to entire

country and overrules other legislation, including locallaws, which empowered the central government to take allnecessary measures to protect and improve theenvironment. Obligation under the Stockholm declaration

1986 The Environment (Protection) Rules India lay down procedures for setting standards of emission ordischarge of environmental pollutants.



1986 Chernobyl (USSR) Atomic reactor USSR1987 The Air (Prevention and Control of Pollution)

Amendment Act India empowers the central and state pollution control boards to

meet with grave emergencies of air pollution

1988 The central motor vehicles Act. India introduced nation-wide emissions levels for both petroland diesel driven vehicles.

1989 the Brundtland commission report- ourcommon future

International the world commission on environment and development -suggested 22 legal principal for environmental protectionand sustainable development.

1989 Under EPA, government mandated theHazardous waste (Management andhandling) rules

India Is to control the generation, collection, treatment, import,storage, and handling of hazardous waste.

1989 The Manufacture, Storage, and Import ofHazardous Rules

define the terms used in this context, and sets up anauthority to inspect, once a year, the industrial activityconnected with hazardous chemicals and isolated storagefacilities. It also mandated the manufacture , storage andimport of hazardous chemicals rules.

1990 Earth day International Described as the largest organized demonstration inhuman history

1990 Environmental appraisal of thesedevelopment plans originated in UK

Uk The European Economic Community issues the firstproposal for a Directive on the Environmental Assessmentof Policies, Plans and Programmes

1990 New policy framework and strategy havebeen spelt out by world bank to redefine theurban challenge

International Reversing the deterioration of the urban environment.

1990 National waste management council wasconstituted

India One of the NWMC objectives was municipal solid wastemanagement. The council is engaged at present in asurvey of 22 municipalities to estimate the quantity ofrecyclable waste and its fate during waste collection,transportation and disposal.

1991 The UNECE Convention on EIA Transboundary Context promotes the application of EA forpolicies, plans and programmes

1991 The Public Liability Insurance Act and Rulesand Amendment,1992

India was drawn up to provide for public liability insurance forthe purpose of providing immediate relief to the personsaffected by accident while handling any hazardoussubstance.

1991 Policy appraisal Uk Publication of policy appraisal and the environment1991 Coastal regulation Zone Notification India Declaration of Coastal Stretches as Coastal Regulation

Zone (CRZ) amended 3/10/2001- puts regulations onvarious activities, including construction, are regulated. Itgives some protection to the backwaters and estuaries.

1991 the ministry of environment and forestsissued guidelines for management andhandling of hazardous waste

India

1992 Network of air quality monitoring stationacross the country approved

India

1992 8th five year plan India the conventional city plans should be modified toincorporate measures required to restore healthy urbanenvironment

1992 Development plans and regional guidance(DOE, 1992)

Uk the beginning of EA of local authority development plan inthe UK.

1992 the Rio de Janeiro "Earth Summit" International Declared that human beings are entitled to a healthy andproductive life of harmony with nature.



1992 the Constitution of 73rd and 74thamendment Act

India A three-tier system of local governance, throughPanchayati Raj Institutions (PRIs) in rural areas andthrough Urban Local Bodies (ULBs) in urban areas wasestablished. State legislatures were empowered to entrustlocal bodies with necessary power and authority to enablethem to function as institutions of local self-government

1992 the National Conservation Strategy andPolicy Statement on Environment andDevelopment,

India laying down the guidelines that will help to weaveenvironmental considerations into the fabric of ournational life and of our development process. It is anexpression of our commitment for reorienting policies andaction in unison with the environmental perspective.

1993 Environmental appraisal of developmentplans: a good practice guide.

Uk (DOE, 1993)

1993 the national waste management councilconstituted the national plastic wastemanagement task force.

India

1994 Environmental Impact Assessment India Restrictions & Prohibitions on the Expansion &Modernization of any activity or new projects unlessEnvironmental Clearance has been accorded, amended2001

1994 The National Housing Policy India Formulated to implement the recommendations ofAgenda 21 for developingsustainable human settlements.Main objective was providing access to adequate shelterfor all.

1995 The UNDP introduces the environmentaloverview as a planning tool

International

1995 National Environment Tribunal Act India This has been created to award compensation fordamages to persons, property and the environmentarising from any activity involving hazardous substance

1995 Another high powered committee on urbanwaste

India The Ministry of Environment and Forests and the CentralPollution Control Board organized a meeting withmunicipal authorities and other concerned ministers inMarch 1995 to evolve a strategy for the management ofmunicipal solid wastes

1995 CPCB established an EnvironmentalPlanning Cell and introduced anenvironmental (land use) planningprogramme known as “Zoning Atlas forSiting of Industries”

India for identifying sites/zones for industries based onenvironmental considerations

1996 Govt. published guidelines for safe roadtransportation of hazardous waste

India

1996 The Chemical Accidents (EmergencyPlanning, Preparedness and Response)Rules

India To deal with major chemical accidents and to provideexpert guidance for handling major chemical accidents.

1997 The Council of the European Union adopts aproposal for a Council Directive on theassessment of the effects of certain plansand programmes on the environment

1997 National environment Appellate Authority Act India Address appeals with respect to restrictions of areas inwhich classes of industries etc. are carried out orprescribed subject to certain safeguards under the EPA.The objective is to bring in transparency andaccountability and to ensure the smooth and Expenditiuosimplementation of developmental schemes and projects.

1997 Central Ground Water Board Authority,amended 2000

India



1998 Bio-Medical waste (Management andhandling) rules were issued

India Is a legal binding on the health care institutions tostreamline the process of proper handling of hospitalwaste such as segregation, disposal, collection, andtreatment.

1998 Draft municipal solid waste (managementand handling) rules were issued

India apply to every municipal authority responsible for thecollection, segregation, storage, transportation,processing, and disposal of municipal solid wastes

1998 Constitution of National Coastal ZoneManagement Authority

India

1998 the recommendations of the national plasticwaste management task force, set up by thenational waste management council

India

1999 The Environment (Siting for IndustrialProjects) Rules, 1999

India lay down detailed provisions relating to areas to beavoided for siting of industries, precautionary measures tobe taken for site selecting as also the aspects ofenvironmental protection which should have beenincorporated during the implementation of the industrialdevelopment projects

1999 Final recycled plastic manufacture and usagerules

India

1999 The Urban Land ( Ceilling and Regulation )Repeal Act 1999

India An Act to repeal the Urban Land (Ceiling and Regulation )Act 1976.

2000 The Biodiversity Bill India with an aim to protect and conserve biodiversity andsustainable use of its components the biodiversity. Bill isbeing placed in parliament.

2000 Hazardous wastes (management andhandling) rules

India The rules lay down the procedure for waste collection,segregation, storage, transportation, processing, anddisposal

2000 Final Municipal solid waste (managementand handling) rules

India Declares that every municipal authority shall beresponsible for the implementation of the rules and forany infrastructure fro collection, storage, segregation,transportation, processing and disposal of Municipal solidwaste

2000 Noise Pollution (Regulation and Control)Rules

India Rules lay down such terms and conditions as arenecessary to reduce noise pollution

2000 The Ozone Depleting Substances(Regulation and Control) Rules

India have been laid down for the regulation of production andconsumption of ozone depleting substances

2001 The Batteries (Management and Handling)Rules

India These rules shall apply to every manufacturer, importer,re-conditioner, assembler, dealer, auctioneer, consumer,and bulk consumer involved in the manufacture,processing, sale, purchase, and use of batteries orcomponents so as to regulate and ensure theenvironmentally safe disposal of used batteries

2001 The UNECE issues a draft protocol onStrategic Environmental Assessmentapplying to policies, plans and programmes

International

2001 Council of the European Union adopts theCouncil Directive 2001/42/CE on 27 June onthe assessment of the effects of certainplans and programmes on the environment

European union

2002 Coastal Zone Management Authoritiesformed

India

2002 The Noise Pollution (Regulation andControl) (Amendment) Rules

India Rules lay down such terms and conditions as arenecessary to reduce noise pollution, permit use of loudspeakers or public address systems during night hours(between 10:00 p.m. to 12:00 midnight) on or during anycultural or religious festive occasion



2002 The Wild Life (Protection) Amendment Act India An Act to provide for the protection of wild animals, birdsand plants and for matters connected therewith orancillary or incidental thereto with a view to ensuring theecological and environmental security of the country

2002 The National Water Policy India2002 The Biological Diversity Act India is an act to provide for the conservation of biological

diversity, sustainable use of its components, and fair andequitable sharing of the benefits arising out of the use ofbiological resources and knowledge associated with it

2003 Environmental impact directive article 3 ofEuropean directive

European union Implemented by 25 Jan 2005

2003 Hazardous Wastes (Management andHandling) Amendment Rules

India Clarification on the definition of HazardousWastes.

2003 Bio-Medical Waste (Management andHandling) (Amendment) Rules

India legal binding on the health care institutions to streamlinethe process of proper handling of hospital waste such assegregation, disposal, collection, and treatment

2003 Constitution of the National Board for WildLife

India The Central Government shall, within three months fromthe date of commencement of the Wild Life (Protection)Amendment Act, 2002, constitute the National Board forWild Life

2003 Forest (Conservation) Rules, 2003 India super session of the Forest (Conservation) Rules, 1981

2003 The Water (Prevention and Control ofPollution) Cess (Amendment) Act.

India provides for the levy and collection of cess or fees onwater consuming industries and local authorities

2003 The Gujarat State Disaster Management Act India to provide for effective management of disaster, formitigation of effects of disaster, for administering,facilitating, coordinating andmonitoring emergency relief during and after occurrenceof disasters

2005 EIA –draft notification for projects India Revised Draft notification2005 National Urban Housing and Habitat Policy, India Continuation of the national housing policy with objective

to promote sustainable development of habitat in thecountry, with a view to ensure equitable supply of land,shelter and services at affordable prices



Rohit nadkarni School of Planning, CEPT

115 Appendix-B

Appendix - B THE CONSTITUTION OF INDIA

PART IXA THE MUNICIPALITIES

243W. Powers, authority and responsibilities of Municipalities, etc.—Subject to the provisions of this Constitution, the Legislature of a State may, by law, endow—

(a) the Municipalit ies with such powers and authority as may be necessary to enable them to function as institutions of self-government and such law may contain provisions for the devolution of powers and responsibil i ties upon Municipalit ies, subject to such conditions as may be specified therein, with respect to—

( i) the preparation of plans for economic development and social justice; ( i i) the performance of functions and the implementation of schemes as may be

entrusted to them including those in relation to the matters listed in the Twelfth Schedule;

(b) the Committees with such powers and authority as may be necessary to enable them to carry out the responsibil it ies conferred upon them including those in relation to the matters listed in the Twelfth Schedule. 243ZD. Committee for district planning.—(1) There shall be constituted in every

State at the district level a District Planning Committee to consolidate the plans prepared by the Panchayats and the Municipalities in the district and to prepare a draft development plan for the district as a whole.

(2) The Legislature of a State may, by law, make provision with respect to— (a) the composition of the District Planning Committees; (b) the manner in which the seats in such Committees shall be fi l led:

Provided that not less than four-fi fths of the total number of members of such Committee shall be elected by, and from amongst, the elected members of the Panchayat at the district level and of the Municipalities in the district in proportion to the ratio between the population of the rural areas and of the urban areas in the district;

(c) the functions relating to district planning which may be assigned to such Committees;

(d) the manner in which the Chairpersons of such Committees shall be chosen. (3) Every District Planning Committee shall, in preparing the draft development

plan,— (a) have regard to—

(i) matters of common interest between the Panchayats and the Municipalities including spatial planning, sharing of water and other physical and natural resources, the integrated development of infrastructure and environmental conservation;

(i i) the extent and type of available resources whether financial or otherwise;


Rohit nadkarni School of Planning, CEPT

116 Appendix-B

(b) consult such institutions and organisations as the Governor may, by order, specify. (4) The Chairperson of every District Planning Committee shall forward the

development plan, as recommended by such Committee, to the Government of the State.

243ZE. Committee for Metropolitan planning.—(1) There shall be constituted in every Metropolitan area a Metropolitan Planning Committee to prepare a draft development plan for the Metropolitan area as a whole.

(2) The Legislature of a State may, by law, make provision with respect to— (a) the composition of the Metropolitan Planning Committees; (b) the manner in which the seats in such Committees shall be fi l led:

Provided that not less than two-thirds of the members of such Committee shall be elected by, and from amongst, the elected members of the Municipalit ies and Chairpersons of the Panchayats in the Metropolitan area in proportion to the ratio between the population of the Municipalities and of the Panchayats in that area;

(c) the representation in such Committees of the Government of India and the Government of the State and of such organisations and Institutions as may be deemed necessary for carrying out the functions assigned to such Committees;

(d) the functions relating to planning and coordination for the Metropolitan area which may be assigned to such Committees;

(e) the manner in which the Chairpersons of such Committees shall be chosen. (3) Every Metropolitan Planning Committee shall, in preparing the draft development

plan,— (a) have regard to—

( i) the plans prepared by the Municipalit ies and the Panchayats in the Metropolitan area;

( i i) matters of common interest between the Municipalit ies and the Panchayats, including co-ordinated spatial planning of the area, sharing of water and other physical and natural resources, the integrated development of infrastructure and environmental conservation;

( i i i) the overall objectives and priorities set by the Government of India and the Government of the State;

( iv) the extent and nature of investments likely to be made in the Metropolitan area by agencies of the Government of India and of the Government of the State and other available resources whether financial or otherwise;

(b) consult such institutions and organisations as the Governor may, by order, specify. (4) The Chairperson of every Metropolitan Planning Committee shall forward the

development plan, as recommended by such Committee, to the Government of the State.

Development Plan and Environment : A Case of Ahmedabad

Discription London RemarksVision ● Mayor's and citizens vision

Time Span ● 20 years

Integration of national policies/ international obligations

●

Issues effecting london ●Odjectives considering enviornment ● Open space, london a better living city and gren city

policies to achieve the objectives

Population Growth ● Map showing population growth in last decade

Job growth ● Map showing job growth in last decade

Population Projection ● Range, No., population change over decade.

Natural growth ● pattern of growth

migration ● pattern of migration

Age group ● composition

Employment ●Work age population ● based on ethinicity

Present employment structure ● Sector wise

Projected employment ● Sector wise

equilesed income distribution ● weekly household income

Opputunity areas and areas for intensification ● Map showing the spatial distribution

Identifying areas for regeneration ● based on poverty, dependency, health, education

and housing

strategic employment location ●Access to public transport ● Map base on PTAL method, framework for

assessingpublic transport accessibility

Housing ●projected housing ● additional housing, annual target to achieved sub-

region/ borough wise

existing shortage (Backlog) ● till 2001

Utilizing the existing stock ● reduction of vacancy rate

Affordable housing ● assuring housing to all section of the population

Disabled people/ old people and children/ women

● Polices for safety, social infrastructure- (health and Education)

Economy ●Demand for office based jobs ● Growth and demand for office accomodation

Appendix -CContent of London Plan 2004

Rohit nadkarniSchool of Planning, CEPT 117 Appendix-C


Manufacturing and wholesale distribution

● Demand, jobs, location

Stock required ● Indicative distribution in housing types

Emerging growth sectors ● policies for Information Communication Technology infrastructure, e-government and e-business, Creative industries (Fashion, music etc), Tourism industry, Environmental industries (green industries)

Transportation ●Closer integration of transport and spatial development

● Proposed major transport schemes and development oppurtunities.

Land for transport functions ● Land requirementEnhancing international, national and regional transport links

● Airport development, Heliport development, rail networks

public transport ● Increasing the capacity, quality and Indicative phasing of transport schemes

Improving conditions for walking and cycling

● London’s strategic network of promoted walking routes

Parking strategy and standards ● Parking Standards, Transport Assessments and Public TransportAccessibility Levels (Parking for disabled people, cycle parking and Motor cycle parking)

freight movements and the distribution of goodsand services

●

Commercial, tourism, sports and leisure ●London’s network of town centres ●Locations for retail and leisure ●Cultural Areas ●International, national and regional sports facilities

●Tourism ● Demand for hotels, spatial distribution of tourist

places. open space ● London’s strategic open space network, open space

hierachy,Sites of Importance for nature conservation in London

● biodiversity, habitats and species

Enviornment ●Planning for waste ● Waste strategic policy and targets, Municipal Waste

Management Strategy, Waste Strategy 2000, Spatial policies, selection of sites for waste managementand disposal, waste produced and disposal method,

Planning for minerals ● demand, Better use of aggregates, re-useof construction and demolition waste.

Improving air quality ● Stratergies-integration of land use and transport policy, promoting sustainable design and construction, air quality assessments at planning stage, promoting cleaner transport fuels, modelling of scenarious, monitoring plan



Improving the use of energy ● Promoting Energy efficiency and renewable energy, zero carbon development, technology and design. Energy assessment of proposed major developments

Efficient use of water ● demand for Water supplies, Water quality and stretargies, maximising rainwater harvesting opportunities, using grey water recycling systems

Reducing noise ● spatial Stratergies, trsnsportation stratergiesTackling climate change ● impacts of climate change and stratergiesContaminated land ● Bringing contaminated land into beneficial use

Hazardous substances ● stratergies dealing with Hazardous substances

Design principles of london ● compact city, Maximising the potential of sites, Density location and parking, sustainable environmental friendly design, Built heritage and views (View Protection Framework and View

Project Blue Ribbon Network ● inter-relationships of all of London’s waterways and

water bodies, map showing the blue network, Natural resources, forces and human heritage, Flood plains and flood defence (map fo flood risk area), Sustainable drainage, Historic environment, Passenger and tourism uses, Design guidelines andimplementaion

sub-regions ● approach to sub-regionaldevelopment, Population growth, housing (Spatial location of housing sites by gross capacity) , and employment growth, Economic growth, Transport accessibility and capacity and Planning For Waste

Implemetation ●Indicative average annual phasing of growth in jobs and homes

● Region- wise

Phasing of public transport capacity increases

● Region- wise

main stakeholders and their contribution

●Monitoring ●London Plan Performance Indicators ● Objective wise

Looking beyound 2020 ● It will need to address issues beyond 2020



Discription DDP-2021 RemarksVision ●Time Span ● 20 years

Population Projection ● Range, No.

Natural growth ● No., %

migration ● In/Out migrationAge group ● Elderly and children population

Projection of Work force ● % and No.

Sector wise in NCTD ● for NCTD

Holding Capacity of Polulation ● Zone wise

Facilities/Aminities ● Based on hierachy of urban development-Guidelines

Housing ●Existing housing stock ● According to Census

Backlog ● Till 2001Stock required ● Indicative distribution in housing typesPlanning and Building guidelines forUnathorised colonies

● Infrastructure (physical and social), Circulation,control for buildings

Housing for urban poor ● Atleast 10% reservation in new development(EWS)

Infrastructure requirement for residentialneighbourhood

● Education, Shopping, Other Communityfacilities, recreational, utilities, transportation.

rainwater harvesting ● intregrated with storm water drainage plan

natural drainage ● not to be disturbed

dual pipe system of recycled water ● recommended in new areas and redevelopmentschemes

use of non-conventional sources of energy ● recommended for public areas

decentralized sewerage treatment plant ● provision while formulating layout plan

Trade and Commerce ●roof top harvesting system ● to be incorporated in the proposal

separate dry and wet dustbins ● to be incorporated in the proposal

arrangements for solid waste disposal ● to be incorporated in the proposalpreliminary effluent treatment ● to be incorporated in the proposal

energy audits ● For scantioning building plan

Industry ●No. of industries ● Economic survey of delhi

No. of employment ● Economic survey of delhi

Classification of Industries ● Industries permitted in different zones, Base forclassification

Industrial Use zone guidelines/development controls

● guidelines include Envi. Issues like preservationof water bodies, provision of green buffer,rainwater harvesting, provision of CETP's, solidwaste treatment plant, disaster planning

Appendix -DContent of Delhi Master Plan 2021

Rohit nadkarniSchool of Planning, CEPT 120 Appendix- D


Environment ●Ground water Assessment ● present situation in million cubic metersSource of water ● Source of pollutionAnnual rainfall ● In mm

Rainwater harvesting potential ● In billion litresAir ● Source of pollution, stress on public

transportation poilicyNoise ● permissible limits, Noise pollution (level) rules

2000landscaping for noise ● Green buffer, mounds, etc

Natural features ● River Yamuna, aravali ridge

Norm for recreation and Green asrea ● city park, district park, community park.

Conservation of Built Heritage ●Heritage zones ● delinaition of area

Archaeological park ●Transportation ●Types of mode ● Bus, Bycycle, Rail, Air, Cycle-rikshaw etcModel split projection ● Public and private

Goods traffic ● at the outer cordons

Social Infrastructure ●Health ● Planning norms, Standards

Education ● Planning norms, Standards

Sport Facilities ● Planning norms, Standards

Communication ● Planning norms, Standards

Security- police ● Planning norms, Standards

Safety ● Fire, Disaster Management, planning norms/standards

Physical Infrastructure ●Availibilty / Projected Requirement ● Water, Sewerage, Power and Solid waste

Proposal / stratergies ● Water, Sewerage, Power (Zero-fossilDevelopment) and Solid waste

Landuse Plan ● Policies, zonal development plan

Development code ● Land use zones, Location of zones, permissionfor use of primisses in the zone, buildingcontrols

Plan review and monitoring ● Monitoring framework, monitoring unit.

Rohit nadkarniSchool of Planning, CEPT 121 Appendix- D

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