SHELTER FOR POOR - Urban Design Research Institute

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Shri R.G. Gupta is a city planner who has been associated with the development of Delhi ...... convinced with the help of ratio, TV, and other mass media at the ...
SHELTER FOR POOR

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SHELTER FOR POOR IN THE FOURTH WORLD

(VOL. I)

R.G. GUPTA

2 R.G. GUPTA -–1995 www.rgplan.org

ISBN 81-85402-28-0 ISBN 81-85402-55-8 ISBN 81-85402-56-8 First Published 1995 © R.G. Gupta

(Set) (Vol. One) (Vol. Two)

Published by:

SHIPRA PUBLICATIONS 115-A, Vikas Marg, Shakarpur Delhi – 110092 Phone: 2200954

Laser Typeset at: Sita Composers (P) Ltd. Delhi – 110052

Printed at: D.K. Fine Art Press (P) Ltd. Delhi-110052 3 R.G. GUPTA -–1995 www.rgplan.org

Foreword Shri R.G. Gupta is a city planner who has been associated with the development of Delhi for many years in his capacity as Additional Commissioner, City planning, in the Delhi Development Authority. He has been intimately connected with the shelter programme, having almost sole responsibility for the squatter colony settlement (JJR Scheme) in the 70s of the present century. This work gave him considerable insight into how in the name of the poor, land is manipulated and what options are available for ensuring that the poor have access to land and shelter. Besides shelter planning R.G. Gupta has also considerable experience of transportation planning and river front development. In this behalf he has prepared a detailed plan for the proper development of the entire Yamuna River front in Delhi. This gives him a happy combination of experience in planning the arteries which bind the city together, environmental planning which gives a city life, and shelter, without which no city can survive. The present work is extremely ambitions and covers a wide spectrum of activities in the matter of shelter. In some ways this could be considered an omnibus or encyclopaedic work because not only does it look at the housing situation in India, but also gives a picture of what prevails in south, southeast and east Asia. In India it compares eight metropolitan cities, with special emphasis on Delhi. This would provide a good reference book to scholars. In addition to looking at the comparative picture of housing the work also looks at policy relating to urban land, infrastructure, low cost housing, physical planning techniques, urban renewal, energy, recreation, the role of the public and private sector and the management structure in our cities, in particular Delhi. In other words the kind of coverage provided in the book could readily be divided into three volumes, each complete in itself any yet relating to the other two. The book really lends itself to division into an urban planning trilogy. At the cost of repetition one can say that the work of Shri R.G. Gupta provides a wealth of information which makes it a genuine compendium and encyclopaedia.

E-5/A, Girish Kunj, Arera Colony, BHOPAL-462 016

M.N. Buch Chairman, National Centre for Human Settlements & Environment 4 R.G. GUPTA -–1995 www.rgplan.org

Preface Shelter is the outcome of the basic needs of man, which are living, working and enjoying; or biological, physiological and psychological; or subjective and objective or primary, secondary and tertiary. Shelter is not merely a physical shell, but it engulfs a complete range of utilities-services (water, sewerage, drainage, power, telephone, gas lines etc.) with proper circulation for pedestrians, cyclists, light and heavy vehicles; and also with social infrastructure in terms of education, health, security, justice, recreation with proper input of aesthetics in the shape of urban form, environment and total get up of the complex. Housing is seen in many forms; informal housing by various names, as callampas (Mashroom) in Latin America; ‘Bidonvilles’ in French speaking West Africa; ‘Favelas’ in Brazil, ishish in Middle East, kampungs in Indonesia, ‘Cities of Misery’ in some places; Jhuggi (shanty) Clusters in India in terms of (i) Squatter Settlements in many places; (ii) Sites and services programme; (iii) Unauthorized, unintended and undesirable housing; (iv) Blighted housing in designated slum areas; (v) Housing of different types and categories constructed by public, cooperative and private sector. Virtually all cities share some land-related concerns, such as congestion, pollution from motor vehicles, water streams, inadequacies in utilities and services and at the top of it a lack of affordable housing. The Third World is burdened by several enormous, rapidly growing cities-including Sao Paulo, Shanghai, and Mexico City-whose sheer size and instability create problems on an entirely different scale. By the end of the century, population of some of the super metropolitan cities would be – Mexico City – 26.6 million; Sao Paulo- 22.1 million; Tokyo – 19.0 million; Shanghai – 17.0 million; New York – 16.8 million; Calcutta – 15.7 million; Bombay – 15.4 million; Beijing – 14.0 million; Los Angeles – 13.9 million; Jakarta – 13.7 million; and Delhi – 12.8 million. The unhealthy conditions in large settlements can be addressed and tackled through extensive economic and social reforms that attack the root causes of poverty – not just in cities but in rural areas too. Finally, planners in the cities of the Third World and Fourth World face colossal problems of utilities, services, environment, traffic and transportation; viz. deadly air-pollution in Mexico City; indiscriminate dumping of toxic wastes in Alexandria; actual sinking of cities as Bangkok, Jakarta and Shanghai due to overdrawing of groundwater. Almost all the urban areas have two faces – one, with proper planned physical, social and economic infrastructure and the second with unplanned, unauthorized, unintended, ill-housed, with inadequate services. Millions of poor people live in developing world’s squatter settlements, which cannot afford housing of any type. Many governments in these countries ignore or harass the settlements they consider illegal, unauthorized etc. There is an estimate that between 70-90% of housing, mostly in Third World cities is unauthorized and unintended. By all accounts, the growth of cities is an undeniable fact of the future. At current rate of expansion, the world’s population will double in 40 years, the urban population will double in 22 years and the Third World urban population is 15 years. Satisfactory housing is one which involves and satisfies users beneficiaries on one side and field agencies on the other side. There should be more and more 5 R.G. GUPTA -–1995 www.rgplan.org

involvement of local, physical and human resources to make available developed lands, building materials, construction of urban spaces and making arrangements for part of the financial resources from public, cooperative and public sector. The Fourth World is within the third world countries, namely, in Afghanistan, Algeria, Bahrain, Bangladesh, Bhutan, Bolivia, Brazil, Bulgaria, Burma, Chile, China, Columbia, Cuba, Cyprus, Yemen, Eucador, Fiji, Ghana, Haiti, India, Indonesia, Iraq, Jamaica, Jordan, Kenya, Malwai, Maldives, Mauritius, Mexico, Nepal, Pakistan, Philippines, Qatar, Somalia, Sri Lanka, Thailand, Uganda, Tanzania, Vietnam, Zimbabwe and like this in most of the other developing countries. To limit the scope and size of the book, housing studies only of 8 foreign countries, namely, China, South Korea, Indonesia, Bangladesh, Pakistan, Malaysia, Sri Lanka and Philippines have been taken. In India housing in four super metropolitan cities, namely, Bombay, Madras, Calcutta, Delhi; in metropolitan cities in Kanpur and Indore, in Noida and lastly in National Capital Region as a whole have been taken. To give an overall idea of housing situation in various metropolitan cities, a full Chapter No. 17 has been devoted for the purpose mostly giving statistical data and policies for housing. Slums has a big connotation, of course with varying degree of internal and external environmental degradation in quality of life. In case of Delhi, slums are in the shape of – (i) Pavement dwellers; (ii) Shanty (jhuggi) clusters; (iii) Urban Villages; (iv) Rural Villages; (v) Slum Designated Areas under the Slum Act 1956; (vi) Unauthorized Colonies; (vii) Unauthorized regularized colonies; and (viii) Sites and services. If population of all these settlements is added, it comes to 7 million i.e. 75% of the total population of Delhi which was 9.37 million as per 1991 census. The definition of slums varies from place to place. In Delhi, slum areas are taken only as per Slums (Clearance and Improvement) Areas Act 1956, (India) and in this only one category as mentioned above is covered and not even jhuggi (shanty) clusters which are the worst slums. As per 1981 census, 35.3% population was under slums in Calcutta, 38.3% in Greater Bombay, 30.19% in Delhi, 31.87% in Madras, 10.02% in Bangalore, 21.285 in Hyderabad, 26.16% in Ahmedabad, 43.34% in Kanpur, 17.69% in Pune, 33.90% in Nagpur, 38.83% in Lucknow, and 15.02% in Jaipur. As an average, there is 30.78% slum population in all Indian cities with a population of more than one million. The position is very much alarming and needs careful consideration. Housing conditions in some Indian cities namely – Hyderabad, Bangalore, Ahmedabad are also deplorable; for example 69.3% of the houses in Hyderabad have floors of mud, 68.8% of the houses in Bangalore have floors of stone slabs, 56.5% of the houses in Hyderabad have walls of mud and 70% of the houses in Ahmedabad have walls of mud bricks. Quality of life in jhuggi (shanty) clusters is more acute, deplorable and unsatisfactory, as is clear from a survey of May, 1989 conducted by the ‘Urban Basic Surveys Programme’, Delhi Administration. Surveys were conducted of 2,27,000 households and then found that facilities per average household are shocking and are hardly 5% of the accepted norms. These are @ one Private medical practitioner for 166.5 households, one Trained ‘dai’ for 1633.9 households; one untrained ‘dai’ for 284.6 households; one Govt. health worker for 430.1 households; one Shallow public handpump for 217.3 households; one Shallow private handpump for 85.3 households; one Mark II handpump for 535.6 households; one Sullage water pit near 6 R.G. GUPTA -–1995 www.rgplan.org

handpump for 723.3 households; one M.C.D. tap for 220.0 households; one Tanker visit (per month) for 38.0 households; one Community latrine for 70.4 households; one Sulabh shauchalaya for 70.0 households; one Individual latrine for 238.3 households; one Safai karamchari for 456.0 households; one Sullage pit for 1706.1 households; one Dhallao for 860.2 households, one Septic tank cleaned for 2838.0 households; and one Septic tank uncleaned for 656.0 households. The above environmental indices are so poor in the capital of the country, which is an ‘International Window’ and International drawing room, then the position in other metropolitan cities can be well imagined. Roughly, it can be said that between 70-90% population of different metropolitan cities of the country live in substandard areas i.e. in areas which do not have the minimum level of accepted basic amenities and facilities in terms of physical, social and economic infrastructure. Though for different cities, specially in metropolitan and super metropolitan, various housing policies from time to time are formulated, implemented and in some cases results monitored and feed back also taken, yet there is a large scope of review of policies on different aspects, specially for poor, who live largely in substandard areas. Taking the example of Delhi, there are policies on – (i) Resettlement of jhuggies (shanties)or squatters; (ii) Environmental Improvement in ‘Shanty Clusters’; (iii) In/Around Situ development and construction of urban spaces of ‘Shanty Clusters’; (iv) Regularisation of unauthorized colonies; (v) Making provisions of physical and socio-infrastructure in urban and rural villages; (vi) Construction of night shelters; (vii) Development, redevelopment and reconstruction of slum areas etc. and are reviewed from time to time. Based on these concepts and views, the author got the following ideas:(i) If all the developing countries have such deplorable conditions in slum areas, then why not undivided attention is paid to their problems and solutions. (ii) A theory of low cost housing and how the same can be applied for upgradation of jhuggi (shanty) clusters be evolved. (iii) Delhi – super metropolitan city has maximum experience on various aspects of dealing with problems of housing for poor and on this the author has an experience of more than 30 years. This experience should be shared with everybody, administrators, policy makers, head of development authorities, housing boards, slum boards, teaching institutions and students to get interactions and finally to develop the system for housing for poor which is the most important demand of the society, because housing is a tool to improve the total quality of life. The problems can be solved, if the factors given in the following matrix are studied, analyzed and sorted out in a proper manner:Infrastructure 1. 2. 3. 4.

Planning / Factors Physical Financial Development / Construction Management Total {ABCD

Physical A1 B1 C1 D1

Economic A2 B2 C2 D2

Social A3 B3 C3 D3

Legal A4 B4 C4 D4

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Results of matrix have to be presented to get answers of the following 9 components: 1. 2. 3. 4. 5. 6. 7. 8. 9.

Urban Land Policy Planning, development and construction of shelter, and community facilities. Fiscal Planning Building materials Technology Mix of public, private and co-operative sector housing Type of shelter Public participation and involvement Institutions and management

With the help of these 9 components, details of following three factors which are backbone of the housing can be prepared. 1. 2. 3.

Infrastructure: physical infrastructure, social infrastructure, economic infrastructure, administrative infrastructure & ecological infrastructure. Factors of Production: land, labour, capital, organization. Points of strategy: equity, prioritization, privatization.

The book has been written by diving it into six parts, namely as under: One: Housing in Some Countries: This part consists of shelter at the global level and housing in 8 countries namely – China, South Korea, Indonesia, Bangladesh, Pakistan, Maharashtra, Sri Lanka and Philippines. These 9 chapters have been written by taking details from ‘United Nation Centre of Regional Development (UNCRD)’.

Two: Housing in Some Cities in India: This part includes housing in Bombay, Madras, Calcutta, National Capital Region, Kanpur, Indore, Nodia, Delhi and housing situation in various metropolitan cities of the country. These chapters have been written after collecting data from secondary sources, except in case of Delhi on which a lot of experience is there. Housing in these 9 chapters have been explained with the help of maps and tabular statements. Chapter-17 explains housing situation in most of the metropolitan cities, and also existing and proposed housing situation. Second part of this chapter which explain the proposed strategy for housing in the country is very important. Further details of housing policy of the country are available in Chapter-51 on the caption ‘Role of development authorities in context of present housing policy’, which is in the sixth part of the book.

Three: Surveys and Theories: This part also consists of 9 chapters. Each chapter has basic data and details with regard to different socio-economic surveys conducted in Delhi. Chapter-20 with the caption ‘Physical and Socio-economic Surveys’ has results of different surveys starting from 1973 from Town & Country Planning Organisation up to the latest surveys of 1991 conducted by Slum Wing, Delhi Development Authority. Chapter-24 on ‘Urban Development Strategies, Chapter-25 – Landuse Theory and Practice and Chapter-27 – Theory of Low Cost Shelter are three chapters evolving theories on various aspects of urban planning and housing.

Four: New Models of Planning: This part consists only six chapters, explaining norms for housing for urban poor, specially with regard to physical planning. A new model to 8 R.G. GUPTA -–1995 www.rgplan.org

improve the quality of life in shanty (jhuggi) clusters has also been evolved and explained with the help of an example of In/Around Situ Development and Construction of Urban

Spaces for shanties (jhuggies) in Seelampur, Trans-Yamuna Area of Delhi. This model has been widely appreciated. Five: Housing in Sub-Standard Areas of Delhi: This part consists of 8 chapters giving typical examples of planning and development of sub-standard areas, namely – resettlement colonies, urban villages, rural villages, unauthorized-regularized colonies and examples of urban renewal. This part consists of many maps to explain practical examples which have been implemented or are being implemented. These examples can be made as part of further research in the subject of urban development and housing.

Six: Connected Issues with Housing: Housing is not only concerned with provisions of development of physical, social and economic infrastructure, construction of urban spaces, management and maintenance etc., but also with large issues which have been described from Chapter 42 to 51. There can be other large issues also but only ten have been dealt herewith. Salient features of these are-low cost specifications, affordable mode of transport for a poor man, development of large green areas without straining the government finances, energy conservation as an essential input to the planning, prevention and control of pollution, planning development and construction of urban spaces in private sector and joint venture, problems of administration of large cities, system of planning practices and professional charges and the last role of development authorities in the context of new housing policy.

The book would be really useful for – (i) students of housing not only in India, but in different parts of the world; (ii) for development authorities and organizations; (iii) for housing and slum boards and (iv) for policy makers at Local, State Government and Central Government level and (v) last but not the least availability of extensive data on housing at various levels at one point and would be useful for research scholars. This decades of 1990’s is going to be a revolutionary year of collection and compilation of data which is available in ample quantity in this book and in the eyes of the author availability of data is the first requirement of planning, development and construction of urban spaces. I acknowledge few persons not for the sake of acknowledgement but for their hard and sincere work. Mr. Rajeev Gopal (my son) for editing, Mrs. Alpana Jain and Mr. Surinder Pal Singh for preparation of drawings and maps come under this category. Acknowledgements are also for Mr. D. Kumar who one day inspired me to write a book. Lastly, unlimited acknowledgements are for my wife and family to encourage me to write the book. Unending acknowledgements are for Mrs. Gurbaksh Kaur my P.A. in making and remaking manuscripts and working sincerely.

R.G. Gupta

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CONTENTS Foreword Preface List of Tables List of Maps List of Appendices

v vii xiv xx xxiii

VOLUME ONE PART ONE – HOUSING IN SOME COUNTRIES 1. 2. 3. 4. 5. 6. 7. 8. 9.

Shelter Strategy at Global Level Housing in China Housing in South Korea Housing in Indonesia Housing in Bangladesh Housing in Pakistan Housing in Malaysia Housing in Sri Lanka Housing in Philippines

1 24 32 39 46 51 59 68 77

PART TWO – HOUSING IN SOME CITIES OF INDIA 10. 11. 12. 13. 14. 15. 16. 17. 18.

Housing in Bombay Housing in Madras Housing in Calcutta Housing in National Capital Region Housing in Kanpur Housing in Indore Housing in Noida Metropolitan Cities: Housing Scenario proposed Strategy Housing in Delhi

87 122 142 158 166 172 179 193 208

PART THREE – SURVEYS AND THEORIES 19. 20. 21. 22. 23. 24. 25. 26. 27.

Urban Basic Services Programme: With Special Reference to Delhi 221 Physical and Socio-economic Surveys 233 Dimensions of Informal Sector and Planning 278 Base Maps Preparation 299 Urban Land Policy 309 Urban Development Strategies 338 Landuse-Theory and Practice 347 High Rise Buildings: Infrastructure 359 Theory of Low Cost Shelter 369 10 R.G. GUPTA -–1995 www.rgplan.org

VOLUME TWO PART FOUR – NEW MODELS OF PLANNING 28. 29. 30. 31. 32. 33.

Environmental Planning Norms Resettlement Colonies: Infrastructure Facilities Planning and Integrated Development: A Large Complex for One Million Population Transit Campus The Quality of Life: A New Model Zonal Plan: Delhi Trans Yamuna Area

379 393 407 420 427 440

PART FIVE – HOUSING IN SUB-STANDARD AREAS OF DELHI 34. 35. 36. 37. 38. 39. 40. 41.

Physical Planning of Resettlement Colonies Housing in Urban Villages Housing in Rural Settlements Housing for Landless Labourers Housing in Unauthorized Regularized Colonies Housing by Urban Renewal: Especially In The Walled City Housing for Slum Dwellers: A Mata Sundari/Minto Road Complex Redevelopment of Mundewalan Complex: A Case Study

479 511 543 559 570 584 602 618

PART SIX – CONNECTED ISSUES WITH HOUSING 42. 43. 44. 45. 46. 47. 48. 49. 50. 51.

Planning of Shelter and Low Cost Specifications Traffic and Transportation: Problems and Prospects Developing Large Green Areas and Role of Private Sector Recreational Facilities: Development of Yamuna River Bed Energy Conservation, Housing and Urbanisation Pollution Control and Housing: Sub-standard Areas Planning Administration of Mega City: Case Example of Delhi Joint Venture and Private Sector: Development and Construction of Urban Spaces Planning Practices and Professional Charges for Urban Spaces Role of Development Authorities and New Housing Policy

637 655 673 682 700 714 728 736

Index

784

754 763

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LIST OF TABLES No.

Description

Page No.

PART ONE – HOUSING IN SOME COUNTRIES 2.1 (2.3.2) 2.2 (2.3.3) 3.1 3.2 3.3 3.4 3.5 (3.4.2) 3.6 (3.4.3) 4.1 (4.2.1) 4.2 (4.2.2) 4.3 (4.2.8) 4.4 6.1 (6.3.2) 6.2 (6.3.3) 6.3 (6.3.4 6.4 (6.4.1) 6.5 7.1 (7.2.1) 7.2 (7.2.2) 7.3 (7.2.5) 7.4 7.5 (7.2.10) 7.6 (7.2.11) 8.1 8.2 8.3 8.4 8.5 8.6 9.1 9.2 9.3 9.4 (9.2.3)

Number of DUs actually constructed in metropolitan Beijing Composition of Housing Stock in terms of percentage in Beijing Housing related Legislations in South Korea Households, population and persons per household in Seoul Landuse break-up of Seoul Metropolitan City Availability of physical and social infrastructure in Seoul Number of housing units constructed in Seoul Composition of metropolitan housing stock (in 000) Population of Jakarta and other urban areas Households in urban areas (in millions) Annual Housing Needs Characteristics of slum areas in urban settlements of Indonesia Availability of civic amenities in houses Type of housing (percentage of the total) Percentage of housing units constructed in squatters colonies, planned colonies and as a whole (base 1988) Land holdings in Karachi in hectares in 1988 Percentage of plots in different categories of sizes Metropolitan Kuala Lumpur population and households Growth in metropolitan Kuala Lumpur Slums and squatters settlements in Kuala Lumpur Housing units constructed in different years in public and private sector in Kaula Lampur Housing stock by type of houses in Kaula Lampur Composition of metropolitan housing stock in terms of construction material in Kuala Lampur Composition of housing in terms of tenure system in Colombo Composition of hosing in terms of type of structure in Colombo Composition of housing in terms of income group and number of DUs in Colombo Composition of housing in terms of income group and area of DUs in Colombo Number of slums and squatters population estimated in Colombo Public sector investment in housing in Sri Lanka Poverty line in Philippines and Manila Population and increase in population in Manila Number of households and growth rate in Manila Composition of Metro Manila housing stock by type of occupancy

27 27 34 35 36 36 37 37 40 40 41 42 54 54 55 56 57 60 61 61 62 63 63 71 71 71 72 72 74 78 78 79 79

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9.5 (9.2.4) 9.6 (9.2.5) 9.7 (9.2.6)

Composition of Manila housing stock by type of building (1980) Composition of Manila housing stock by type of construction Composition of Manila housing stock by floor area (1980)

79 80 80

PART TWO – HOUSING IN SOME CITIES OF INDIA 10.1 (10.02) 10.2 (10.03) 10.3 10.4 10.5 10.6 (i) 10.7 (iii) 10.8 (iv) 10.9 11.1 11.2 11.3 11.4 11.5 11.6 11.7 11.8 11.9 11.10

11.11 12.1 12.2 12.3 12.4 12.5 12.6 12.7 12.8 12.9 12.10

Annual supply of housing in Greater Bombay

88

Slum population in different wards in Greater Bombay

88

Name of planning authorities and area of each constituents Urban settlements in Bombay Metropolitan Region with area and population (1981) and type of Local Authority Components of Bombay Urban Development Projects (BUDP) – World Bank Scheme Demand and supply of housing (1981-88) Preservation of old housing stock (performance due to slum improvements) Repairs and Reconstruction of houses Marginal open spaces and FSI on plots % of population of total and in slums as per economy class Area and population in 1971 and 1978 of Madras and its constituents Projections of population of Madras and its constituents from 1976 to 1991 Extent and location of slums Average number of housing units and plots per year with investments in Madras Metropolitan Area Dwelling units completed – 1970-85 Sizes of plots and their percentage to total number of plots Landuse adopted in various schemes of sites and services Break-up of eight projects in terms of area, number of EWS units, density and cost of the project Investments made in various projects by different agencies in the two urban development projects assisted by World Bank Ratio of density with land requirements and percentage in saving of areas Population of Calcutta Metropolitan Standard Urban Area, Calcutta Urban Area & Calcutta City during 1921-81 Growth rate in terms of percentage of population Gross population density (person per sq. km.) 1921-81 Population, household and number of houses in CMSUA and Calcutta City in 1981 Landuse break-up of CMSUA 1981 Status of Slum Improvement Programme No. of residential units in the project (Area in sq.mt.) Total number of plots/housing units in the project Total number of plots/units provided in the project Total number of plots/units provided in the project

95 96 101 102 103 103 109 123 123 123 124 125 125 127 127 127 129

134 144 144 144 144 146 149 150 151 152 152

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12.11 14.1 15.1 15.2 16.1 16.2 16.3 16.4 (i) 16.5 (ii) 16.6 (iii) 16.7 (iv) 16.8 (v) 16.9 (vi) 16.10 (vii) 16.11 (viii) 16.12 (ix) 16.13 (x) 16.14 (xi) 16.15 (xii) 16.16 (xiii) 16.17 (xiv) 16.18 (xv) 16.19 (xvi) 16.20 (xvii) 16.21 (xviii) 16.22 (xiv) 17.1 17.2 17.3 17.4 17.5 17.6 17.7 17.8 17.9 17.10 17.11 17.12 17.13 17.14 17.15

Probable landuse break-up of CMSUA-2015 Capital Expenditure Plan of Kanpur Urban Development Project Extent and location of slum areas in Indore Requirement of housing in Indore Proposed landuse as per Master Plan of Noida Distribution of working force (2001) Year-wise housing requirements for Noida (in thousands) Distribution of households by income groups Average household income (in Rs.) by income group Average Per Capita Income (in Rs.) by Income Group Average Household Size Household size of EWS by settlement by area type/zone Household size of LIG by settlement/area type Household size of MIG by settlement by area type/zone Household size of HIG by settlement/area type Average household expenditure pattern for all income groups Average household expenditure (in Rs.0 in Noida Household expenditure pattern of EWS by area type/zone Household expenditure pattern of LIG by area type/zone Household expenditure pattern of MIG by area type/zone Household expenditure pattern of HIG by area type/zone Housing ownership status by area type/zone Category of houses by floor area/zone Category of houses by number of habitable rooms Structure type and condition of houses by area/zone Opinion about overall visual characteristics Urbanization trend in India Number of settlements according to size class-India; 190191 Percentage distribution of number of urban agglomerations/towns by size class-India; 1901-91 Percentage distribution of urban population by size classIndia Distribution of class –I urban agglomerations/cities by different population sizes-1991 Characteristics of class-I urban agglomerations/cities having population of more than a million – 1901-91 Population and other details of metropolitan cities (1981 census) Estimated housing demand and supply in 20 Metropolitan Cities Number of schemes, project cost, loan etc. assisted by HUDCO Estimated urban population and slum population in million Population, number of households, housing stock and housing shortage for the country Households, usable housing stock and housing shortage Plans outlay on housing and urban development in the country Expenditure on housing in various Five Year Plans Percentage distribution of households by type of structure

154 168 173 173 181 181 181 182 183 183 183 184 184 184 185 185 185 186 186 187 187 187 188 188 188 189 194 195 195 196 196 197 197 198 199 199 200 200 201 201 202

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18.1 18.2 18.3 18.4 18.5 (ii) 18.6

and amenities Population of Delhi from 1901 to 1991 Decadal rate of growth of population in Delhi Position of acquired lands in Delhi Hosing programme projected by Delhi Development Authority for Delhi for the period 1992-97, in March, 1992 Break up of number of housing units year-wise with required financial provisions in the 8th Plan Requirements and sources of funds for 14 schemes of housing in Delhi for 8th Five Year Plan 1992-97

208 209 210 211 214 216

PART THREE – SURVEYS AND THEORIES 20.1 20.2 20.3 20.4 20.5 20.6 20.7 20.8 20.9 20.10 20.11 20.12 20.13 20.14 20.15 20.16 20.17 20.18 20.19 20.20 20.21 20.22 20.23 20.24 20.25 20.26 20.27 20.28 20.29 20.30 21.1 21.2

Environmental facilities index value Growth of squatters during the last four decades Environmental problems in different clusters Number and percentage of structures of different types Number and percentage of structures under various uses Distribution of medical facilities Distribution of amenities and services Percentage and total distribution of squatters according to age and sex composition Size of family in 29 sampled clusters Number and percentage of households according to caste Number and percentage of households according to religion Literacy standard of squatters Number of people with marital status along with sex Number and percentage of earners Number and percentage of households migrated from states Percentage distribution of migrant families according to reasons of migration Occupational status Number and percentage of households earners according to income Percentage distribution of expenditure incurred Mode of transport used No. of shanties clusters and families in Trans Yamuna Area Number of shanties and families in old resettlement schemes and on new public lands Distribution of shanties according to use Family size Year of migration Source of migration Work centre distance Mode of transport used Occupation pattern Occupancy status of plots, original allottees, purchasers, ternants, trespassers in Jahangirpuri resettlement colony Position of development of land by DDA as in December 1989 Size of shanty clusters in terms of households (group size) in five directions

234 238 241 241 241 242 243 243 244 244 245 245 245 245 246 246 247 247 247 248 249 250 250 251 251 251 252 252 252 254 279 281

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21.3 21.4 (b) 21.5 (c) 21.6 (d) 21.7 (e) 22.1 (i) 22.2 23.1 25.1 25.2 25.3

Distribution of encroachers/squatters according to use Covered area (in sq.mtrs.) of automobile workshops Open area of automobile workshops Types of automobile workshops Nature of trade in automobile workshops Components of large size maps along with cost of each component at 1990 price level Requirements of setting up of digital photogrammetry system and GIS system for Delhi Conversion of leasehold into freehold, where part of the property is used for other purposes than residential Factors on which zoning of a multi-storeyed building depends and relation with four Rings in a city Proposed FAR and parking norms in four Rings of a city and on special plots Parking requirements in sq.mt. in various Rings for a plot of 4000 sq.mt. (special plot), based on parking norms

285 290 290 290 291 302 303 323 355 355 356

PART FOUR – NEW MODELS OF PLANNING 28.1 28.2 28.3 28.4 28.5 28.6 30.1 30.2 30.3 30.4 31.1 32.1 32.2 32.3 32.4 33.1 33.2 33.3

Properties exceeding 500 sq.mt. in area Residential plot-plotted housing: zoning regulations Proposed system for sanction of building plans in urban villages Proposal for levying development charges in regularization structures in urban villages Resettlement schemes in Madras Proposed subsidy per unit Number and size of residential units and population Requirements of physical infrastructure Name of facility, area and population to be served Types of plans and approving authority Number of Transit Campus, units proposed for construction at various locations Landuses of the larger complex as per Master Plan of Delhi – 2001 Landuse of the larger complex as proposed for the scheme Proposed land use for In/Around Situ development Required floor area of district centre and facility centre 15 zones of Delhi and area of each zone Landuse break-up of north of Wazirabad Complex Landuse break-up of south of Hindon Cut Complex

382 383 384 384 386 391 408 414 415 415 423 432 432 433 435 441 448 448

PART FIVE – HOUSING IN SUB STANDARD AREA OF DELHI 34.1 34.2 35.1 37.1 38.1

Land use break-up of Sultanpuri Resettlement Colony Proposed land use break-up of Dallupra-Kondli-Gharoli Rates of development per sq.mt. of various items applicable in 1983 Number of DUs for EWS category on the periphery of urban villages Types of structures in unauthorised colonies

482 487 518 561 573

16 R.G. GUPTA -–1995 www.rgplan.org

38.2 38.3 39.1 39.2 41.1 41.2 (vi) 41.3 41.4

Existing landuse of 471 unauthorized colonies Landuse analysis of unauthorised regularised complexes in 1980s Pedestrian volume along and across major roads during peak hours No. of wholesale shops in 8 Planning Zones of Delhi Existing landuse break-up of Mundewalan Complex-1983 Use of structures in the cluster as per 1983 surveys Phasewise demolition and construction Proposed Landuse of Mudewalan Complex

573 582 590 592 619 620 623 624

PART SIX – CONNECTED ISSUES WITH HOUISNG 43.1 (i-a) 43.2 (i.c) 43.3 (ii-a) 43.4 (ii-b) 43.5 (ii-c) 43.6 (iii) 44.1 45.1 46.1 46.2 46.3 46.4 46.5 46.6 47.1 47.2 48.1 49.1 50.1 50.2 50.3 50.4

Purpose of journey by cycles in Delhi Trip length in km by cycles Characteristics of routes where exclusive cycle tracks are proposed Characteristics of routes where express cycle tracks are propsed No. of accidents with users in 1982-1984 Characteristics of cycles in 8 Planning Zones in Delhi Proposed landuse break-up of the complex Proposed landuse break-up of reclaimed land in river Yamuna Decennial growth rate of rural and urban population in various States in 1981 & 91 Percentage of urban population in different classes of towns Increase in number of towns and in urban population Number of villages, their population and distribution in various population groups A hypothetical distribution of settlements in India Order, size and number of functions in settlements Types of air pollution Pollutants and distribution in the environment Grouping of urban functions for execution furposes Rational disposal price of land for different land uses Professional fee for the preparation of Master Plan/comprehensive plan (in Rs. per hect.) Professional fee for the preparation of zonal development plans Professional fee for the preparation of sector layout and site plan (in Rs. per hect.) Proposed fee structure for different types of planning

660 661 661 661 662 663 678 687 705 706 706 706 707 707 720 721 743 757 758 758 759

17 R.G. GUPTA -–1995 www.rgplan.org

LIST OF MAPS No.

Description

Page No.

HOUSING IN SOME CITIES OF INDIA 10.1 10.2 10.3 10.4 10.5 11.1 11.2 11.3 11.4 11.5 12.1 13.1 13.2 14.1 14.2 16.1 17.1 18.1

Bombay Metropolitan Region ………………………………………… Location plan of sites and services at Charkop-Kandivali ….......... Layout plan of Charkop Part-II; Kandivali-Bombay ………………… Typical design-30 sq.mt. plot; New Bombay, CIDCO ……………… Walk up 5-storeyed apartments in Bombay ………………………… Location of projects of sites & services (Madras Metropolitan Area) …………………………………………………………………… Sites & services at Arumbakkam (Madras Metropolitan Area) …… Sites & services at Mogappair East (Madras Metropolitan Area) … Sites & service at Manali Phase-II (Madras Metropolitan Area) … Details of a typical sector at Manali Phase-II (Madras Metropolitan Areas) …………………………………………………………………… Calcutta Metropolitan District………………………………………… National Capital Region: Traffic & Transportation Plan – 2001 … National Capital Regional: Settlement Pattern-2001 ……………… Layout plan of IDA Aided Kanpur Urban Development Project … Building plans; EWS, IDA Aided Kanpur Urban Development Project …………………………………………………………………... Master Plan – Noida – 2011 ………………………………………… Strategy of housing for Metropolitan Cities of the Country ……… Strategy of housing for Delhi – 9 Important Factors ………………

117 118 119 120 121 137 138 139 140 141 157 167 165 170 171 192 207 218

SURVEYS AND THEORIES 19.1 20.1 20.2 20.3 20.4 20.5 20.6 20.7 20.8 20.9 20.10 20.11 20.12 20.13 21.1 21.2 22.1 23.1 24.1

Basics of Urban Basic Services ……………………………………… Growth of squatters during the past four decades (1951-91) …… Environmental conditions in 29 sampled clusters ………………… Type of structure of shanty (Jhuggi) ………………………………… Use of shanty in 29 sampled clusters ……………………………… Distribution of medical facilities within and on the periphery ……… Age and sex composition of 29 Sampled clusters ………………… Size of family (members) in 29 Sampled clusters ………………… Number and percentage of earners in 29 sampled clusters ……… Reasons of migration to Delhi ……………………………………… Year of migration of squatters to Delhi …………………………….. Percentage of households migrated from various States ………… Distance between place of living and working in shanty clusters of Trans Yamuna Area …………………………………………………… Mode of transport used in shanty clusters of Trans-Yamuna Area Typical design for a service centre ………………………………… Elevation and Section of a typical service centre ………………… Components of large size mapping ……………………………….. Important components of Urban Land Development Policy ……… Important components of Urban Development Strategies ………

232 265 266 267 268 269 270 271 272 273 274 275 276 277 297 298 308 337 346

18 R.G. GUPTA -–1995 www.rgplan.org

25.1 25.2 26.1

Formulation of theory of landuse …………………………………… How to find resultant of landuse …………………………………….. Components for design of high rise buildings ………………………

357 358 368

NEW MODELS OF PLANNING 28.1 30.1 31.1 32.1 32.2 32.3 33.1 33.2 34.1 34.2 34.3 34.4 34.5 34.6 34.7 34.8 34.9 34.10 34.11 34.12 34.13 34.14 34.15 34.16 34.17 35.1 35.2 36.1 36.2 37.1 37.2 39.1 39.2 39.3 39.4 39.5 39.6 40.1 40.2

Cluster design of 18 sq.mt. plots in new resettlement colonies …… Dimensions of physical and socio-economic infrastructure for a city of one million ……………………………………………………. Typical design for Transit Camp Unit (10 sq.mt. plots)………… Layout plan of In/Around Situ development at Seelampur Complex Grouping of 6 DUs around a central court-yard …………………… Cluster design of 42 DUs …………………………………………… Planning zones of Delhi ……………………………………………… Map of Trans-Yamuna Area ………………………………………… Location of shanty clusters and resettlement colonies …………… Typical layout plan of 500 plots of 21 sq.mt. ……………………… Patparganj Complex (Khichripur, Kalyanpuri, Trilokpuri and Himmatpuri), Delhi …………………………………………………… Khyala resettlement colony, Delhi ………………………………….. Sultanpuri resettlement colony, Delhi ……………………………… Shakarpur resettlement colony, Delhi …………………………….. Nand Nagri resettlement colony, Delhi ……………………………… Gokalpuri resettlement colony, Delhi ……………………………… Jahangirpuri resettlement colony, Delhi …………………………… Proposed two-storeyed model for Bhoomiheen Camp – Kalkaji, Delhi……………………………………………………………………. Bhoomiheen Camp – type design of units ………………………… Layout plan of EWS housing-18 sq.mt., Kondli-Gharoli (Sector-B), Delhi……………………………………………………………………... Housing unit-18 sq.mt. Kondli-Gharoli (Sector-B), Delhi ………… Layout Plan of LIG Housing – 25 sq.mt., Kondli-Gharoli (SectorC), Delhi ………………………………………………………………… Housing unit LIG-25 sq.mt. Kondli-Gharoli (Sector-C) Delhi ……… Layout plan of EWS housing Area 13.5 sq.m. Kondli-Gharoli, (Sector-D), Delhi ……………………………………………………… Housing unit (13.5 sq.mt.) Kondli, Gharoli ……………………….. Location of urban villages …………………………………………… Development plan of Village Garhi Peeran (West Delhi) ………… Concept of planning of rural villages ………………………………… Economy of development of rural villages ………………………… Typical Plan – 26 sq.mt. plot ………………………………………… Concept – Skeleton Housing ………………………………………… Walled City of Delhi and surroundings ……………………………… Classification of road network by vehicular volume ……………… Classification of road network by percentage of slow vehicles …… Classification of road network by vehicular journey speed ……… Classification of road network by peak hour pedestrian volume … Zonewise distribution of wholesale shops in Urban Delhi – 1981 Location Plan of slum areas in Delhi ………………………………… Location plan of the project ……………………………………………

392 419 426 437 438 439 474 475 494 495 496 497 498 499 500 501 502 503 504 505 506 507 508 509 510 541 542 557 558 568 569 596 597 598 599 600 601 610 611

19 R.G. GUPTA -–1995 www.rgplan.org

40.3 40.4 40.5 40.6 40.7 40.8 41.1 41.2 41.3 41.4 41.5 41.6

Layout plan of the complex …………………………………………. Ground floor plan showing 16 residential units …………………… First floor plan showing 8 residential units ……………………….. Second floor plan showing 8 residential units …………………….. Third floor plan showing 4 residential units ………………………… A typical cross-section ………………………………………………… Location Plan of the project of Mudewalan ……………………….. Circulation pattern …………………………………………………… Proposals as given in the Zonal Plan ……………………………… Emerging landuse pattern …………………………………………… Detailed design of housing cluster ………………………………….. A tentative layout plan of the Complex ………………………………

612 613 614 615 616 617 628 629 630 631 632 633

Connected Issues with Housing 43.1 43.2 44.1 45.1 46.1 46.2 46.3 49.1 50.1 51.1 51.2

Proposed cycle tracks in Delhi ……………………………………………. Cross section of a proposed express and exclusive cycle track ……… Area in the south of Mehrauli Mahipalpur and Mehrauli Badarpur Road between railway line from Delhi to Mathura and NH-8 ……………….. River Yamuna in the National Capital Territory of Delhi ……………… National priority cities …………………………………………………........ State priority cities ………………………………………………………….. Spatial Priority Urbanisation Regions (SPUR) ………………………….. Essential components of joint venture and private sector involvement in development of urban spaces …………………………………………….. Essential components of planning practice and professional charges …. Elements of National Housing Policy ………………………………………. Role of development authorities ……………………………………………

671 672 681 699 711 712 713 753 762 782 783

20 R.G. GUPTA -–1995 www.rgplan.org

LIST OF APPENDICES PART ONE – HOUSING IN SOME COUNTRIES No. 1.1 1.2 1.3 1.4 1.5 1.6 1.7

Description

Page no. 12 13 15 16 16 19 21

Metropolitan Housing Projects at Beijing Metropolitan Housing Projects at Jakarta Metropolitan Housing Projects at Bangkok Metropolitan Housing Projects at Kaula Lampur Metropolitan Housing Projects at Seoul Metropolitan Housing Projects at Manila Metropolitan Housing Projects at Dhaka

PART TWO – HOUSING IN SOME CITIES OF INDIA 10.1 13.1

Special projects of Bombay under World Bank Housing requirements in the priority and Delhi Metropolitan Area (DMA) towns by 2001

114 163

PART THREE – SURVEYS AND THEORIES 19.1 19.2 20.1 20.2 21.1 21.2 21.3 21.4 23.1 23.2

23.3

23.4

Performa of Urban Basic Services Programme (Ministry of Urban Development) Review of Urban Basic Services (1989), Delhi Names of 29 selected shanty clusters for survey along with number of families, 1983 Questionnaire for the survey of shanty clusters. Statement showing type and use of encroachment/squatting on Master Plan Roads in Planning Zone E (Trans Yamuna Area) Statement showing type and use of encroachment/squatting on major Master Plan roads in Planning Zone F (South Delhi) Statement showing type and use of encroachment/squatting on major Master Plan roads in Planning Zone G (West Delhi) Statement showing type and use of encroachment/squatting on major Master Plan roads in Planning Zone H (North-west Delhi) Basic policy of large scale acquisition, development and disposal of land Statement showing one-time conversion charges for various size of plots/categories of flats/tenements allotted by Delhi Development Authority/Slum Wing (DDA) and flats constructed by Group Housing Societies on lands leased by Delhi Development Authority. Statement showing additional conversion charges for covered area put to other than residential use. (This would be in addition to the nominal conversion charges payable as per Appendix no. 23.2) Schedule of market rates of land in Delhi/New Delhi applicable for conversion upto 31.3.92.

226 230 261 263 293 294 295 296 326 330

331

21 R.G. GUPTA -–1995 www.rgplan.org

PART FOUR – NEW MODELS OF PLANNING 29.1 29.2 29.3 29.4 29.5 29.6 32.1 33.1

Colonies which were developed for resettlement of squatters by DDA/MCD upto 1975 Resettlement colonies developed during 1975-77 Details of facilities in new resettlement colonies as on 15.3.1977 Infrastructure required as per standards and provided in resettlement colonies Number of educational and shopping facilities in resettlement colonies Master Plan, Zonal Plan and local level community facilities sites required as per Delhi Master Plan-62 Estimates of the project of In/Around situ construction / site upgradation programme at Seelampur Details of Section-8 of Delhi Development Act 1957

400 401 402 403 404 405 436 463

PART FIVE – HOUSING IN SUB STANDARD AREAS OF DELHI 34.1 34.2 35.1 35.2 35.3 35.4 35.5 35.6 35.7 36.1 37.1 38.1 39.1

Area statement of resettlement colonies developed upto 1980s Total picture of resettlement colonies in three phases Names, population and location of 111 urban villages in Delhi Land use analysis of urban villages in Delhi Position of socio-economic conditions of 52 villages as on January, 1985 Rates of development of infrastructure in villages List of household industries as per Master Plan of Delhi – 2001 List of industries not permitted in urban or rural villages Industries which are neither household nor noxious and nuisance but in intermediate category Names and population of rural villages and censes towns as per 1981 census List of group housing pockets available in the urbanized villages. Norms for social infrastructure Parking Surveys in the Walled City of Delhi

491 493 519 521 529 532 535 536 540 554 567 583 595

PART SIX – CONNECTED ISSUES WITH HOUSING 42.1 42.2 42.3 46.1 49.1 50.1 51.1 51.2

Comparative statement of Economically Weaker Section housing by different organizations in the exhibition held at Delhi Comparative statement of LIG housing by different organizations in the exhibition held at Delhi Comparative statement of rural housing by different organizations in the exhibition held at Delhi in 1975 Latest technologies for power system development at national level Definitions of 9 financial terms used in financial analysis to qualify builders/developers Scale of professional fees for partial services Achievements of DDA during the last three decades National Housing Policy

644 648 653 710 752 760 771 773

22 R.G. GUPTA -–1995 www.rgplan.org

PART ONE

HOUSEING IN SOME COUNTRIES

23 R.G. GUPTA -–1995 www.rgplan.org

1 Shelter Strategy at Global Level 1.0 1.1 1.2 1.3 1.4 1.5

General Perception of Housing A National Structure for Shelter Strategy Formulation – UNCHS (Habitat) Considerations when Formulating a National Strategy – UNCHS (Habitat) Conclusions and Plan of Action – UNCHS (Habitat) Factors to Improve Housing Situation Inferences from Housing Projects at Global Level

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 1 to 23)

2 Housing in China1 2.0 2.1 2.2 2.3 2.4 2.5

Background National Level – General Information Beijing – the capital of the country Housing in Beijing Housing Backlog and Policies to remove the same Residential Sub District of XIAOHOCANG

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 24 to 31)

1

Source: Case reports of Second International Housing Training Seminar on improving metropolitan living environments through strengthening housing sector activities. Case of Beijing China. United Nations Centre for Regional Development, Nagoya – Japan, March, 1990.

24 R.G. GUPTA -–1995 www.rgplan.org

3 Housing in South Korea2 3.0 3.1 3.2 3.3 3.4 3.5

Background Housing in General Housing at National Level Seoul – The Capital of Korea (Republic of) Housing Position in General Project (Wallgye-Dong Housing Complex)

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 32 to 38)

4 Housing in Indonesia3 4.0 4.1 4.2 4.3 4.4 4.5 4.6

Background National Level – General Information Population Characteristics Policies for Housing (Existing System) Charges in the Thrust of Metropolitan Housing Policy during the Seventees Special Programmes for Low Income Groups Specific Project of Urban Renewal of Jakarta in Kebon Kacang

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 39 to 45)

2

Source: *Second International Housing Training Seminar. Improving the Performance of the Metropolitan Housing Sector against a Background of Socio-economic and Physical change. United Nations Centre for Regional Development, Nagoy-Japan, March, 1990 Case Report – case of Seoul, Korea (Republic of) 3 Source: *Second International Housing Training Seminar, Improving the Performance of the Metropolitan Housing Sector Against a Background of Socio-eonomic and physical change. UN Centre for Regional Development, Nagoya, Japan.

25 R.G. GUPTA -–1995 www.rgplan.org

5 Housing in Bangladesh 5.0 5.1 5.2 5.3

Background National Level – General Information Housing in Dhaka – The Capital City Residential Schemes

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 46 to 50)

6 Housing in Pakistan4 6.0 6.1 6.2 6.3 6.4 6.5

Background National Level – General Information Karachi – Capital of the Country Housing in Karachi Plotted Development in Karachi Squatter Settlement (Katchi Abadi)

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 51 to 58)

4

Main Source: Case Report – Case of Karachi, Pakistan, 2nd International Housing Seminar on Improving the Performance of the Metropolitan Housing Section against a background of socio-economic and Physical change.

26 R.G. GUPTA -–1995 www.rgplan.org

7 Housing in Malaysia5 7.0 7.1 7.2 7.3 7.4

Background National Level – General Information Population and Housing Characteristics of Kuala Lumpur Policies on Housing Specific Project – Sri Melaka Flats: Cheras Kuala Lumpur

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 59 to 67)

8 Housing in Sri Lanka6 8.0 8.1 8.2 8.3 8.4

Background National Level – General Information Position of Housing in Colombo Metropolitan Region Urban Land Policy Specific Project of Navaga Pura (Sites and Services)

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 68 to 76)

5 Main Source: Case Reports: Case of Kuala Lumpur, Malaysia; 2nd International Housing Training Seminar, Improving the Performance of Metropolitan Housing Sector against a Background of socio-economic and physical change. UN Centre for Regional Development, Nagoya, Japan. 6 Main Source: *Case Report of 2nd International Housing Training Seminar, Improving the performance of the Metropolitan Housing Sector against a Background of Socio-economic and physical change. Case of Colombo, Sri Lanka. UN Centre for Regional Development, Nagoya, Japan

27 R.G. GUPTA -–1995 www.rgplan.org

9 Housing in Philippines7 9.0 9.1 9.2 9.3 9.4

Background National Level – General Information National Characteristics Urban Land Policy Specific Project – Sitio Maligaya, Quezon City, Manila

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 77 to 84)

7

Main Source: *Case Reports: Second International Housing Training Seminar, Improving the Performance of the Metropolitan Housing Sector against a background of socio-economic and physical change - case of Manila – Philippines. UN Centre for Regional Development, Nagoya, Japan

28 R.G. GUPTA -–1995 www.rgplan.org

PART TWO

HOUSING IN SOME CITIES OF INDIA

29 R.G. GUPTA -–1995 www.rgplan.org

10 Housing in Bombay 10.0 10.1 10.2 10.3

Basic Facts Bombay Through 200 B.C. – 1981 A.D. Planning Authorities in Bombay Metropolitan Region Urban Settlements and Local Authorities in Bombay Metropolitan Region 10.4 Planning Legislation Concerning to Urban Planning and Housing 10.5 Housing up to 1970s 10.6 Housing in 1980s (B.U.D.P.) 10.7 Slum Upgradation Programme (SUP) in Bombay 10.8 Guided Development – A Joint Venture in Land Development 10.9 Latest Development Control Regulations for Greater Bombay – March 10.10 Redevelopmentof Dharavi Complex under Prime Minister’s Grant (Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 87 to 121)

11 Housing in Madras 11.0 11.1 11.2 11.3 11.4 11.5

Basic Facts about Madras 1984-85 Directions of Planning in Sixties and Seventies in Madras Existing Position of Housing in Seventies World Bank Projects Concerning Development and Construction of Urban Spaces Lands and Housing Total Position

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 122 to 141)

30 R.G. GUPTA -–1995 www.rgplan.org

12 Housing in Calcutta 12.0 12.1 12.2 12.3 12.4 12.5 12.6 12.7

Historical Background Dimensions of Calcutta Legislative and Institutional Measures in Urban Development Slum Improvement Programme of CMDA – 1970-90 Calcutta Urban Projects Issues, Policies and Strategy Future Housing Programme Investment Needs: 1990 - 2015

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 142 to 157)

13 Housing in National Capital Region 13.0 13.1 13.2 13.3

National Capital Region (NCR) Plan & its Dimensions Broad Functions of National Capital Region (NCR) Housing Involvement of Private Sector in the Development and Construction of Urban Spaces

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 158 to 165)

31 R.G. GUPTA -–1995 www.rgplan.org

14 Housing in Kanpur 14.0 14.1 14.2 14.3

Brief Profile of Kanpur Kanpur Urban Development Project (KUDP) World Bank Project Components Cost Recovery, Pricing and Affordability

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 166 to 171)

15 Housing in Indore 15.1 15.2 15.3 15.4

Housing – Existing Situation Housing Requirements Housing Proposals Low Cost Housing Project at Indore

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 172 to 178)

32 R.G. GUPTA -–1995 www.rgplan.org

16 Housing in Noida 16.1 16.2 16.3 16.4 16.5

Basics about Noida Salient Features of the Master Plan of Noida (2001 A.D.) Characteristics of Housing Existing System of Housing in Noida Proposed Policy for Housing in Noida

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 179 to 192)

17 Metropolitan Cities 17.0 17.1 17.2

Background Data about Urbanisation and Housing Proposed Housing Strategy

(Source: Shelter for poor in The Fourth World – Vol. 1 - From Page No. 193 to 207)

33 R.G. GUPTA -–1995 www.rgplan.org

18 Housing in Delhi 18.0 18.1 18.2 18.3 18.4 18.5 18.6

Background – Housing Population and Land Requirements Housing Needs Housing Backlog Housing Supply Strategy to be Adopted Outline of Typical Types of Housing

18.0 Background-Housing Housing has been defined in details in the preface and Chapter-1 of the book. It is not merely a physical shell, but it engulfs a complete range of physical, social, ecological and economical infrastructure to fulfill the basic needs of man which are biological, physiological, psychological or primary, secondary and tertiary. Housing is of different types and the differentiations are in terms of-(i) floor areas (ii) type of construction (iii) life of building (iv) planned or unplanned (v) income groups (vi) degree of sub-standardness as shanty clusters, squatter settlements, unauthorized colonies, urban villages, rural villages and designated slum areas vii) public, cooperative and private housing etc.

18.1 Population and Land Requirements (i)

Population of Delhi in the last 90 years: The population of the National Capital Territory of Delhi has in creased in the manner, as given in Table 18.1.

Table 18.1: Population of Delhi from 1901 to 1991 Year

Population

1901

405,819

1911 1921 1931 1941

413,851 488,452 636,246 917,939

34 R.G. GUPTA -–1995 www.rgplan.org

1951 1961 1971 1981 1991

(ii)

1,744,072 2,658,612 4,065,698 6,220,406 9,370,475

Decadal rate of growth of population of Delhi is as shown in Table 18.2.

Table 18.2: Decadal rate of growth of population in Delhi

Year

Growth Rate

Remarks about growth

1901-11 1911-21 1921-31 1931-41 1941-51 1951-61 1961-71 1971-81 1981-91

1.98 18.03 30.26 44.27 90.00 52.44 52.93 53.00 50.64

Growth in negligible It is average growth rate It is about 50% more. It is further 50% more. Due to partition of the country.

(iii)

Growth has started decreasing.

Population of Delhi by the end of 8th Five Year Plan (1992-97): On the basis of the population estimates of the Registrar General of India, as well as population projections given by Delhi Master Plan 2001, and of the Working Group constituted by the Lieutenant Governor, Delhi on 24 May, 1989, population zone-wise of Delhi would be 11 million by the end of the 8th Five Year Plan (1992-97), with a break up given under and shown in Map 33.1.

Name of the zone/sector

(A) (B) (C) (D) (E) (F) (G) (H) (J) (K) (L) (M) (N) (O)

Growth is Static.

Walled city and extn. City extension Civil lines New Delhi Trans Yamuna South Delhi I West Delhi I North west Delhi South Delhi II West Delhi II West Delhi III North west Delhi II North west Delhi III River Yamuna

Area in hect.

Projected population in million by 1997

1159 2304 3959 6855 8797 11959 11865 5677 15178 12056 22979 8213 15851 6081

.42 .63 .79 .75 2.13 1.27 1.43 1.76 .25 .55 .15 .35 .15 -

35 R.G. GUPTA -–1995 www.rgplan.org

(P)

North Delhi

Total

(iv) (a)

15057

.4

147989

11.03

Lands in Delhi: Position of acquired land in Delhi As on 31 March, 1990, the directional zone wise position of acquired land was as shown in Table 18.3. Table 18.3: Position of acquired lands in Delhi Name of the Zone

1. 2. 3. 4. 5. 6.

East North South-east West South-west Rohini Total

Area in hect. 590.64 329.49 161.67 1915.01 354.30 748.00 4099.11

(a)

4099.11 hect. of land were including pockets of lands partly encroached upon and partly under stay orders. As such, it was assumed that only 4000 hect. of land was available for the purpose of development and construction of urban spaces for different land uses i.e. residential, commercial, recreational, circulation etc. at that time.

(b)

During April 1990-March, 1991, 5826 hect. of additional land was in the process of acquisition at Dwarka Phase-I & II, Narela, Rohini Phase-II.

(c)

Land requirements for housing units by the end of 8th Five Year Plan (199297). Assuming that 600,000 housing units of various categories in public, cooperative and private sector were to be constructed, besides environmental improvement to be made in shanty clusters and slum areas but including 80,000 small dwelling units of 12.5 sq. mt. to be constructed on the basis of ‘In/around sit’ construction, and 7500 units on the existing lands in slums or in existing acquired pockets. Based on this, land is required only for the construction of 600,000-(80,000 + 7500) = 512,500 housing units. A justified city density of 40 dwelling units per hect or 200 persons per hect. was assumed for calculating the requirements of lands. On this basis, total required land was 12180 hect. Of this, DDA already had 4000 hect. of land, thus necessitating acquisition of another 8810 hect. (22025 acres) of land. This quantum of land was partly being acquired and the balance was to be 36 R.G. GUPTA -–1995 www.rgplan.org

acquired in north and North West Delhi; namely Narela, Bawana, Alipur, Rohini extension, Dwarka part II etc. at that time.

18.2 Housing Needs As per projections given in the Delhi Master Plan-2001, in 1981, 1.15 million households were living in the urban area of Delhi, in different types of houses namely- shanty clusters, resettlement colonies, unauthorized colonies, unauthorized regularized colonies, urban villages, slum areas and approved colonies. The Master Plan of Delhi also predicts that during 1981-2001, 1.30 million more households would be added in different parts of Delhi, thus making a total of (1.15 + 1.30) = 2.45 million households or about 12.5 million population in Urban Delhi. By the end of 8th Five Year Plan, for a total projected population of 11.0 million, 2.2 million households would be there including 1.15 million households of 1981 i.e. an addition of (2.20 – 1.15) = 1.05 million or 1050000 households. This addition would be of course, in existing built up settlements/structures, and in new construction to be added and also in environmentally improved areas.

18.3 Housing Backlog It is calculated by adding natural growth of population and migration to present housing shortage. Housing backlog by the end of 8th Five Year Plan (1992-97) = housing shortage in March 1992+ natural growth in five years + migration in five years i.e. (450,000 + 175,000 + 200,000) = 825,000. To wipe out the backlog of housing in Delhi, 825,000 housing units would have to be constructed in public, private and cooperative sector by different authorities, organizations and departments, viz.-(i) Main DDA; (ii) Slum Wing/Board; (iii) Co-operative House Building Societies; (iv) Departments of Govt. of National Capital Territory of Delhi, namely-Police, Education, Health etc. (v) Employees housing by various departments; (vi) Scavengers housing; (vii) Increment in housing stock by individuals and cooperative societies in existing private colonies as a result of liberalization and re-densitification in Mater Plan of Delhi-2001; (viii) Addition of housing stock due to construction in sub-standard areas namely, unauthorised-regularised colonies, unauthorized colonies and urban villages.

18.4 Housing Supply Housing supply should be equal the demand for houses. In case of Delhi, 825,000 housing units should have been supplied in the period during April, 1992 - March, 1997. It is clear that such a large number of houses cannot be 37 R.G. GUPTA -–1995 www.rgplan.org

constructed by one or two authorities or departments. Contribution has to be made by the public, the cooperative and private sector, in term of land, lab our and capital resources. A tentative programme to add 825,000 houses during the 8th Five Year Plan has been given in Table 18.4. Table 18.4: Housing programme projected by Delhi Development Authority of Delhi for the period 1992-97, in March, 1992 (i)

Housing by Main DDA: (a) (b) (c) (d)

For registrants with DDA For 1988-89 SC/ST registrants (Ambedkar Yojna) For registrants with Slum Wing/ Board For housing in private sector on 45,856 plots to be developed and allotted by DDA to individuals in Rohini

Sub Total (ii)

237,913

Slum Wing/ Board (a) (b) (c)

Development of 18 sq. mt plots of sites and services Housing in Slum Katras Construction of DUs in/around situ in shanty clusters

Sub Total (iii)

98,508 20,000 27,693 91,712

80,000 7,500 80,000

1,67,500

Co-operative House Building Societies: In 1983 1411 new cooperative societies were registered with a total number of 1,57,678 members. It was expected to allot land to 412 societies in the 8th Five Year Plan and balance in the 9th Five Year Plan, about 60,000 DUs would be made available

60,000

(iv)

DUs by other Departments namely-Policy, Employees Housing, Institutional Housing, Scavengers Housing

47,500

(v)

Increment in housing stock by individuals, co-operatives in existing private colonies as a result of liberalization and redensitification of MPD-2001, with the following break-up: (a) (b)

On plotted co-operative H.B. Societies On Co-operative House Building Group Housing Societies On DDA allotted plots On plots in private colonies

31,000 44,000

Addition of housing stock due to construction in substandard areas

77,500

(c) (d) (vi)

75,000 10,000

38 R.G. GUPTA -–1995 www.rgplan.org

(a) (b) (c) (vii)

Unauthorized regularized colonies Unauthorized colonies Urban villages

Environmental improvements in shanty clusters Grand Total

25,000 50,000 2,500 80,000 8,30,413

It would be something more than the demand, if implemented.

18.5 Strategy to be Adopted (Map 18.1): (i)

Involvement of non-govt, organizations and formulation of Co-operative House Building Societies; So far in Delhi the cooperative sector had constructed about 1,40,000 DUs by plotted societies as well as Group Housing Societies. another 1,58,000 houses are expected to be added by the end of the century, thus making a total of 2,98,000 DUs; i.e. at the average rate of 7450 DUs per year. Most of these Cooperative Societies are for high and middle income group and only a low percentage is for low income group and even lesser for the economically weaker sections of the society.

Now there is a strong move to make Co-operative House Building Societies for the economically weaker sections of society i.e. for people living in shanty clusters and slum areas. Once this movement is started and becomes successful a lot of planning, development and construction problems can be solved for this particular section of the society. (ii)

Planning and development of housing space would be on an integrated basis and in most of the future schemes of DDA the distribution of net residential land would be as under:

(a)

30% for co-operative House Building Societies including alternate allotments to the families whose land were acquired. (b) 10% for government departments for their employees housing. (c) 20% for DDA group housing for registrants under various categories. (d) 20% for plotted development to be developed by Development Authority. (e) 15% for shanty dwellers for their resettlement and rehabilitation. (f) 5% for auction.

(iii)

More emphasis should be paid to plotted development rather than group housing primarily due to the following reasons:

(a)

Maintenance of common areas and services in plotted development is easier, since the major share of responsibility rest with the individuals i.e. with the private sector; (b) Better urban form due to personal attention of individuals; (c) Less involvement of public agencies who should act only as facilitators and not as directors or constructing 39 R.G. GUPTA -–1995 www.rgplan.org

agency; (d) More number of housing units due to involvement of more and more private resources. In the last seven five year plans of the country, 89% housing units in financial terms has been completed in private sector and only 11% in public sector. (iv)

New types and new system of housing should be encouraged.

For this, the following new technologies should be adopted: (a) Pre-fab construction; (b) Skeleton housing technologies; (c) Incremental type of housing; (d) Lump sum contract and turn-key contract. (v)

Involvement of more and more private sector with private re sources with a competitive spirit and not a conflicting one, with proper controls. Details are given in chapter 49 (Involvement of private sector and Joint Venture in the development and construction of residential and commercial urban spaces).

(vi)

More and more Research & Development (R&D) on the subject of housing, specially for economically weaker sections and low income groups of the society. In the Housing Policy of India 1% is proposed for R & D.

(vii)

Detailed comprehensive planning at macro, meso and micro level and making available main building materials, namely-bricks, cement, steel, timber, plastic and pipes to the public at large should be done. For the construction of about 600,000 dwelling units in 8th Five year Plan, each of average 50 sq. mt. plinth area, 16 billion bricks, five million ton cement and 8,50,000 ton steel are require. Availability of building material needs a proper annual and five year plan.

(viii)

Maintenance of engineering services of all types of residential and nonresidential complexes should be done by Municipal Corporation of Delhi, rather than by a development authority.

(ix)

Part of the cost of rehabilitation of squatter families should be charged from projects owning authorities, who ultimately would be benefited by the scheme of shifting of shanties.

18.6 Outlines of Typical Types Housing 18.6.1 E.W.S. Housing (i)

Economics of the Scheme Parameters to work out economics of the scheme

40 R.G. GUPTA -–1995 www.rgplan.org



Cost of construction of DU of 28 sq. mt., having two rooms, at the rate of Rs. 2,400/- per sq. mt. (including cost of internal development, but excluding cost of peripheral and trunk development) would be Rs. 67,200. Peripheral development should be subsidised by development authority; say DDA in case of Delhi. Trunk infrastructure development to be subsidized from Plan Funds of Government of National Capital Territory of Delhi i.e. by the government’s fund. A loan of Rs.20,000 per unit from Plan Funds of Government of National Capital Territory of Delhi @ interest of 9%. Investment by DDA of Rs.20,000 per unit by taking loan from Plan Funds or otherwise @ interest of 9% Beneficiary has to pay Rs.67m200 – Rs. 40,000 = Rs. 27,200 initially and the balance in 15 years. Monthly installment by taking 9% interest would be Rs. 399 per month or Rs. 1017 quarterly. If the cost of the house increases more than Rs. 67,200, the beneficiary would have to pay correspondingly more than Rs.27,200. This has been worked out and given below.

• • • • •

Table 18.5 (ii): Break up of number of housing units year-wise with required financial provisions in the 8th plan

Year

No. of DUs Loan from Plan Funds

Investment By DDA

Contribution by beneficiaries

1993-94

8000

160

160

217.6

1994-95 1995-96 1996-97 Total

10000 12000 13886 43886

200 240 278 878

200 240 278 878

272.0 326.4 377.7 1193.7

Total expenditure

(iii)

Rupees in Millions

Rs. 2949.7 million or say Rs. 2950.0 million

Requirement of Plan Funds for EWS Housing Scheme: For the construction of 43886 EWS housing units, financial requirements area as under: • • •

Total amount = 43,886 X Rs. 67,200 = Rs. 2949.7 million Loan under Plan Fund = 43,886 X Rs.20,000 = Rs. 878 million Amount to be paid by beneficiaries = 43,886 X Rs. 27,200 = Rs. 1193.7 million 41 R.G. GUPTA -–1995 www.rgplan.org



Amount to be invested by DDA = 43,886 X Rs. 20,000 = Rs. 878 million

(iv)

On this basis, project of construction of 43886 dwelling units can be undertaken by Delhi Development Authority.

18.6.2

Relocation Scheme (Sites and Services) In 1991, it was estimated that at that time there were about 240,000 shanty families, out of which 80,000 were situated on project sites and as such were to be shifted on developed plots of sites and services during 8th Five Year Plan period. For this, 80,000 plots @ 16,000 plots per year, each of about 18 sq. mt were to be developed with physical infrastructure on Group basis and social infrastructure on Master Plan-2001 reduced norms, as done in 1975-76. Details on the philosophy of the same have been given in Chapter 34 (Physical planning of resettlement colonies).

18.6.3

In/Around Situ Development and Construction of Urban Space in Terms of Small Dwelling Units Under this category, it was proposed to construct 16,000 small dwelling units of 12.5 sq. mt. This entire system of development/construction would be with the help of cooperative house building societies. Funds for the development of land would be from Plan Funds of Delhi Admn. And construction of dwelling nits from institutional finance i.e. HUDCO and other financial institutions, ultimately to be paid by beneficiaries. Details have been given in Chapter 32 (The Quality of Life).

18.6.4

Environmental Improvement (E.I.) Program me in Urban Slums & Squatter Settlements) There is a program me of development of infrastructure in the category of environmental improvement by way of-(i) construction of brick roads and paths (ii) water hydrants/hand pumps (iii) street light (iv) dhalaos and (v) drainage. For this, Slum Wing/Board, gets a fund @ Rs. 500 per head. This fund is inadequate due to increase in cost of material and labor and otherwise also. Under low cost sanitation, a separate plan fund is also provided by Delhi Government to Slum Wing/Board for the construction of Sulabh Shauchalayas (pour flush latrines) in different parts of Delhi. In the 8th Five Year Plan, Environmental Improvement (E.I.) would be @ 16,000 families per year This figure has not been added up in the housing stock to be constructed in Delhi, but has been added in the housing supply of 825,000 units in the 8th Five Year Plan. 42 R.G. GUPTA -–1995 www.rgplan.org

18.6.5

Urban Basic Services Program me (U.B.S) Details have been given in Chapter 19 (Urban Basic Service Program me (UBS) in India with special reference to Delhi.

18.6.6 (i)

(ii)

(iii)

(iv)

(v)

(a)

Cooperative Sector Housing Allotment of raw land only with peripheral development on the basis of plotted development was made to Group-I, Group-II, and Group-IV Cooperative Societies, mostly in fifties and sixties. In the first three categories of Group-I, II, and III, 37 Co-operative Plotted Societies were allotted land. In Group-IV Co-operative Plotted House Building Societies, allotment to 84 societies was made. Total number of housing units made available by these plot ted societies were 56,000 by taking average of two dwelling units on each plot. From 1972, registration of group housing societies was started. In the first phase, 79 group housing societies were registered and 80 hect. of land was allotted to them to get about 10,000 dwelling units. • In the second phase of group housing societies in the year 1979-80, 424 societies were registered and an area of 400 hect. was allotted to them to provide a housing stock of 72,000 DUs. Hence in Phase-I, Phase-II, 138,000 housing units would have been constructed Third registration which was the last one till 1993 was started in the year 1983-84 and more than 1400 group housing societies were registered. In the registration, about 1,57,678 member were there. It was expected that 150,000 housing units would be constructed by them in the 8th and 9th Five Year Plans. From the above figures, it is clear that the role of the cooperative sector is important. In the 8th Five Year Plan, it was proposed to construct 12,000 houses per year by various cooperative hosue building societies to add 60,000 houses during this plan period of 1992-97. Experience of the last 20 years dictates that development and construction of houses in cooperative sector can be further increased and improved if following three problems are tackled and solved: handing over possession of land to societies in time. (b) laying of peripheral and trunk services in societies complexes in time by development authorities and service departments of the government; like DWS&SDU, DESU, etc. (c) preparation of detailed comprehensive layout plans well in advance for the societies.

18.7 Requirements and Sources of Funds Requirements and sources of funds for 14 schemes are given in Table 18.6. It includes cost of internal development and construction of urban spaces, but not cost of acquisition of land, and cost of peripheral and trunk development. 43 R.G. GUPTA -–1995 www.rgplan.org

Table 18.6: Requirements and sources of funds for 14 schemes of housing in Delhi for 8th Five Year Plan 1992-97 Sl. No.

1.

2.

3.

4.

5. a. b.

c. 6. 7.

8.

9. 10. 11.

12.

Name & description of the Scheme

Plan Funds 8th Plan

By SLUM WING/Board (from Sr. No. 1 to 5) Relocation Scheme: Development of 80000 plots 480 each of 18 sq. mt. in Rs. 18,000, with a break up of Rs. 6,000 grant from the Central Govt. and the balance from other sources, ultimately from beneficiaries. In/around situ development and construction of 800 80000 DUs each at an average cost of development of Rs. 10000 from plan funds and Rs. 12,500 cost of construction from private sector (beneficiaries). E.I. Housing in jhuggi clusters for 80,000 families: Details not given Other EWS Housing: 15,000 housing units in five years at rate of Rs. 48,000 each unit with institutional and beneficiary funds. Structural improvement and reconstruction of Katras Repair of 3000 DUs @ Rs. 10,000 each. 30 Reconstruction of 1000 units @ Rs. 600,00 each 10 with a grant of Rs. 10000 and the balance to be invested by private sector (beneficiaries). Reconstruction of 3500 units by issuing NOCs @ Rs. 100,000 per unit. By DDA: DDA Group Housing: Construction of 1,20,000 DUs each at an average cost of Rs 1,50,000. Co-operative Housing: Construction of 60,000 DUs each at an average cost of Rs. 1,50,000 from private funds. Employees Housing: 20,000 DUs each at an 2000 average cost of Rs. 100,000, including 500 DUs for DDA. Institutional Housing: Construction of 2500 DUs at an average cost of Rs. 100,000 each. Police Housing : Construction of 2500 DUs, at an 125 average cost of Rs. 50,000 each. Construction of tenements in urban villages and 50 development of plots in rural villages for landless labourers, 500 units in each, giving total number of DUs 1,000. at an average cost of Rs.20,000 and Rs.10,000 respectively. Construction of 20,000 dwelling units by MCD & 400 NDMC for Scavengers Housing based on hire purchase system. Total cost of the scheme is

Private funds including institutional finance

960

1000

720

50

18000 18000 9000

-

250 100

2650

44 R.G. GUPTA -–1995 www.rgplan.org

13.

14.

Rs.3050 million and for this a seed capital of Rs.400 million is required HOUSING IN PRIVATE SECTOR WITH THE HELP OF DDA 1,00,000 DUs in private sector on 50000 plots to be developed by DDA @ Rs. 1,50,000 each unit including cost of development 88,800 houses to be constructed in private sector on lands to be developed by private sector at an average cost of Rs.200,000 per house. Total 3895

15000

17760

65840

Total required funds was, Rs. 69735 million with Rs. 3895 million from Plan Funds and the balance from private sector/Institutional finance. One of the MIG type design constructed at Prasad Nagar is given in Photograph 18.1.

45 R.G. GUPTA -–1995 www.rgplan.org

Map 18.1: Strategy of Housing for Delhi-9 Important Factors Distribution of Residential Land on Rational Basis 30% CHBS, 10% Govt. Deptt., 20% Plotted housing Development 15% shanty Dwellers, 20% Group Housing and 5% Auction Comprehensive and Integrated Planning At macro, Meso and Micro Level for Residential, Residential-cum- Commercial and Facilities Maintenance of Urban Spaces Water, Sewerage, Drainage, Power Etc., Street Furniture and Facades of Buildings More Plotted Development Due to More Involvement of Private Sector and Better Urban Form Requirements of Land, Labour and Capital New Technologies Specially Pre-Fab and Use of Flyash Involvement Of Private Sector Finances From Cross Subsidies Research and Development on the Subject

46 R.G. GUPTA -–1995 www.rgplan.org

PART THREE

SURVEYS AND THEORIES

47 R.G. GUPTA -–1995 www.rgplan.org

19 Urban Basic Service Programme With Special Reference to Delhi 19.0 19.1 19.2 19.3 19.4

Background New Schemes of Urban Basic Services Issues and Recommendations for the Scheme of Urban Basic Services (UBS) Proforma for Information System for the Scheme Urban Basic Services Scheme for Delhi

19.0 Background Earlier schemes of shelter for the poorest of the poor: As per the Master Plan of Delhi or even as per any other approved planning document, a planned urban area should have physical and social infrastructure as per norms laid down therein. Physical infrastructure includes water, sewerage, storm water drainage, power, tele-communication, gas supply and road circulation system. Social infrastructure includes facilities pertaining to education, health, social security, social justice, recreation, employment and shelter. Even Delhi, which is a planned city to a great extent, and is perhaps the most beautiful city in the country, has large sub-standard areas inhabited by 75% population of the Super Metropolitan City. At present in Delhi, 1.3 million population is living in shanty clusters, 18 million in designated slum areas, 1.2 million in unauthorized regularized colonies, 0.8 million in unauthorized colonies, 0.5 million in urban villages and 1.0 million in rural villages. The total cost of development of any new area with full physical and social infrastructure at trunk, peripheral and internal level is enormous and is very difficult, if to be developed at one stretch. Hence development has to be taken up in phases and through various schemes. The three schemes, names given under have not solved the problems of providing EWS housing and proper environment to the poorest sector of the society. (i) (ii) (iii)

Environmental improvement in shanty clusters and slum areas; In/Around Situ up gradation, development and construction of urban spaces in shanty clusters and Shifting of shanties in developed sites, called ‘sites and Services’. 48 R.G. GUPTA -–1995 www.rgplan.org

19.1 New Schemes of Urban Basic Services In 1986, the Govt. of India initiated and launched a scheme by the name of ‘Urban Basic Services Program me’ (UBS), with the following nine salient features. Main constituents of Urban Basic Services scheme have been shown in Map 19.1. (i)

(ii) (iii) (iv)

(v)

(vi) (a)

(vii)

(vii)

(ix)

To fulfill minimum basic needs of man viz. living, working and enjoying, within the available physical and financial resources, with the help of community participation and people’s involvement. It was stated clearly that without people’s participation, there would be no UBS program me. The scheme was meant for the poorest section of the society, specially for women and children. The scheme was to provide physical, social and economic infrastructure at an affordable cost so that it was within the available resources of the beneficiaries i.e. poorest of the poor. In any urban area, specially in metropolitan and super metropolitan cities, a lot of informal sector concerning to residential, industrial, commercial, institutional, public and semi-public facilities exists. With this scheme, new avenues were opened to deal with informal sectors. The program me was not only for the provision of physical infrastructure, construction of buildings for social infrastructure but most important was to increase the level of education, to make the people more healthy, to give them a sense of security, to make them get together and give them more confidence to improve their quality of life. The scheme was: different and better than ‘environmental improvement scheme’ in shanty clusters or slum areas; (b) less expensive, less time consuming and more acceptable to the community than in ‘INSITU up gradation, development and construction of urban spaces’; (c) much less painful than shifting of squatters to sites and services program me. The scheme was meant for a target group which is at the lowest level in term of generation of economy, education, health and environmental existence. The scheme was based on the system of-(a) equity; (b) involvement of the community; (c) recognition of the informal sector and (d) physical and social infrastructure. Self-respect, self-work and self-involvement were the slogans of the scheme.

19.2 Issues and Recommendations for the ‘Schemes’ of Urban Basic Services (U.B.S.)

49 R.G. GUPTA -–1995 www.rgplan.org

19.2.1 Conceptual Issues Issues (i)

(ii)

This was a new concept and various States and District Governments were not familiar with it. People at grass-roots level, initially, were not convinced.

Recommendations Training programmer should be organized to convince govt. depts.

People should be explained and convinced with the help of ratio, TV, and other mass media at the local, district and state level.

19.2.2 Personnel Issues Proper attention should be given in Staff working on the scheme was not appointment of staff and giving them full adequately motivated, UBS scale and other facilities as permissible in programmes were not implemented other govt. jobs. Proper norms should be established to work out the strength of speedily each Deptt.

19.2.3 Management and Monitoring Issues There was no proper information and feed back system between district, states, and TCPO which is the coordinating authority for the entire system.

Proper information system in terms of formats, proformas should be worked out. The information system should be streamlined and monitored with the help of computer system. For this the help of National Informatic Centre (NIC), Planning Commission should be taken.

19.2.4 Institutional Issues (i)

Non approval of posts and non- State Govts. Have to be persuaded and release of funds in time. requested to fill up the posts in time.

(ii)

Delays occur as some State Govts. Are not prepared psychologically to undertake special schemes. By its very nature, UBS calls for a new approach to program me planning and implementation.

It would be better if a mini Master Plan for each large project is prepared, of course, in consultation with the local people and experts.

(iii)

Lack of municipal support in term of staff, their capacity and finance. Accounting procedure is rigid. Non-realization of the scheme was a great constrain for successful implementation.

More and more discussions were to be undertaken with local authorities.

(iv) (v)

This can be sorted out with discussions. This needs further persuasion with the State Govts. and District Authorities.

50 R.G. GUPTA -–1995 www.rgplan.org

(vi)

(vii)

So far, the program me is concentrated only in Distt. Capital Towns. More coordination with District Coordination Committee and review by State Govt.

Implementation should be undertaken in all cities with 100,000 and above population. Continuous efforts should be made.

19.3 Performa for Information System for the Scheme Ministry of Urban Development, Govt. of India has prepared a comprehensive Performa for information system for Urban Basic Services, placed as Appendix 19.1. This proforma is in two parts as outlines given under:

19.3.1 Part One Deals with the Following Four Points (a)

Quarterly major achievements of the current year. (b) Quarterly problems encountered in the year. (c) Directions/guidance/decisions required from the project Management Committee and (d) Activities planned and expected outcome for the next quarter.

19.3.2 Part Two Deals with the Following Six Points (a) Child survival and development; (b) Learning opportunity for women and children; (c) Water and sanitation; (d) Community organization; (e) Planning and monitoring; and (f) Remarks. Each component/point has many paragraphs as listed out in the Performa. This Performa is to be filled with reference to the year’s targets achieved during the quarter and cumulative achievement for the current year.

19.4 Urban Basic Services Scheme for Delhi The details as supplied by Delhi Government to the Town & Country Planning Organization; Ministry of Urban Development have been reproduced in terms of(i) Structure (ii) Activities (iii) Constraints and (iv) Opportunities Outlines of the above are given in Appendix 19.2. In Delhi, there are about 900 shanty/jhuggi clusters with a population of about 1.3 million. Achievements made under UBS are limited and have to be increased with the help of continuous efforts by Govt. Deptt., non-govt.organisations, community and beneficiaries. The example of shanty clusters have been shown in photograph 19.1. 51 R.G. GUPTA -–1995 www.rgplan.org

52 R.G. GUPTA -–1995 www.rgplan.org

Appendix 19.1 Ministry of Urban Development, India Urban Basic Services Programme Project Officer’s Report For the quarter of______________

PART I

Date;___________

Town:__________ District:_________ State:___________

1.

State two or three major achievements resulting from the conduct of the activities listed in Part II of this form:

2.

What problems, if any, did you encounter during this month that prevented you from completing the task planned for the period?

3.

Which directions / guidance / decisions from the Project Management Committee would help you avoid recurrence of the above mentioned constraints (see question 1)?

4.

What are the major activities scheduled for next quarter? Also give expected outcome.

Activities Planned

Expected Outcome

Note: 1. Reporting should be done quarterly. 2. Completed quarterly report should be submitted within 15 days of ending of quarter. 3. Quarter will be April to June, July to Sept., Oct. to Dec. and Jan. to March. 4. Copies of progress report will be sent to Chief Planner, Town & Country Planning Organization, Ministry of Urban Development, Govt. of India and to the Zonal Representative of UNICEF. 53 R.G. GUPTA -–1995 www.rgplan.org

PART II (a) Project Officer’s Report for the quarter of_________________ Date:__________

Child Survival and Development Immunization Promotion

Year’s Target Ist

IInd

IIIrd

Achieved this Quarter Ist IInd IIIrd

Cumulative this year Ist IInd

Children (below 1 year) OPV DPT BCG 2.

T.T. for pregnant women

Other CSD Activities

Year’s Target

Achieved this year

Cumulative this year

3.

Growth charts introduced

4.

Health education

4.1

Growth monitoring

4.2

Home based diarrhea management (ORT)

4.3

Family spacing

4.4

Nutrition and food preparation.

4.5

Administering first aid.

5.

Mid Wife (Dais) trained

6.

First aid centres

6.1

Newly opened

6.2

Total Functioning

7.

Children medically checked and followed up (by project)

7.1

In anganwadis/balwadis/crèches.

7.2

In primary schools

8.

Balwadi children receiving flood supplementation

54 R.G. GUPTA -–1995 www.rgplan.org

(b) Learning Opportunities for Women and Children

9.

Pre-schools/Anganwadi/Balwadis.

9.1

Started

9.2

Total functioning

9.3

Total children attending

10.

Adult education centers

10.1

Started

10.2

Total functioning

10.3

ParticipantsWomen Children Others

11.

Women trained in Income generating activities (state types of activities):

11.1

Women earning for first time after skill training.

11.2

Women receiving income generation loans.

11.3

Total amount (Rs.) of loans released to women’s group for income generation activities From banks From UBS projects. From other Govt. agencies through UBS intervention.

Total 11.4

Total amount of loans repaid.

(c) Water and Sanitation Activities

Year’s Target

Achieved this year

12.

Hand pumps installed in

12.1

Community

12.2

Balwadis

12.3

Anganwadis (ICDS)

12.4

Primary schools

13.

Public stand posts constructed

14.

Caretakers trained on hand pump maintenance

15.

Masons trained

Cumulative this Year

55 R.G. GUPTA -–1995 www.rgplan.org

16.

Pumps operators trained

17.

Wells renovated and made safe

18.

Latrines constructed in:

18.1

Household

18.2

Community

18.3

Balwadis

18.4

Anganwadis (ICDS)

18.5

Primary schools

19.

Latrines converted to water seal

20.

Sanitation education camps held

21.

Participants in camps

22.

Smokeless chullahs installed

23.

Ventilators installed

(d) Community Organization Activities

Year’s Target

24.

Basti Committee’s functioning

25.

Basti committees

25.1

Revolving funds managed

25.2

Contribution collected

25.3

Activities monitored

26.

Basti meetings held

27.

Volunteers joined

28.

Trained following activities

28.1

Volunteers

28.2

UBS Staff

28.3

Non-UBS Govt. Staff

28.4

NGO

28.5

Community members

Achieved this Year

Cumulative this Year

56 R.G. GUPTA -–1995 www.rgplan.org

(e) Planning and Monitoring

Activities

29.

Mini Plans

30.

Plans of action

31.

Activities monitored

(f)

Remarks

Year’s Target

Achieved this Year

Cumulative this Year

I certify that the above statement confirms to the accounts and records kept in our office for audit purposes. Date:_____________________________ Designation _______________________ Name of official_____________________ Signature_________________________

57 R.G. GUPTA -–1995 www.rgplan.org

Appendix 19.2 Review of Urban Basic Service (Dec. 1989), Delhi (1) Structure RCVs identified and trained -3,125 in the first phase and 8,725 in the second phase. -125 BVMs (that is BDCs) formed

(2) Activities - Eighty percent of the children in 0-1 age group immunized with the coordination of MCD and various voluntary organizations. - 250,000 adults trained in home based diarrhea management and chlorination of water. - 2,19,000 ORS packets and 42,000 chlorine tablets distributed

(3) Constraints

(4) Opportunities

-Lack of understanding of the UBS concept at the Government level. Accounts not maintained regularly and secretarial staff not appointed. - Political interference is an obstacle to the program me.

-180 First aid health volunteers trained.

- Space problems

- 20,000 women given health education.

- Not enough clarity in program me objectives, and monitoring and evaluation. - Multiplicity of authorities causes dispersion of responsibilities. A Steering Committee is essential for proper implementation of program me

- 8,000 health posts opened.

The Program me should be universalized.

- The number of activities should be narrowed down. - The UBS role of catalyst of urban alleviation program me should be emphasized, - Community organization should be strengthened at intensification. - Training and communication should be extended.

- Audiovisual sessions organized in JJ bastis to cover a population of 1.2 million. - 40 Delhi Medical Association (DMA) doctor’s

58 R.G. GUPTA -–1995 www.rgplan.org

posts opened. - Child to child activities covered in Khichripur and Tigri. - 10 headmaster and 60 teachers trained. - 49 crèches-cum-pre-school centers-cum-libraries functioning in UBS areas. - 30 hand pump platforms constructed along with connecting drains. - 33 hand-pump caretakers and 70 measons trained. -1,000 sanitation education camps and drives held. -5,000 garbage disposal drives held. -12 Sintex tanks for drinking water supply installed. -Improvement of neighborhood drains carried out in UBS areas with community participation and coordination of other agencies. --75 low cost individual latrines constructed at Khichripur. - 15000 smokeless chullahs installed - 50 Safai Committees formed. - Income generation skill up gradation training imparted to 2,000 women in different fields like cutting and stitching, bag, candle, soap, chalk and box making. * RCVs Residents Community Volunteers.

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MAP 19.1: Basics of Urban Basic Services

Main Constituents of urban Basic Services are Provisions of Physical, Social & Economic Infrastructure

These should be designed on the Principles of

-

Equity Community Self Respect Self Work Self Involvement Informal Sector Women & Children

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20 Physical and Socio-Economic Surveys 20.0 20.1

20.2

20.3 20.4 20.5

Background Socio-economic Surveys Conducted by Town & Country Planning Organisation, Ministry of Urban Development of all Shanties (Jhuggies) Clusters in 1973-74, in the Entire National Capital Territory of Delhi Surveys Conducted by Delhi Development Authority of all Shanties (Jhuggies) clusters in 1983, in the Entire National Capital Territory of Delhi Surveys Conducted by Delhi Development Authority of Shanties (Jhuggies) Clusters in 1985, only of Trans-Yamuna Area Surveys Conducted by Slum Wing/Board, in 1986 on Resettlement Colony namely-Jahangirpur Surveys got Conducted by Slum Wing/ Board, From Institute of Socialistics Education in 1988-89 of the entire NCR.

20.0 Background This is a basic chapter presenting the analysis and the results of physical and socioeconomic surveys conducted by (i) Town & Country Planning Organisation, Ministry of Urban Development; (ii) Delhi Development Authority and (iii) Slum Wing/Board. These surveys are of different years, 1973, 1983, 1985, 1986 and 1988-89. Physical and socio-economic surveys give the status of society in terms of physical, social and economic infrastructure/indicators. Physical infrastructure and indicators deal with water supply, sewage disposal, storm water drainage, protection from floods, power, tele-communication, gas supply and roads; social infrastructure and indicators deal with regard to education, health, social security, social, justice, recreation, employment, shelter etc. and economic infrastructure and indicators are with regard to income level, gross domestic product, net domestic product, import and export, balance of payment, commercial centres, industrial estates etc. If these indicators are known for a society, then its comprehensive plans can be prepared, got approved, implemented and the quality of life of the society can be improved. With the help of results and inferences from these surveys, policies on various aspects namely-Urban land use, urban land policy, development of substandard areas policies, development of inlying built up areas, location of settlement, etc. can be prepared and then plans of various duration viz. annual, 5 years and 20 years can be prepared. These plans can be implemented, urban spaces developed and constructed and proper management can be done, ultimately to improve the quality of life. 61 R.G. GUPTA -–1995 www.rgplan.org

In various metropolitan cities these surveys are conducted from time to time by various development authorities, housing departments, improvement trusts and other organizations; however, due to lack of proper compilation, establishment of information system, and feed back from one department/city to another, these are not used and remain only on paper. Due to importance of the subject, a chapter has been included in this part of the book based on the surveys conducted by various authorities, so that professionals, executors and formulators of policies can use these results in formulating policies. Results of all these surveys are interesting and would be useful for the planners of India as well as of other developing countries. These have been shown in Maps, enclosed at the end of the chapter.

20.1 Socio-economic Surveys Conducted by Town & Country Planning Organisation Town & Country Planning Organisation (TCPO), the then Ministry of Works & Housing (now Ministry of Urban Development) conducted physical and socioeconomic surveys of 1373 shanty clusters situated in different parts of Delhi in 1973. Results of the surveys are as under: 20.1.1 Physical Conditions These settlements are highly deprived of most of the minimum environmental physical facilities and even if some of these do exist, these are grossly inadequate to serve the needs of the population living there. 5.9% of the population have a zero score facilities which means that there is no facility of infrastructure at all, meaning thereby that there was no water supply, toilet facilities, street light etc. This is clear from Table 20.1. It is revealed that 51.5% of the settlements, having 42.3% of the total population have a score of 25 or less, and thus reflects that these settlements are highly deprived of environmental facilities and even if some of these do exist, these are grossly inadequate to serve the needs of the population living there. Table 20.1 : Environmental facilities index value (water, community latrines, street light, brick pavement of streets and cemented or brick-paved surface drainage) Size (No. of households) 100 & below 101-300 300-500 500-1000

Index Value Range 1-25 37 6976 9 5447 2 3208 3 8764

26-50 13 1933 5 3635 2 4355 1 2797

51-75 1 234 5 5242 1 1566 2 5949

76-100 2 559 1 669 -

Zero Value 11 1881 2 1217 1 1563 -

Total

64 11583 24 16240 6 10692 6 16920

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1000 No.of clusters

2 8847 53

1 14288 22

11

3

14

3 23135 103

Population

33242

27008

12391

1258

4661

78560

%of population

(42.3)

(34.4)

(15.8)

(1.6)

(5.9)

(100.0)

20.1.2 Socio-Economic Conditions of People of Living in Shanty Clusters in 1973 Seven indicators namely-(i) water hydrants (ii) hand pumps (iii) number of lavatory seats (iv) no. of bath rooms (v) street lighting (vi) paved streets and (vii) storm water drains were also surveyed by TCPO, Ministry of Urban Development and it was found that the situation was deplorable as is clear from the following seven paragraphs: (i) Water Hydrants; In a random sample survey of 103 settlements conducted by the TCPO, it was found that there were only 140 public hydrants of which six were out of order in 103 settlements. On an average, one tap was serving 561 persons or 120 families. (ii) Hand pumps: 58.3% of the settlements did not have any hand pumps at all, and for the remaining the position was as under:

(iii)

No. of persons per hand pump

% age of settlements

50 & below 51 to 100 101 to 200 201 to 300 301 to 400 401 to 500 500 & above Total

6.8 11.7 13.6 3.9 1.9 0.9 2.9 41.7

Number of lavatory seats:

68.9% of the settlements had no larine seats and in the balance the position was as under: No. of persons per lavatory seat 14 & below 15 to 29 30 to 44 45 to 59 60 to 74 75 & above Total

% age of settlements 4.9 6.8 4.9 2.9 1.9 9.7 31.1

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(iv)

No. of bath rooms:

90.3% of the settlements had no bath rooms and in the balance position was as under: No. of persons per bath room 26 to 50 51 to 75 76 to 100 100 & above Total

(v)

% age of settlements 1.9 2.9 1.0 3.9 9.7

Street lighting:

63.1% of the settlements had no street light and in the balance position was as under: Area in Sq. mt. per electric pole Less than 600 601 to 1000 1001 to 1401 1401 to 2000 2001 & above Total

(vi)

% age of settlements 10.7 9.7 4.8 3.9 7.8 36.9

Paved streets:

65% of the settlements had no brick pavement or permanent stret and in the balance the position was as under: %age of area served by paved streets upto 25 26 to 50 51 to 75 76 to 100 Total

(vii)

%age of settlements 6.1 11.7 11.7 5.5 35.0

Storm water drains:

68.9% of the settlements had no drains at all and in the balance the position was as under: % age of area served by drains upto 25 26 to 50 51 to 75 76 to 100 Total

% age of settlements 5.9 3.9 8.7 12.6 31.1

64 R.G. GUPTA -–1995 www.rgplan.org

Table 20.1 and the above seven indicators/paragraphs prove that physical and socio-economic conditions of these clusters were very poor and as such needed shifting. 20.1.3 Most of the shanty clusters with, more than 1,40,000 families, were shifting in 1975 to 16 large developed resettlement colonies. These colonies have been described in Chapter 30 (Planning and Integrated Development-A Large Complex for One Million Population) and Chapter 34 (Physical Planning of Resettlement Colonies) of the book. To get an idea of the magnitude and extent of work done in 1976-77, the relevant paragraph is reproduced here. During 1975-77, 16 large resettlement colonies were planned and developed under the site and services scheme. The scheme covered a total area of 968 hect., having 1,43,263 plots each of 21 sq. mt. It is important to note that 61% of total area was used for facilities and circulation and only 39% for plotted development. These 16 large colonies have five plots for college, 90 plots for higher secondary schools, 136 plots for primary schools, 140 for nursery schools, 9860 plots for shops, five plots for general hospitals, three plots for fire stations, five plots for public stations, 30 plots for dispensaries, 55 plots for community halls, 28 plots for li braries and some sites for cremation and burial ground. In these colonies there were 500 parks, 60 tube wells, 1.5 million trees, 250 km of roads, 600 km of drains, 80 km of water supply lines and 14000 lavatory seats in 1976-77.

20.2 Surveys Conducted by Delhi Development Authority of all Shanties (Jhuggies) Clusters in 1983 in the Entire National Capital Territory of Delhi 20.2.1 Historical Background (i) Before 1960 ‘Dairy Kishan Chand’ dominated by milkmen was the first shanty cluster in Delhi. It was located behind the fortification wall of Red Fort, somewhere between Darya Ganj and Old Monkey Bridge. This shanty clusters was set on fire and several persons and milch cattle were burnt dead. The matter was discussed in the Parliament of the country and it was decided to shift the entire cluster to Marginal Bund Shahdara (Seelampur) allot ing 66.7 sq. mt. plots at that time to each family as alter native accommodation. This was first squatters settlement (jhuggi jhompri scheme) or resettlement colony or sites and services scheme planned in Delhi. A ground rent @ Rs.5 per month was recovered from the evictees of this milkmen colony. Soon after, the Government of National Capital Territory of Delhi released a loan of Rs 1000 to each family for the construction of small houses. Besides this, street light, hand pumps, community lavatory blocks, schools, marketing facilities etc. were also provided. Now the cost of a 67 sq. mt. plot in the locality is Rs. 201,000 at the rate of Rs. 3000 per sq. mt., including the cost of internal, peripheral and trunk development. (ii) A scheme by the name of ‘Shanty (Jhuggi) Removal Scheme’ was initiated primarily to provide alternate accommodation to large number of squatters who had built up shanty on public land. In 1958, the Govt. of India appointed an Advisory Committee to look into the problems of growth in shanties (Jhuggies) in Urban Delhi. It was estimated that over 40,000 shanties families lived in more than 61 shanties 65 R.G. GUPTA -–1995 www.rgplan.org

clusters at that time. In 1960, a scheme was approved by the Govt. of India for the resettlement of shanty dwellers. Under the scheme, there was a proposal to allot a plot of 90 sq. mt. with provision of a latrine and a water tap. This was for those whose income was less than Rs.250 per month at that time. These colonies were also to be provided with educational and health facilities. As far as shops were concerned these were to be allotted at commercial rates. (iii) In 1962, a survey of shanties clusters to decide eligible and non-eligible squatters was conducted and it was found that there were about 50,000 shanty families. It was observed from the survey that a substantial number of squatter families was unable to pay the monthly instalment of Rs. 12.79 per month for developed plots. On September 1,1962, the first Delhi Master Plan was enforced and it was recommended in the Master Plan that a plot of 72 sq. mt. be provided to the shanty dwellers as a part of planned growth. (iv) In 1963, the scheme was modified and it was proposed to provide 72 sq. mt. plots to 26,000 shanty families and two room tenement on rent to 5,000 jhuggi families on 60% subsidisd rate for those whose income was less than Rs. 250 per month, with a provision of latrines, water taps and street lights. (v) With the surveys of in-migration of squatters in Delhi, it because very difficult to differentiate between eligible and non-eligible squatters; as such, it was recommended by the Govt. that non-eligible squatters to allot 121 sq. mt. in camping site to this category. By that time the total number of squatter households were increased to more than 80,000. (vi) To solve the large problems of squatter settlements, this scheme was again transferred from Municipal Corporation of Delhi to Delhi Development Authority in 1968. With certain modifications the Delhi Development Authority decided to resettle the non-eligible squatters on plots of 21 sq. mt. on the periphery of Urban Delhi. In 1973, the squatter families figured as high as over 1,40,000. 20.3.2 General Criteria for the Surveys and Studies (i) Growth in number of squatters, as details given in Table 20.2 During 1975-77, most of the squatters were resettled in 16 large resettlement colonies except 15,000-20,000 squatters were left in shanty clusters. During 197782, the number of squatters had gone up considerably high i.e. almost equal to the number of squatters as was in 1975. There are various reasons for the unprecedented growth of squatters, a few reasons are noted as under: (a) (b)

continuous in-migration of people in search of employment from the neighbouring areas of U.P., Rajasthan, Haryana, etc. Inefficient and insufficient watch and ward staff of different planning/development agencies/authorities in stopping squatting activities. 66 R.G. GUPTA -–1995 www.rgplan.org

(c) (d) (e)

(f)

(g)

Sale and purchase of plot/flat in resettlement colonies change in hands continued for ever, and may continue. Vacated and unused sites during 1975-76 afterwards were not properly fenced, and as such, promoted squatting. Lack of coordination among different development/civic authorities/agencies engaged in the implementation of various projects of the Master Plan for Delhi. Lack of physical, financial and policy decision, resource for the construction of projects is equally responsible for the tremendous growth of squatters Growth of squatters in the last four decades has been shown in Table 20.2 Table 20.2: Growth of squatters during the last four decades Sl. No.

Year

No. of Squatter families

1 2 3 4 5 6 7 8 9 10 11 12 13

1951 1956 1961 1966 1971 1973 1977 1980 1983 1985 1988 1990 1993

12,740 22,415 42,815 42,668 62,594 98,438 20,000 98,709 1,13,386 1,71,100 2,00,000 (estimated) 2,60,000 (estimated) 2,30,000 (estimated)

Table 20.2 shows that during 1961-66 the growth of squatters’ was not there. This was on account of enforcement and strictness of the first Master Plan for Delhi (1962-81), which made people afraid of encroaching on public land. The highest increase in the number of squatters’ was in 1973 and 1980 and beyond. In 1976-77 there was a sudden decline in the number of squatters on account of mass scale resettlement of squatters. The number soared up again to 270,000 (approx.) due to the spate in construction activity in the capital during Asian Games (1981-82) and various other reasons. After 1981, the number of squatters went on increasing, as no large settlement programme was under taken. Growth of squatters families has been clarified in Map 20.1 also. (ii)

Selection of sample for survey conducted by Planning Cell DDA. According to the survey of Dec. 1983 there was a total number of 536 squatter clusters in Delhi accommodating 113,000 families with a total population of about 600,000. The observations of the survey reveal that all squatters families live below the poverty line i.e. the average income of a squatter family was Rs.300 or below per month. In order to study the living conditions of the squatter families in 67 R.G. GUPTA -–1995 www.rgplan.org

detail, a sample of 5% was drawn and out of 536 squatter clusters, 29 clusters were selected for study. The basis of the sample selection was on the following criteria: (a) Size (population) (b) Geographical distribution of squatters settlements (location) (c) Economic consideration (income) (d) Environmental conditions (e) Traditional/conservative considerations Names of these clusters have been given in Appendix 20.1 and have been selected from each Planning zone of Delhi. (iii) Design of Questionnaire (copy placed at Appendix 20.2) (a) Family enquiry schedule (b) General observation schedule • Family enquiry schedule: This schedule of questionnaire was designed with a view to collect information in respect of characteristics of squatter families such as age, sex composition marital status, literacy, health, economic status, modes of transport and relationship (distance) between the place of work and place of accommodation etc. • General observation schedule: It contains information regarding characteristics of individual cluster highlighting mainly the location, its land use, environmental conditions in and around the cluster, physical and social infrastructure available within the around the cluster and its surroundings and its approach to neighbouring developed and planned residential colonies etc. 20.2.3

Physical and Environmental Characteristics Settlements’ Following Seven Factors were Studied (i) (ii) (iii) (iv) (v) (vi) (vii)

of

Squatters’

Location Environmental conditions Type of structure of shanty Use of structure Availability of physical infrastructure Distribution of medical facilities Distribution of amenities and services

(i) Location: Location is a very important factor for the origin of any settlement. Unless a location is attractive and suitable, no settlement can flourish. In this study it was found that out of 29 clusters eight were located within the planned and developed resettlement colonies and were connected by important/major roads. The remaining 21 were having scattered locations as per details given under: (a) Six of the clusters were located in industrial and residential areas, one was near the institutional area, two were in river bed, seven were falling in Master Plan designated green and open spaces and five were at miscellaneous locations. (b) 80% of the shanties clusters were easily accessible by major transport routes, whereas 20% were inaccessible to main routes. Clusters which 68 R.G. GUPTA -–1995 www.rgplan.org

were inaccessible were either located in the river bed or on hillocks or in low lying areas. Some of the clusters, namely, new Shastri Park and Sanjay Nagar Camps (river bed), Prem Nagar clusters (Ramjas hill), Tekhand (Okhla Industrial area) etc. are cut off on account of inaccessibility from the adjoining localities. It was very difficult to take up environmental improvements in such cluster. The inhabitants of these clusters face considerable problem due to non availability of daily requirements which is due to lacking of physical, social and economic infrastructure. (ii) Environmental conditions: Factors covered under this criteria were noise pollution, odour, smoke, stagnation of water, fire hazard, dust, absence of trees in vast open spaces etc. Accessibility by roads and availability of services and facilities are taken to be the most important aspect of environment. Social and physical variables were taken to measure the level of environmental quality. It was observed that all 29 clusters were having common problems of noise pollution, odour and fire hazard etc. as details given in Table 20.3. Since the shanties were normally built of wood, thatch, rags, BAMBOO-REEDS (sirkies) etc., there is every likelihood of fire hazards. Clusters which were located in low lying water logged areas were subject to odour. For example Sanjay Amar Camp in the river bed near Monkey Bridge and New Shastri Park J.J. cluster near the Shahdara pumping station, west of Marginal Bundh were the most dirty clusters. A number of germs, flies, mosquitoes breed in such areas causing harmful diseases like malaria, anaemia, venereal diseases etc. On account of lack of adequate sanitation, these clusters were not worth living in. Other clusters like Indira Gandhi Camp, Kalyan Puri, Cluster Block ‘C’ Gokulpuri, Cluster Block ‘A’ Sunder Nagari opposite Gagan Theatre, Cluster near Block ‘G’ near Kushal Theatre were in need of immediate shifting from their present locations, since there was no facility available, in these clusters. Clusters which were located near railway lines, major transport routes, within and near industrial areas were subject to noise pollution. Frequent movement of traffic, vibration and noise created by heavy machines, noise of sirens installed in factories were the main elements of noise pollution. Sometimes it was very difficult to sleep in the factory areas where manufacturing goes on round the clock. In industrial areas poisonous fumes and smoke were coming out of the chimneys spread over the clusters polluting the surrounding atmosphere. The two clusters namely, Subhash camp located within Dakshinpuri extension and Prem Nagar located on Ramjas hill were having better living conditions as compared to others. The reasons were that there were enough shady trees near these two clusters. Clusters which were located on the hillocks were free from the water logging problem, and remained neat and clean during the rainy season. Table 20.3 gives an account of environmental problems in different clusters, as well as phenomena shown in Map 20.2.

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Table 20.3: Environmental problems in different clusters Sl .No.

Environmental pollutants

1. 2. 3. 4. 5. 6.

No. of shanties (jhuggies) clusters

Noise Smell (odour) Smoke Water stagnation Fire hazard Dust

29 29 4 7 29 5

(iii) Type of structure of shanties: This is also an important aspect and proves that all the structures are purely temporary. This has been shown in Table 20.4 and also in Map 20.3.

Table 20.4: Number and percentage of structure of different types S. No.

Type

Number

Percentage Temporary structure.

1.

(a) Mud & Thatched roof (b) Khokha

2.

Brick & mud wall (a) Asbestos roof (b) Thatched roof Cemented wall (a) Asbestos roof (b) Tin roof

3.

Total

8839 1265

73.54 10.50

1735 -

14.40 -

16 164

0.13 1.34

12019

100.00

(iv) Use of shanty: It is clear from Table 20.5 that the predominant use of the shanties is residential. This has been shown in Map 20.4.

Table 20.5: Number and percentage of structures under various use Sl. No. 1. 2. 3. 4.

Use Residential Commercial/shop Residential-cum-commercial Others Total

Numbers 11,131 237 177 474 12,019

Percentage 92.61 1.97 1.47 3.95 100.00

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(v)

Availability of physical infrastructure (a)

(b)

(c)

(d)

Water: Filtered water was not available in any of the clusters. Squatters had to drink unfiltered water drawn from other sources like hand pumps etc., which was often unhygienic and breeds many diseases. Drinking water was a big problem, particularly in the summer. In some clusters the inhabitants had to go a kilometre or two to fetch drinking water. Toilet facilities: These were not available in shanties. Up to 1982 there was no system of construction of pour flush latrine and the dwellers had to ease themselves in nearby places at dawn and dusk. This created fifthy atmospheric conditions which was a big hazard from the hygienic point of view. Bathing and washing: In the absence of water, bathing and washing were only a dream for the squatters. This problem could be solved only if water at the rate of 10 gallons per day per capita was made available and community bath rooms were constructed. So far, there is no system of construction of community bathrooms. Drainage: Drainage system was not proper in shanties/jhuggi jhompri clusters. There was no drainage which causes water stagnation in the jhuggies. Due to this problem mosquitoes and other types of worms and insects proliferate. Water stagnation resulted in marshy conditions which were hazardous to the movement of people.

(vi) Distribution of medical facilities in 29 sampled clusters, Result of survey have been shown in Table 20.6 and Map 20.5. Table 20.6: Distribution of medical facilities S. No.

1. 2. 3. 4. 5. 6. 7.

Type of facility

Malaria eradication D.D.T. spray Vaccination facility Primary health centre Mobile dispensary Private doctors Visiting doctors

Within cluster

On the periphery

Total

Nos.

Nos.

Nos.

29 3 3 10 13 -

26 29 19 16 -

29 29 29 29 29 -

(vii)

Distribution of amenities and services in 29 sampled clusters. Table 20.7 shows that tap water was not available in any of the clusters, only handpumps were available within 13 clusters and on the periphery in 16 clusters. There was no street light except in 14 clusters on the periphery. Only five clusters had pubic lavatories within the clusters and four on the periphery. There was o sanitation facilities available. Streets were temporary in all the clusters, except in 20 clusters, metalled roads were available. 71 R.G. GUPTA -–1995 www.rgplan.org

Table 20.7 Distribution of amenities and services S.No. 1.

Type of amenities

Within Nos.

Water: Tap water Hand pump Public hydrant Individual house connection Electricity: Street Light Domestic connection Public lavatories: Water borne Dry system Sanitation: Street cleaning Garbage disposal Street pattern: Metalled Brick Paved Temporary Accessability Permanent Temporary

2.

3.

4.

5.

6.

On the periphery Nos.

Total Nos.

13 -

16 -

29 -

-

14 -

14 -

5 -

4 -

9 -

-

-

-

29

20 -

20 29

23 6

23 6

23 6

Table 20.8: Percentage and total distribution of squatters according to age and sex composition Agegroup

0-5 6-10 11-15 16-20 21-25 26-30 31-35 36-40 41.45 46-50 51-55 56 & above Total

Male

Female

Total

No.

%

No.

%

No.

%

3907 3023 1622 1454 2406 3351 1711 727 756 470 285 242

10.8 8.3 4.6 3.9 6.6 9.2 4.7 2.0 1.2 1.3 0.7 0.6

3622 1925 1140 1098 2966 2338 1155 556 370 470 285 442

10.0 5.3 3.1 3.0 3.2 6.6 3.2 1.5 1.0 1.3 0.7 1.2

7529 4948 2822 2552 5372 5689 2866 1283 826 940 570 684

20.8 13.6 7.7 6.0 14.8 15.8 7.9 3.5 2.2 2.6 1.4 1.8

19714

56.6

16367

45.4

36081

100.0

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20.2.4 Socio Economic Characteristics of Squatters Following 11 characteristics were studied, surveyed and analysed. (i) Age and sex composition, (ii) Size of family, (iii) Caste, (iv) Religion, (v) Literacy, (vi) Marital Status, (vii) Economic status, (viii) Migration trends, (ix) Employment and occupational structure, (x) Income and expenditure, (xi) Mode of transport and relationship between place of work & place of living. Findings of the important surveys are given under: (i) Age and sex composition: The study in necessary to find out the number of earners and non-earners according to age and sex, and also to formulate standards for number of schools. The results are given in Table 20.8 and in Map 20.6. Percentage distribution of squatters in special age groups in which action was required is as given under;

S. No. 1. 2. 3. 4. 5.

(ii)

Group 0-5 6-10 11-15 16-20 21-40

% age of total 20.8 13.6 7.7 6.0 42.0

Action to be taken Special child care Primary school education Secondary education Senior secondary & higher education (if any) Working class

Size of family:

Table 20.9: Size of family in 29 sampled clusters Family Size (members) 1 2 3 4 5 6 7 8 and above Total

Number

Percentage

697 1378 3520 2726 1913 1199 502 84 12,019

5.80 11.47 29.28 22.67 15.92 9.98 4.18 0.70 100.00

The aim to design Table 20.9 was to find out average size of family. As per this survey 3.8 is the arithmetic mean of family size. This has been shown in Map 20.7 also.

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(iii)

Caste Table 20.10: Number and percentage of households according to caste S. No. 1. 2. 3. 4.

Caste Scheduled Caste Scheduled Tribe Other caste No Response Total

No. of Households 6244 405 5125 245 12,019

Percentage 51.9 3.4 42.7 2.0 100.0

More than 55 percent were belonging to Scheduled Caste and Scheduled Tribe as given in Table 20.10.

(iv) Religion: Majority of the squatters i.e. 85.16% of the total squatter families were Hindus. Table 20.11: Number and percentage of households according to religion S. No. 1. 2. 3. 4.

Religion Hindu Muslim Christian Sikh Total

Number 19,231 1,524 243 19 12,019

Percentage 85.16 12.69 2.02 0.13 100.00

(v) Literacy: it is apparent from Table 20.12 that a major percentage (91.01%) of the total population was illiterate. A little more than 8% were literate. 4.32% were educated up to primary standard, 2.69% up to matric standard and only 1.98% had received higher education. These figures are of 1983 and now the percentage of literacy is much higher. Table 20.12: Literacy standard of squatters Sr. No. 1. 2. 3. 4.

Type Illiterate Primary level Matric level Others Total

Number

Percentage

33,111 1,568 980 719 36,378

91.01 4.32 2.69 1.98 100.00

(vi) Marital statuts: About 59% with a break-up of 36% males and 23% females were married while the others were unmarried.

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Table 20.13: Number of people with marital status along with sex Sex

Married

Male 13028 Female 8349 Total 21377

% 36.12 23.13 59.25

Unmarried 7336 7368 14704

% 20.33 20.42 40.75

Total 20364 15717 36081

% 56.45 43.55 100.00

(vii) Economic status: The squatters were mostly low income rural migrants with limited knowledge, skills and capital resources at their end. As a matter of fact the squatters did not earn marely to survive but to improve their economic position. The wages in the native place were supplemented with the wages earned in the city of Delhi. The purpose was to find out the ratio of earner and non-earner dependents of the total squatters’ population. In Table 20.14 one-third were earner and the balance were non-earners. This has been shown in Map 20.8 also. Table 20.14: Number and percentage of earners Type Earner Non-earner Total

Number 12264 23817 36081

Percentage 33.99 66.01 100.00

(viii) Migration trends (a) Source of migration: Two types of migration were found during the survey of shanty clusters namely (i) From rural to urban and (ii) With Delhi city. About 85% of the migrants belonged to the first category and 15% to the latter category. Table 20.15: Number and percentage of households migrated from various states S. No.

Source state

Number of Households

Percentage

1. 2. 3. 4. 5. 6. 7.

Uttar Pradesh Rajasthan Madhya Pradesh Bihar Haryana Within Delhi State Other

6018 2709 941 470 373 211 1297

50.07 22.56 7.82 3.91 3.10 1.75 10.79

Total

12019

100.00

It is clear that three-fourth of the total migrants’ families came from U.P. and Rajasthan alone and the rest of the one-fourth families were migrated from rest of the States of the Union of India, and some percentage from Bangladesh. 75 R.G. GUPTA -–1995 www.rgplan.org

(b) Reasons of migration: As is clear from Table 20.16, 71.14% of the squatters were migrated in search of a job, followed by a group of 22.94%, migrated to supplement their incomes. This has been shown in Map 20.9. Table 20.16: Percentage distribution of migrant families according to reasons of migration S. No.

Reasons for migrations

1. 2. 3. 4.

Employment factor Economic factor Social factor Others Total

No. of migrant families 8545 2755 265 454 12019

Percentage 71.14 22.94 2.15 3.77 100.00

(ix) Employment and occupational structure: Delhi being a metro politan city attracts a large number of rural migrants, who were mostly unskilled labourers and engaged themselves in petty trades, and economic activities. They made available essential services to the city dwellers and their role in the economic development of the city was self explanatory. Occupational category were of the following three types. (a) Activities that require low technical know-how (b) Labour-oriented activities (c) Conservative or hereditary activities Results of the surveys have been given in Table 20.17.

Table 20.17: Occupational status (Classification of workers according to their occupation) Sr. No. 1. 2. 3.

4. 5. 6. 7.

Occupation Hawkers & vendors Petty traders/shopkeepers Labour (i) Skilled (ii)Unskilled Traditional trades & skills Professionals White collar workers Miscellaneous Total

No. of the workers 1840 0613

Percentage 15.0 5.0

2453 6132 0527 0086 0245 0368

20.0 50.0 4.3 0.7 2.0 3.0

12264

100.0

Almost half of the workers were unskilled. Skilled labour constituted only 20%, out of the total labourers 70%. Hawkers and vendors were 15%, petty traders and shopkeepers were 5%, service personnels were 2% and professionals were 0.7%. The remaining 3% or 368 workers were engaged in miscellaneous trade/jobs. 76 R.G. GUPTA -–1995 www.rgplan.org

(x)

Income & Expenditure:

(a)

Income: Table 20.18 shows that majority of the Shanty dwellers were poor, 51.15% of the total earners were having an income below Rs. 300 per month. 43.53% had income between Rs. 301-500 and only 5.32% earners were having an income more than Rs. 501 in 1983.

Table 20.18: Number and percentage of household earners according to income S. No. 1. 2. 3.

Income group (Rs.) Below 300 301-500 501 and above

No. of household/earner 6273 5339 652

Total

(b)

12264

Percentage 51.15 43.53 5.32 100.00

Expenditure: A major percentage (60%) of expenditure was incurred on food-stuff, Clothing accounted for another 10% whereas shelter and recreation constituted 5% each. 7% was spent on transport and 13% on other expenditures like health, education etc. Table 20.19: Percentage distribution of expenditure incurred S. No. 1. 2. 3. 4. 5. 6. 7. 8.

Item Food Clothes Shelter/housing Education Recreation Transport Health (medicines) Miscellaneous

60 10 5 5 7 1 12

Percentage

Total

100

(xi) Mode of transport and relation between place of work and place of living. Table 20.20: Mode of transport used S. No. 1. 2. 3. 4. 5.

Mode of transport On foot Public/private buses Cycle Rickshaw/tonga etc. Others

Number 7627 3759 678 142 58

Percentage 62.13 30.0 6.20 1.16 0.48

Total

12264

100.00

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The most popular mode of transport used by squatters to go for work was public transport. The next popular mode was the cycle as per Table 20.20 prepared based on surveys. There is a positive correlation between the place of work and the place of residence. About 62.13% of the squatters were going to their place of work without the help of any mode of transport i.e. on foot. The reason behind it was that they resided near to their place of work. 30.03% used buses; 6.20% and 1.16% used cycles and horse-carts/rickshaw respectively. 20.2.5 Summary of Finding of the Survey of Squatters’ Settlement-1983 (i) (ii)

(iii)

(iv)

(v) (vi)

(vii) (viii)

(ix) (x) (xi)

(xii) (xiii) (xiv) (xv) (xvi)

All 12,019 house holds living in 29 clusters were surveyed. The population of 12019 households was 36081, of which 85.16% belonged to the Hindu community, 12.69% Muslims and 2.9% belonged to other castes. Of the total 12,019 households, 51.95% belonged to Scheduled Castes, 3.37% to Scheduled Tribes and the remaining belonged to other castes. No information was available for 2% of the households. Age group was 0-10 years -34.4%, 11-20years -16.9%, 21-30 year 30.1%, 31-40 years -11.4%, 41-50 years-4.8% and above 50 years 3.2%. 54.6% of the total population was male and 45.4% was female. The sex ratio in shanties clusters was 840 females per 1000 males. 91.7% of the total population was illiterate. The main reason for this was utter poverty and lack of civic sense. They hardly understood the value of education. Meagre resources also hampered the education of their children. The number of households in all the 29 clusters was equal to the number of shanties. 57.8% households were having ration cards whereas 42.20% did not posses any ration card. 1.5% households were not interviewed because of their non-availability. 95% of the shanty dwellers were low income rural migrants. 85% of the squatters were working within 1 km of the clusters they reside in. All the 29 shanty clusters were affected by noise pollution, which was maximum in clusters which were along railway line or within industrial areas or along major roads. Of the 29 sampled shanty clusters, four were affected by smoke and 25 by odour. Seven clusters were facing the problem of water stagnation. Almost all the clusters were subject to fire hazard, and only five clusters were affected by dust. Thousands of small temporary commercial shops were affected in the R/W of roads. 80% of the shanties cluster were accessible to major routes.

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(xvii) Of the 29 clusters eight were located in planned and developed resettlement colonies and six were located in industrial and residential areas. (xviii) No facilities and services were available within and outside the clusters. The shanty dwellers shared the facilities available on the periphery of the clusters.

20.3 Surveys Conducted by Delhi Development Authority of Shanties Clusters, only of Trans-Yamuna Area in 1985 20.3.1 Physical Characteristics (i) Geographical location: This study of shanties clusters was confined to Trans-Yamuna Area, with an area of 88 square km and a population of about 1.5 million at that time. This area was surrounded by river Yamuna in the West, and the State of U.P. in the North East and South. From the point of view of location, these clusters were divided into three parts, as classified in Table 20.21. (ii) Location of shanties clusters: The survey revealed that about 30 clusters were located within resettlement colonies which accounted for 44% of the total shanty (jhuggi) families of TransYamuna Area. (iii) Average size of a shanty/jhuggi was generally 2.5 mt * 3 mt. = 7.5 sq. mt. (iv) Shape and form of shanty (jhuggi): The usual shape of a jhuggi was rectangular with sloping roofs. (v) Circulation system (streets and roads.) The circulation system was very poor with brick paved roads. Other service lanes were built temporarily zig zag and were very narrow. Table 20.21: No. of shanties clusters and families in Trans-Yamuna Area Sr. No.

1. 2. 3.

Location

South of NH-24 Between G.T. Road & NH-24 North of G.T. Road & Wazirabad bye-pass Total

Clusters No. 26 26 11

% 41.27 41.27 17.46

63

100.00

Shanties (Jhuggies) Families 000 3.8 20.8 2.3

% 14.09 77.38 8.53

26.9

100.0

Note:- Small clusters, consisting of 10 or less shanty (jhuggi), families numbering about 2300 were not included in the survey. - 700 units are such whose data was not available. - Thus total shanty families were 26,900+2300+700=29,900

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Table 20.22: Number of shanties and families in old resettlement schemes and on new public lands S. No.

Ownership of land

1. 2. 3.

Resettlement colonies J.J.R. Schemes On new public land Total

No.of J.J. clusters 7 23 33 63

No. of jhuggies 3900 7900 15100 26900

% 14.43 29.33 56.24 100.00

(vi) Public Utilities and services: (a)

Drainage The drainage pattern of the clusters was irregular. There was hardly any storm water drains near the clusters, except in two clusters namely, Janta Mazdoor Colony and Sanjay Colony at Gokulpuri. Dirty water accumulated and stagnated in the side drains causing in-human conditions in the clusters.

(b)

Electricity: There was no domestic light available in the clusters. People used domestic light by illegal means from the nearby colonies/resettlement colonies. Domestic connections were not provided because the jhuggies were built up of woods, bamboos, thatches, rags, which were subject to frequent fire hazards.

(c)

Potable water: Filtered water was not available in the clusters. People shared filtered water from the nearby resettlement colonies or other colonies. Handpumps installed by Local Civic Bodies/Agencies in their respective development areas were the source of drinking water.

(d)

Sewer: Sewers were completely absent. However ‘Pour flush’ lavatory blocks on the outskirts of the clusters were built by Slum department of the DDA. 90% of the shanties dwellers were going for easing in the open areas-the system which was highly unhygienic.

20.3.2 Socio-Economic Characteristics Data related to size of family, use of shanty, year of migration, state of migration, ration card, work-centre distance, mode of transportation used and occupational structure etc. were collected from colonies by holding personal interview with the head of the family. Analysis of the survey is as under: (i) Usage of shanties: The total shanties surveyed were 29,900 out of which 27,500 were in residential use. The other uses are as given in Table 20.23

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Table 20.23: Distribution of shanties according to use Use

Nos. (000) 27500 900 700 200 600

Residential Commercial Residential-cum-commercial Others N/A Total

29900

% 918 2.9 2.4 0.8 2.1 100.0

(ii) Family size: The average family size was four persons. Out of 29,900 families, 6300 were of four member families, 5700 were three member families 4400 were having two members and single family units were 1900. Arithmetic mean of size of family was 4.3 as other families were of large sizes as shown in Table 20.24: Table 20.24: Family size Size Group (Members)

1 2 3 4 5 6 7+ N/A Total

Nos.

1900 4400 5700 6300 4700 3100 2800 1000 29900

%

6.3 14.7 19.2 212 15.6 10.4 9.3 3.3 100.0

(iii) Year of migration: The squatters’ population was mainly migration population. Families migrated up to 1976 were 2% of the total population. During 1977 and 1979 were 16.59%, and 1980-82 were 45.38%. In 1983-85, around 35.58% families came and settled in Delhi as details given in Table 20.25 and shown in Map 20.10. Table 20.25: Year of migration Year Up to 1976 1977-79 1980-82 1983-85 N/A Total

Nos. 600 5000 13600 10000 700 29900

% age 2.1 16.6 45.3 33.6 2.4 100.0

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(iv) Source of Migration: In the migrants’ families, Uttar Pradesh predominates i.e. 79.93% of the total, Madhya Pradesh 2.76% of the total, and Rajasthan 2.63% of the total. The details of States have been given in Table 20.26 and shown in Map 20.11. Table 20.26: Source of migration State/country U.P. M.P. Bihar Rajasthan West Bengal Delhi Bangladesh Haryana Others N/A Total

(vi)

Nos.

%

24000 800 800 800 800 500 400 300 800 700

79.93 2.76 2.70 2.63 2.56 1.70 1.58 1.13 2.64 2.32

29900

100.00

Distance between place of living and working;

20,300 families or 67.8% worked upto 3 km. Around 85.1% families worked within a distance of 6 km, 6.9% families worked between 7 and 9 km and 6.04% families had to go beyond 9 km as details given in Table 20.27 and shown in Map 20.12. Table 20.27: Work centre distance Distance (in km)

(vii)

Nos.

% age

Up to 3 4-6 7-9 10 and more N/A

20300 5200 2000 1800 600

67.8 17.3 6.9 6.0 2.0

Total

29900

100.0

Mode of transportation used:

The distribution of various modes of transportation used by the shanty dwellers is given in Table 20.28 More than half of the people walked to work and another 29% used buses. This has been shown in Map 20.13 also.

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Table 20.28: Mode of transport used

(viii)

Mode

Nos.

%

Bicycle Bus Others On foot N/A

2000 8700 1600 16400 1200

6.8 28.9 5.6 54.7 4.0

Total

29900

100.0

Occupational structure:

The analysis revealed that 11,800 i.e. 39.25% families belonged to the labour class and that too unskilled labourers. The skilled labourers were 9.35%. The families who were self-employed were 17.6%. The persons in service were 18.19% of the total work force. There were 1700 rickshaw-pullers, 1100 tailors, 1200 were engaged in other occupations, as details given under in Table 20.29 Table 20.29: Occupation pattern Occupation Labour (i) Unskilled (ii) Skilled Self employed Service Rickshaw pullers Others N/A Total

Nos. 11800 2800 5300 5400 1700 2400 600 29900

% 39.3 9.3 17.6 18.2 5.6 7.8 2.2 100

20.3.3. Summary of findings of Squatters’ Survey in 1985 in Trans-Yamuna Area There were 63 clusters with 29,953 shanties families. These clusters were scattered in different parts of Trans-Yamuna Area with 75% in and around the resettlement colonies and the balance 25% in other locations, mainly along transport routes and near work places. Summary of Findings (most of findings are same as of 1983 surveys) (i)

Reasons for growth of squatter families in Delhi: (a) Easy availability of jobs. (b) Lack of accommodation for the urban poor, in settlements. (c) Fast rate of urbanization. (d) Role of local leaders. (e) Political shelter. (f) Lack of control on unauthorised sale and purchase of plots and houses in resettlement colonies and in other colonies.

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(ii)

Number of shanty clusters in the following three main parts of Trans-Yamuna Area; are (a) 26 clusters south of National bye-pass No.24. (b) 26 clusters between G.T. Road, Shahdara and National bye-pass No. 24. (c) 11 clusters in the north of G.T. Road, Shahdara.

(iii)

All the shanty clusters were situated on public land, earmarked for development of parks, playgrounds, open spaces and other public and semipublic facilities. A few of the clusters were situated along railway lines or on railway land.

(iv)

The density of population in these clusters was very high and it varied from cluster to cluster.

(v)

65% of the population living in these clusters were male, showing that in the initial stage, male population migrated and their families followed afterwards.

(vi)

30% of the population was of the age-group below 21 years. 65% of the population was in the age-group between 21-50 years. 5% of the population was over 50 years old.

(vii)

70% of the population was illiterate and only 30% was literate.

(viii)

Out of the total population, 65% were Hindu, 34% Muslims and the balance of other religions.

(ix)

75% of the total working force belonged to labour class.

(x)

More than 90% of the shanties were used exclusively for residential use, followed by commercial, residential-cum-commercial and other uses.

(xi)

Average size of the family was 4.3 members.

(xii)

Most of the shanty dwellers migrated during 1980-85.

(xiii)

80% of the migrated population was from U.P., followed by M.P., Bihar, Rajasthan, West Bengal, etc.

(xiv)

Most of the residents of these shanty clusters did not have any ration cards.

(xv)

Most of the workers worked within 2 km from the cluster, as such, they did not have any requirement of transportation specially from place of living to the place of working.

(xvi)

Most of the clusters were deficit in terms of potable water, sewerage facilities, electricity etc.

(xvii) These clusters lacked public and semi-public facilities and residents of these clusters shared the facilities of adjoining colonies. 20.4

Surveys Conducted by Slum Wing Board in 1986 of One Resettlement Colony namely-Jahangirpuri

A survey was conducted by Slums Wing, DDA, of Jahangirpuri resettlement colony in August, 1986, to know the status of present occupants on plots in resettlement colony and their willingness to have individual flush toilets with a subsidy of Rs.500. In the survey, 18201 plots/units of 21 sq. mt. were covered. At the time of survey, 2496 units were found locked. In most of these case, inmates were 84 R.G. GUPTA -–1995 www.rgplan.org

found away on work and so these premises were taken unoccupied. 293 plots/units were either vacant or partly constructed and no one was found living there. So the information could be collected in respect of 15412 plots/units only.

Table 20.30: Occupancy status of plots, original allottees purchasers, tenants, trespassers in Jahangirpuri resettlement colony S. No. 1. 2. 3. 4. 5.

Occupancy status No. of plots under occupation of allottees or their legal heirs No. of plots under occupation of purchasers No. of plots under occupation of tenants of allottees No. of plots under occupation of trespassers No. of plots being used by social institutions such as religious sites, prenursery schools etc.

No. 9394

60.95

%

4984

32.34

764

4.96

199

1.29

71

0.46

15412

100.00

From Table 20.30 it is clear that after 10 years of development of Jahangirpuri resettlement colony in Delhi, only 60% were original allottees and the balance were in other categories. The survey also revealed that 776 families were occupying two plots each, 34 families three plots each and five families four plots each.

20.5 Surveys got Conducted by Slum Wing/Board from ‘Institute for Socialistic Education’ in 1988-89, of the Entire National Capital Territory of Delhi The Slum Wing/Board assigned a socio-economic survey and study of shanties (jhuggies) clusters of the National Capital Territory of Delhi, to the ‘Institute for Socialistic Education’. The survey was meant to collect authentic and comprehensive data by door-to-door survey of all the gathered information on 75 points grouped into 21 groups given under. The survey was done in October, 1988. 20.5.1 Type of Data Collected (i) (ii) (iii) (iv)

Name of all slum-dwellers and their relationship with the head of the family. Age Sex Educational Status: Education level of adults in the age group of 13 and above is given under the following heads: (a) Primary, (b) Middle, (c) Matriculation, (d) Senior secondary, (e) Graduate and above. 85 R.G. GUPTA -–1995 www.rgplan.org

(v)

Child Education: Number of school going children in the age group of 5-12. (vi) Occupational status (a) Mazdoor (unskilled labour), (b) Karigar (skilled labour), (c) Service, (d) Self-employed. (vii) Child Labour: Children in the age group of 12-18 working as child labour. (viii) Mode of transportation (a) On foot, (b) Bicycle, (c) Bus. (ix) Economic status: Monthly family income under the following categories in Rupees: (a) 100-200, (b) 200-500, (c) 500-700, (d) 700-1000, (e) 1000 and above. (x) Savings: Whether the family has any savings from income. (xi) Ration card (food): No. of families holding ration cards. (xii) Scheduled Caste families: Whether belonging to scheduled caste. (xiii) States from where migrated: (a) Uttar Pradesh, (b) Rajasthan, (c) Bihar, (d) Other States. (xiv) Year of migration into Delhi (a) 1960-65, (b) 1966-73, (c) 1974-76, (d) 1977-80, (e) 1981-85, (f) 1986-89. (xv) Immunisation: Number of infants (0-12 months (immunized against: (a) Tuberculosis, (b) Diphtheria, (c) Pertussiss (whooping cough), (d) Tetnaus, (e) Polio, (f) Measles. (xvi) Ante-natal care (xvii) Morbidity pattern: Nature of common disease which affected the slum dwellers in the preceding year. (xviii) Mortality pattern: Causes leading to deaths in the preceding year. (xix) Accepance of family planning methods: Acceptance of methods of family planning such as sterilization, Copper-T, Oral pill, CC by eligible couples. (xx) Extent of liquor/drug abuse: Extent of liquor/drug abuse in the age group of 15-35 years. (xxi) Problems and needs: Main problems and needs of the shanty/jhuggi dwellers: The information on common diseases, major causes of deaths, acceptance of family planning methods, liquor/drug abuse, their problems and needs were also collected from community leaders, youth and social workers. 20.5.2 Findings of the Survey-1988-89, Conducted by ‘Institute for Socialistic Education’ on Behalf of Slums Wing Board-1988 (i) Demographic profile-1988 A total population of 4,57,224 living in 1,27,460 households of 457 shanty clusters was covered in the survey. The male to female ratio was 1000:732 which was abnormal compared to normal sex ratio for the state or the country, the reason being that a large proportion of the population was of migratory labour who lived 86 R.G. GUPTA -–1995 www.rgplan.org

alone and whose families were in the villages. Because of this the average family size was 3.59. The distribution of population in different age groups in given below: Age – Group 0-1 year 1-5 year 5-12 year 12-18 year Above 18 years Total

Population

Percentage

19,548 75,473 83,266 31,061 2,47,876

4.27 16.50 18.21 6.79 54.23

4,57,224

100.00

(ii) Socio-economic profile of the slum-dwellers-1988 (a) Type and size of shanties: The slum-dwellers lived in shanties (jhuggies) having thatched roof, temporary plastic covers, broken corrugated cement sheets and tin scraps. Shanties in the clusters were built in a haphazard manner with no drainage system. An average shanty of a small size measures 1.2m * 2.2m or 1.5m * 2.2m, medium size shanty measures 2.4m * 3.2m and large size shanties are of the size of 9.8m * 6m. Large size shanties were owned by a very small number of people who claimed to be head (pradhan) of clusters. They used large size shanties (jhuggies) for rearing animals like cows, buffaloes and pigs. Some scrap-sellers (Kabaris) had shanties (jhuggies) of the size of 9m * 12m or 10m * 18m for storing scrap material. (b) Occupational status: On the economic front, 26.09% adults in the age group of 18 and above, were unskilled workers, 7.49% were skilled labourers, 9.98% were self employed in petty work, 21.36% were employed in factories, mills and offices etc. The proportion of unemployed adults was 35.08%, 17.27% children in the age group of 12-18 years were also reported working as a child labour. (c) Economic status: The average monthly income of the family was Rs. 645. 79.42% earned between Rs. 500 to Rs. 1000 and only 11.55% above Rs. 1000. (d) Saving: 98.82% families were having no savings from income and were in debt. (e) Educational status: Children in the age-group of 5-12 years constituted 18.21% of the total surveyed population and among them only 35.30% were receiving primary education while 64.70% were not attending school at all. In the population above 12 years of age group (13 and above), 32.30% were literate and had received formal education; of these, 19.23% had received education up to primary level, 7.36% up to middle, 4.25% up to matriculation, 1.01% up to senior secondary and 0.45% up to graduate level. The rest 67.70% were illiterate. (iii) Migration pattern of slum dweller. After 1977 and during the period 1977-80, the average growth rate of families living in shanty clusters went up to 31.28%. Thereafter, at the time of ASIAD, many 87 R.G. GUPTA -–1995 www.rgplan.org

persons from the neighbouring States like Uttar Pradesh, Rajasthan, Madhya Pradesh and from other States like Bihar, Maharashtra, Orissa and Bengal were brought to Delhi by petty contractors for construction of roads, buildings, stadium, hotels, flyovers and laying of public parks etc. As these persons had no permanent structures to live, they were accommodated in shanty camps near the construction sites where they are still continuing to live even after construction work is completed. For their caste-based social security, they later invited their family members and relatives to come to Delhi to live with them in clusters. The average growth of families in clusters during 1981-85 was increased to 58.59%. Among 1,27,460 shanty families covered under the present surveys, 53.17% migrated from U.P., 12.96% from Rajasthan, 12.82% from Bihar and remaining 21.05% from other States of India. The reason for their migration to Delhi are manifold. The north-east central part of India has the largest number of poor people. Earlier, the labour contractors used to export labour from U.P., Bihar and Rajasthan to big industrial cities like Bombay, Calcutta and Madras or to the sites where big irrigation dams were under construction. These labourers who had no employment opportunities and no means of local subsistence, were lured to leave their villages in search of employment, of late, due to local regional allegiance in the states like Maharashtra, Tamilnadu, Bengal and Punjab a sizeable number of labourers at that time living in slums had migrated to Delhi. In addition, some people from the hill areas of U.P. had also migrated to Delhi, though their number was comparatively small. These persons from hill areas were mostly engaged in domestic services, though living in shanties. (iv) Availability of ration card 43.22% families in the surveyed shanty clusters had no ration cards, with the result that they had to buy essential commodities of daily use at a much higher price. Kerosene oil which is commonly used for cooking stove and lantern was procured @ Rs 4 to Rs. 4.50 per litre. (v) Health profile The survey did not focus much on this aspect, but some data was collected on immunization of children, and other diseases which the slum-dwellers suffered in the preceding years, as given under. (a) Immunization status: Infants (0-12 months) constituted 4.27% of the surveyed population and among them 94.83% had not been vaccinated against T.B., 81.42% not covered by DPT and Polio and 98.41% not covered against measles. This showed a very poor immunization status. (b) Anti-natal care: 5397 women were reported to be pregnant at the time of survey but none of them were receiving anti-natal care.

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(c) Common diseases reported in the shanties clusters in the preceding year were as under: Name of diseases Scabies/skin diseases Diarrhoeal diseases/intestinal disorders Malarial fever Jaundice Diseases of ear, nose & throat Eye diseases

Rank of I II III IV V VI

(d) Major causes of death in the preceding year • Diarrhoel diseases (Cholera, Gastro-enteritis) among infants (012 months) and children (1-5 years) due to dehydration. • Maternal deaths due to absence of pre-natal, natal and postnatal care services. • Pneumonia among children. • Low birth weight children followed by malnutrition and improper care. • Jaundice. (vi) Drug and Liquor Abuse: The percentage of drug and liquor abuse in the age group of 15-25 years was 15.5% and 12.5% in the age group of 25-35 years. The total percentage being 28%. Among the drug and liquor addicts were drivers, unskilled labourers, so called shanty (jhuggi) clusters head and frustrated unemployed youth. The following types of liquor/drug abuse were prevalent in the age group of 15-35 years among slum-dwellers (male) (a) Illicit liquor, (b) Spirit Methylated, (c) Balladona, (d) Ganja, (e) Bhang, (f) Charas, (g) Opium, (h) Mandrax Tablet/Pondirax Tablet, (i) L.S.D., (j) Diazapam, (k) Calmpose Tablet, (l) Valium, (m) Brown sugar, (n) Heroine. (vii) Main problems and needs of slum-dwellers, are as under: (a) Adequate clean potable water. (b) Properly maintained toilets. (c) Proper ground levelling in shanties and construction of brick-pavements ad permanent shelter home in a planned way. (d) Primary Health Care, ante-natal, natal and post natal care, MCH and family welfare services. (e) Pre-primary and primary schools for children. (f) Adult education programme and vocational training for development of skills. (g) Domestic electric construction. (h) Removal of animal nuisance such as pigs and stray dogs etc. (i) Stoppage of production and sale of illicit liquor and drugs. (j) To stop slaughter and sale of unhygienic meat. (k) To provide self-employment opportunities. (l) To provide loans to young unemployed persons to start petty business. (m) issuing of ration cards. (n) Regular immunization programme for infants, children and pregnant women. (o) Providing one tube-well for each cluster of 5000 persons and is proper monitoring. (p) Street lighting in the clusters. (q) Opening of fair price shops and sale of essential goods through mobile Super Market, particularly supply of kerosene oil, coal and firewood. (r) Protectionagains anti-social 89 R.G. GUPTA -–1995 www.rgplan.org

elements, unscrupulous non-committed so-called politicians and self-styled Heads and unnecessary harassment by police, (s) People’s participation in the implementation of welfare and development schemes ad monitoring. (viii) Suggestions for the improvements of environmental conditions of shanties clusters as envisaged by ‘Institute for Socialistic Education’. The slum-dwellers live in an atmosphere of uncertainity. They had no proper security for their living and livelihood. Nearly 75% among them were either temporarily employed or under-employed or not employed. It is essential to make them gain some confidence. A ray of hope had to be kindled in their hearts. People who lived in slums did not have even the elementary knowledge of health education and health care. They were also not aware that they had a right to use those services which are available at their doorsteps. The social problems of slum dwellers are to be solved largely by themselves. However, the following suggestions are made to improve the quality of life till some national policy is framed in this regard. (a) Improvement in living conditions by providing some type of physical infrastructure i.e. brick paths, sanitary toilets, safe drinking water, piped water supply or deep bore well, periodic removal of garbage etc. (b) Health education and health care by raising ‘Service Units’ comprising of motivated community workers of the slum area. (c) It has been noticed that many clusters were located mostly near the posh colonies and if sanitary conditions were improved in these clusters then it will also largely help people living in adjoining posh colonies, People living in posh colonies sometimes oppose construction of ‘Sulabh Shauchalayas’ (Pour Flush Latrines) apprehending that his would make shanty (jhuggi) clusters permanent. This attitude has to be changed by persuasion. It would be desirable if ‘Seva Vahinis’ (Service Units) are formed in all shanty (jhuggi) clusters with the active involvement of community workers from the slums. Similarly in each, shanty cluster ‘Swasthya Panchayats’, beformed to look after comprehensive integrated health, education, human resource development, welfare and justice. (d) It is necessary that like the integrated Rural Development Programme (IRDP) in villages, a National Policy should be evolved for ‘Integrated Development of Slums’ by a single unified agency responsible for planning, implementation, monitoring, evaluation and people’s participation. (ix) Summary of results of Surveys of shanties clusters conducted in 1988-89 by the Institute of Socialistic Education

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Description

Total

Percentage (%)

Shanties Population Male Female Age Group 0-1 1-5 5-12 12-18 18 +

127,460 457,224 263,910 193,314

57.72 42.28

19,548 75,473 83,266 31,061 247,876

4.27 16.50 18.21 6.79 54.23

Total

457,224

100.00

Educational level Primary Middle Matric Secondary Graduate and above Illiterate

53,651 20,550 11,823 2,832 1,253 188,828

19.23 7.36 4.25 1.01 0.45 67.70

Total

278,937

100.00

29,397 53,869

35.30 64.70

64,676 18,571 52,951 24,715 86,963

26.09 7.49 21.36 9.98 35.08

247,876

100.0

5.,365

17.27

97,430 15,272 14,758

76.45 11.98 11.57

127,460

100.0

318 11,201 64,353 36,877 14,711 72,382 67,782

025 8.78 50.48 28.94 11.55 56.78 53.18

5-12 Year Children, Attending Primary Classes Not Attending Classes Occupation Above 18 year + Mazdoori (Labour) Karigari (Skilled Labour) Service Business No Occupation Total Child Labour (12-18 years )working Conveyance used Foot Cycle Bus Total Family Monthly Income in Rs. 100-200 200-500 500-700 700-1000 Above 1000 Ration Card Scheduled Caste Families

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Scheduled Caste Population Migrated From

287,916

62.97

Uttar Pradesh Rajasthan Bihar Others Total

67,771 16,511 16,337 26,841 127,460

53.17 12.96 12.82 21.05 100.00

419 988 2,892 39,857 74,682 8,622

0.33 0.78 2.26 31.28 58.59 6.76

127,460

100.00

Year of Migration 1960-65 1966-73 1974-76 1977-80 1981-85 1986-89 Total

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Appendix 20.1 Names of 29 selected shanty clusters for survey along with number of families-1983 Sites

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29.

No. of families in each Guru Angad Nagar Motia Khan Camp Pandav Nagar Shadipur Baba Teliwara Dera Ramjas Hills between Anand Parvat & Jakhira (Prem Nagar) Sonia Gandhi Juggi Camp Naraina Industrial Area. Park behind Payal Cinema facing J&K block Naraina Industrial Area Phase I Cluster located on the east of Kushal Cinema Hall, Jahangirpuri (G-Block) Wazirpur J.J. Colony Block K Dilshad Garden Lakhi Park Jahangirpur Anna Jhuggi Camp Baraha Pulla Bhogal Sanjay Amar Camp near old Bridge C2B School Site Janakpuri Kilokari Tank near Jal Vihar Lajpat Nagar-I Behron Nagar Camp Pragati Maidan on Ring Road. Bhooli Bhatiari Camp Jhuggi on Humayun Road near Cemetery Area Khan Market. Indira Gandhi Camp, Kalyanpuri Pusta Jhuggies, Eastern Yamuna Canal Sundar Nagar F-Block opposite Gagan Picture Hall. Gokulpuri C Block (Sanjay Colony) New Shastri Nagar J.J. Clusters near Seelampur. Yamuna Camp near Yamuna Apartment Subhash Camp back of Dakshinpuri Block-5,6, 7 of site opposite Dakshinpuri Dhaula Kuan Tehhand Sanjay Camp near Hamdard Chitranjan park Market B-58, Rama Road DLF Area

163 459 265 506 309 206 155 154 74 461 646 60 621 155 158 176 240 135 518 260 31 743 1200 705 993 235 670 76 1126

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Appendix 20.2 Questionnaire for the survey of shanty clusters-1983 Part-I Family Enquiry Schedule Name of the cluster Shanty No. Area ( in Sq. Mts.) Ration Card No 1. Name of the Occupant Father’s/Husband’s Name 2. Religion SC/ST/Others 3. No. of Shanty Occupied 4. Occupancy Status: (i) Owned (ii) Rented If rented, Rent Rs. per month 5. Type of Shanty Structure (i) Temporary : Mud & Thatched roof – Khokha (ii) Brick & Mudwall : Asbestos roof; - Thatched roof (iii)Permanent wall – Asbestos roof - Tin roof – Stone slab 6. Use of shanties (i) Residential (ii) Residential-cum-Commercial (iii) Commercial/Shop (iv) Others. 7. Household composition Sl. No.

Members of the household and their relationship with the head

Age / Sex

Migration

(A)

Marital Status

Educational Status

Occupation

Monthly Income in Rs.

Mode of Transp -ort used

Place of work

i. ii. iii. iv. v. vi vii.

8.

(B)

(c)

I. Year of Arrival in – Delhi II. Year of Arrival in – Present Cluster Whether moved from Shanties elsewhere; Yes/No If yes, Name of Place______________________ If no, from Servant Quarters/Relatives/Native Place/Rented House. Purpose of Migration______________________

9.

Place of Birth (i) State ______________________________________ (ii) District____________________________________

10.

Remarks, if any____________________________________________ Signature with Date_____________________________

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Part-II

General Observation Schedule for Shanty Cluster

1. 2.

Name of the Cluster_____________________________________ Location: (i) In terms of important roads, landmark, bench mark etc. (ii) Accessibility of transport________________________ (iii) Environmental problems; Internal/External a. Noise______________________________________ b. Smell/odour_________________________________ c. Smoke_____________________________________ d. Stagnant Water______________________________ e. Fire Hazard_________________________________ f. Stone Dust__________________________________ g. Tree Plantation______________________________ h. Roads_____________________________________ i. Land use___________________________________ (iv) Distance of the cluster from the nearest (in km) (a) City Centre________________________________ (b) Dist. Shopping Centre________________________ (c) Neighbourhood Shopping Centre_______________ (d) Public Transport Terminus____________________ (e) Primary School_____________________________ (f) Dispensary_________________________________ (g) Hospital___________________________________ (h) Police Post_________________________________ (i) Other Services_______________________________

3.

Land

4. 5.

(i) Approximate Area (in hects.) of the Cluster____________________ (ii) Ownership of the land MCD/NDMC/DDA/Cantonment/ Railways/ Central Govt./Pvt.Trust/Gram Sabha/ Village Common Land/Village Panchayat/Other. Topography Plain/Hillock/River Bed/Low Lying/Others. Broad Landuse: Within/On the Periphery/Remarks

(i) Master Plan__________________ (ii) Zonal Plan__________________ (iii)Layout Plan_________________ 6. (A) Amenities/Services Available (a) Water (i) Tap Water________________________________________ (ii) Hand Pump____________________________________________ (iii) Public Hydrant_________________________________________ (iv) Individual House Collection_______________________________ (b) Electricity (i) Street Light_______________________________________ (ii) Domestic Connection_______________________________ (iii) No Light _________________________________________ (c) Public Lavatories (i) Water Borne________________________________ (ii) Dry______________________________________ (d) Sanitation (i) Street Cleaning System_____________________________ (ii) Garbage/Rubbish Disposal System_________________________ (e) Street Pattern (i) Metalled_______________________________________________ (ii) Brick-Paved___________________________________________ (iii) Temporary____________________________________________ (f) Availability of Drains.

(i) Permanent___________________________

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(ii) Temporary__________________________ (B) Community Facilities (a) Education

(b) Health

(i) Pre-nursery__________________________ (ii)Nursery_____________________________ (iii) Primary____________________________ (iv) Middle_____________________________ (v) If any other__________________________

(i) Malaria Eradication Scheme_________________________ (ii) D.D.T. Spray____________________________________ (iii) Vaccination Facility______________________________ (iv) Primary Health Care______________________________ (v) Mobile Dispensary_________________________________ (vi) Private Doctors___________________________________ (vii) Visiting Doctors__________________________________

(c) Religious and Recreational Facility. (i) Temple________________________________________________ (ii) Mosque_______________________________________________ (iii) Gurudwara____________________________________________ (iv) Any Other_____________________________________________ (d)

Social Education (i)Craft Class______________________________________________ (ii) Library________________________________________________ (iii) Family Plg.____________________________________________ (iv) Adult Education________________________________________

7.

Shopping Ration Shop: Within Cluster Yes/No. If no. distance from the cluster______________km.

8.

Reasons for the existence of the Cluster at present (Opinion of the Group) _________________________________________________________

9.

Shape and Structure of the Cluster-Rectangular Square Triangular Linear Others Status of Cluster: a. Permanent, Temporary (Construction Camp) b. Since When_________________________________

10.

11.

Type ad Number of Animals in the Cluster: S. No. Type Nos. a._________________________ b._________________________

12.

Observation of the Surveyor________________________________________

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21 Dimensions of Informal Sector and Planning 21.1 21.2 21.3 21.4 21.5 21.6 21.7

Background Development of Land by DDA and Shortage of Developed Urban Spaces Typical Characteristics of Shanties (Jhuggies) Clusters Thinking for the Development of Sub-standard Areas in the VIIIth Five Year Plan Informal Commercial Establishments in Delhi Planning for Informal Sector (Hawkers) in Delhi Concept and Design of Service Centre to Solve the Problems of Informal Sector

21.1 Background There are two types of distinct developments, but can be presented in six ways namely-(i) planned or unplanned; (ii) authorized or unauthorized; (iii) standard development or sub-standard development; (iv) intended development or unintended development; (v) general colonies and group housing pockets constructed in public, cooperative, private sector or substandard areas namely-shanty clusters, unauthorized colonies, unauthorisedregularised colonies, urban villages, rural villages and slum areas; and (vi) formal or informal. Almost all urban settlements have a much higher percentage of informal sector than formal sector. In 1982, while preparing the second Master Plan of Delhi, surveys conducted revealed that there were 140,000 commercial establishments in the informal sector (without any roof) and 100,000 commercial establishments in the formal sector. Going by numbers, informal sector should have much more importance than formal sector, but so far limited attention has been paid to this, in urban planning. Informal sector is associated with different land uses namely-residential, industrial, commercial, institutional, public and semi-public buildings. It varies in size and dimensions, from place to place and city to city. In this chapter the dimensions of informal sector have been limited to residential and commercial and no details have been given for industrial, educational and public and semi-public informal uses. The generation of informal sector depends on the characteristics of population and demand and supply of urban spaces of various land uses; This chapter has been written on commercial dimensions of informal sector in Delhi, on the basis of surveys conducted from time to time. Surveys with regard to residential use were covered in Chapter No. 20 (Physical and SocioEconomic Surveys). 110 R.G. GUPTA -–1995 www.rgplan.org

21.2 Development of Land by DDA and Shortage of Developed Urban Space Delhi is a Super Metropolitan City, urban area spread over 600 sq. km at present dimensions of Delhi would go on increasing until strong action and hard decisions are taken to curb and restrict the growth of population in Delhi. This can be achieved with the help of policies given in National Capital Region for development of priority cities in Ring No. 1 and Ring No. 2 of the Region i.e. Meerut, Hapur, Palwal, Rewari, Rohtak, Alwar, Panipat, Sonepat, Faridabad, Ghaziabad Etc. Three-fourth population of Delhi lives in sub-standard areas, with a break-up of 1.3 million in shanty clusters, 0.8 million in unauthorized colonies, 1.2 million in unauthorized regularized colonies, 0.5 million in urban villages, 1.0 million in rural villages and 1.8 million in designated slum areas. This percentage might have increased much more, if in the last 30 years, DDA had not developed urban spaces of various land uses namely-residential, commercial, industrial, institutional etc. 21.2.1

Position of Development of Land by DDA Up to December, 1989, DDA acquired 23091 of land and developed it for the following purposes:

Table 21.1: Position of development of land by DDA as in December 1989 Area in Hect. Development of Land Residential schemes Industrial schemes Horticulture schemes Slum & shanty (jhuggi), residential scheme Commercial, institutional, govt., semi-govt. & private Cooperative societies (CHBS) *Balance land under planning, and development Grand Total

7127 1034 2950 2333 3951 1944

23091

*3752 hect of land was also acquired and placed at the disposal of DDA for the purpose of planning, development and construction. The position of this land is as under: Dwarka (Panpankalan) Narela Complex Rohini Extension Dhirpur Complex Jasola Complex Under encroachment and stay orders

1913 hect. 459 hect. 607 hect. 81 hect 41 hect. 651 hect.

Total

3752 hect.

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As per projections made in Delhi Master Plan-2001 up to the end of the century, 24000 hect. of additional land i.e. equivalent to the land developed during the last 30 years has to be planned, developed and constructed upon for various uses. If this is not done, then lot of informal uses would be generated and developed asking more and more physical infrastructure. Position of physical and social infrastructure in most of the clusters in informal sector is very poor as examples given in the next paragraph.

21.3 Typical Characteristics of Shanties Clusters 21.3.1

Surveys of 1989 Conducted by the Department of Urban Basic Services, Delhi Government Even after planning, development and construction of 23091 hect.-large urban spaces, directly and indirectly by DDA along with other govt. bodies, three fourth of the population of Delhi lives in sub-standard areas. It shows acute shortage of supply of developed urban spaces, which is reflected in the continuous increase in sub-standard areas. and resettlement colonies. Details of surveys of shanties/jhuggies clusters and resettlement colonies carried out in 1973-74, 1983, 1985, 1986 and 1988 have been given in Chapter 20 (Physical & Socio-economic Surveys) of the book. The surveys of May, 1989 conducted under UBS (Urban Basic Surveys) programme were aimed at assessing health, sanitation and hygiene services viz., (i) maternity and child welfare centre; (ii) midwives (dais); (iii) private practitioners; (iv) govt. health workers; (v) private health workers; (vi) shallow and deep hand pumps; (vii) latrine seats; (viii) water taps; (ix) dhalaos; (x) septic tanks; (xi) sullage points near hand pumps; (xii) Scavenging staff (safai karamcharis); (xiii) water tankers; and (xiv) sulabh shauchalayas. The results of these surveys have been given below and show that standard of available facilities in these shanty clusters are far from satisfactory and as such no society would like to continue with the situation. • • • • • • •

In 1989, there were 2,27,117 households with 11,35,585 population, in the shanty/jhuggi clusters 47,101 i.e. 20.7% of the households were in East Delhi, 61,121 i.e. 26.9% in West Delhi, 56,291 i.e. 24.8% in North Delhi and the balance 62,604 i.e. 27.6% in South Delhi 70.5% of the clusters had access to maternity and child welfare centres whereas 29.5% had no such access There were 1366 private practitioners at the rate of one per 166 households 139 trained midwives (dais) at the rate of one per 1634 households 798 untrained midwives (dais) at the rate of one per 284 households 528 govt. health workers at the rate of one per 430 households 112 R.G. GUPTA -–1995 www.rgplan.org

• • • • • • • • • • • • • 21.3.2

171 private health workers at the rate of one per 1328 households1045 shallow public hand pumps at the rate of one per 217 households 3475 shallow private hand pumps at the rate of one per 65 households 424 mark-II (deep) hand pumps at the rate of one per 536 households 314 sullage water points near hand pumps at the rate of one per 723 households 1032 MCD water taps at the rate of one per 220 households 5921 water tankers visit per month at the rate of one per 38 3233 community latrines at the rate of one per 70 households 3241 Pour Flush Latrines (Sulabh Shauchalayas) at the rate of one per 70 households 953 individual latrines at the rate of one 238 households 498 Safai Karamcharis at the rate of one per 456 households 1289 sullage points at the rate of one per 1706 households 80 septic tanks cleaned at the rate of one per 2838 households 346 septic tanks uncleaned at the rate of one per 656 households Surveys of 1991 Recently in 1991, a survey of shanty clusters was undertaken and I was found that there were 920 shanty clusters with 259,344 shanties spread in different localities of Delhi with a break-up of 123 clusters (41,958 shanties) in the east, 289 clusters (87035 shanties) in the south, 204 clusters (42573 shanties) in the west, 93 clusters (21,877 shanties) in the central and 211 clusters (65901 shanties) in the north part of Delhi. The number of clusters of different sizes in five directions of Delhi has been given in Table 21.2

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Table 21.2: Size of shanty clusters in terms of households (group size) in five directions No. of households Group Size 0-100 101-200 201-500 501-1000 1001-2000 2001-5000 5000-10000 No. of clusters No. of shanties (jhuggies)

No. of shanties clusters

Total

East

South

West

Central

North

50 26 23 14 8 1 1 123 41958

141 56 50 17 11 13 1 289 87035

118 32 34 12 4 4 204 42573

60 11 12 4 4 2 93 21877

118 34 30 14 11 4 211 65901

487 159 149 61 38 24 2 920 259344

From the data given in Table 21.2 it is clear that 53% of the shanties/jhuggi clusters are very small and contain up to 100 families. The population in these clusters is less than 500, and hence the requirements of physical, social and economic infrastructure can be met from adjoining areas/colonies. Of the remaining 47% of shanties/jhuggi cluster, 17.2% are in the group size of 101-200 shanties, 16.2% in 201-500, 6.6% in 501-1000, 4.1% in 10012000, 2.6% in 2001-5000 and only 0.3% clusters i.e. 2 in nos. are of large size between 5001-10000 jhuggies or with population between 25,000 to 50,000. The two large clusters with a population between 25,000 and 50,000 persons should be planned carefully with provisions for physical, social and economic infrastructure. These clusters are very large and are like small towns. If these cannot be shifted to developed areas, then in/around SITU development and construction of urban spaces should be undertaken as per details given in Chapter 32. Other clusters with number of families from 101 to 5000 should be planned with care and as per approved policy of the DDA and Govt. of National Capital Territory of Delhi.

21.4 Thinking on the Development of Sub-Standard Areas in the VIII Five Year Plan Due to the multi-dimensional and gigantic problems of sub-standard areas, the following 20 schemes were proposed in the VIIIth Five Year Plan of Delhi. (i)

Shifting of shanties from project sites and resettlement of families on developed plots with physical, social and economic infrastructure.

(ii)

Construction of small dwelling units on sites of shanty clusters with the name of the scheme-In/Around SITU development and construction of urban spaces (Chapter 32. The Quality of Life) 114 R.G. GUPTA -–1995 www.rgplan.org

(iii)

Environmental improvement in shanty (jhuggi) clusters. (E.I.J.J.)

(iv)

Repairs of old court-yard type buildings (katras) by public agencies in the Walled City of Delhi.

(v)

Reconstruction of court-yard type buildings (katras) by public agencies in the Walled City of Delhi.

(vi)

Reconstruction of old court-yard type building (katras) by issue of ‘No. objection Certificate’ to property owners, meaning thereby development and construction in private sector.

(vii)

Development of physical infrastructure i.e. water, sewerage, drainage, power and tele-communication in slum designated areas.

(viii)

Construction and management of night shelters.

(ix)

Construction of work spaces in terms of shops and stalls in slum areas

(x)

Construction and management of homes for destitute.

(xi)

Environmental improvement in designated urban slums. (E.I.U.S)

(xii)

Construction of community halls (barat ghars) and welfare centers for community development program me.

(xiii)

Constitution of non-govt. organizations and establishment of cooperative societies for planning, development and construction of urban spaces as well as to give training for people living in slum areas.

(xiv)

Pay and use pour flush (Jan Suvidha) Complexes

(xv)

Construction of small residential flats along with adequate physical and social infrastructure in Mata Sundari Complex. (Chapter 40-Housing for Slum Dwellers- Mata Sundari - Minto Road Complex).

(xvi)

Development of urban villages (Chapter 35-Housing in Urban Villages of Delhi).

(xvii) Development of rural Settlements of Delhi).

villages

(Chapter

36-Housing

in

Rural

(xviii) Provision of additional physical infrastructure in terms of laying lines for individual water, sewer and power connection in resettlement colonies. (xix)

Development of physical infrastructure in unauthorized regularized colonies (Chapter 38-Housing in Unauthorized Regularized Colonies).

(xx)

Provisions of minimum basic amenities in 36 unauthorized regularized colonies which were in slum areas and 66 other special unauthorized colonies.

The ‘Group’ in 1990, after working out details of all these 20 components calculated a total expenditure of Rs. 5120 million which is @ Rs. 743 per capita if distributed in the entire population of 6.9 millions living in substandard areas in 1990.

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21.5 Informal Commercial Establishments 21.5.1 Surveys of Informal Commercial Establishments-1979 The number of informal commercial establishments has been continuously increasing. It has created problems in traffic and transportation systems and has polluted the environment. In 1979, National Council of Applied Economic Research conducted comprehensive surveys on all the roads of the Walled City of Delhi and found that on 26 important roads, heavy encroachments of informal shopping establishments had taken place, reducing the efficiency of road carriageways by 25% to 35%. The names of these roads are-Red Fort-Fountain, Fountain-Fatehpuri Masjid, Dr. H. C. Sen Marg, Esplanade Road, Nai Sarak, Fatehpuri Masjid-Farash Khana, Chawri Bazar T-point Paiwala Chowk (Jama Masjid Circle), Chawri Bazar TPoint-Urdu Bazar )Jama Masjid Circle), Chawri Bazar, Hauz QuaziAjmeri Gate, Fatehpuri-Lahorian Chowk, Nayabans-Hauz Quazi Chowk (Hamdard Marg), Shardhanand Marg and G. B. Road, Naya Bazar, Azad Market, Pul Mithai-Mori Gate, Mori-Gate-G.P.O., Novelty Cinema T-Point, Church Mission Road, Kauriya Pul-Luthian Pul, Luthian PulRed Fort, S.P. Mukherjee Marg, Luthian Pul-Ritz Cinema (Kashmere Gate), Asaf Ali Road, Delhi Gate-Darya Ganj, Darya Ganj overbridge. 21.5.2 Surveys of Informal Commercial Establishments-1981 Surveys/study of informal commercial establishments was conducted for the preparation of the Second Master Plan of Delhi. The following are the important findings of the surveys/studies. (i)

There were 139,000 informal commercial establishments in trade and services and were functioning (excluding weekly markets) in different parts of Delhi.

(ii)

Most of these units were situated strategically at important locations namely-near major work centers, major commercial areas, at the outside boundaries of large institutions i.e. colleges, schools hospitals, transport terminals, railway stations, bus stations and interchange points as well as near large housing estates, industrial estates etc.

(iii)

Eatable shops were the highest in number followed by personnel service. Private transport services like rickshaw-pullers and horse-cart pullers also constituted a high percentage.

(iv)

95 weekly markets were operating in different parts of the city with about 6000 shopping spaces. So far, no proper system of planning and development of weekly markets has been followed and established. The topic needs proper research for the preparation of physical plans and development with input of physical and social infrastructure like water supply and sullage disposal. 116 R.G. GUPTA -–1995 www.rgplan.org

21.5.3 Surveys of Informal Commercial Establishments-1982 This survey was conducted jointly by the Municipal Corporation of Delhi, New Delhi Municipal Committee and Slum Wing/Board at the instance of Govt. of National Capital Territory of Delhi. The results of the survey were as follows:

Authority

Municipal Corpn. of Delhi New Delhi Committee Slum Wing/Board Total

Municipal

No. of informal commercial establishments

Location

29694

On pavement of roads in MCD areas, On pavement of roads in NDMC areas In resettlement colonies

1400 2000 33094

21.5.4 Reasons of Growth of Informal Commercial Establishments in Different Parts of the City Some of the reasons and solutions have been given under: (i)

Less importance and late development of commercial urban spaces, especially in residential and industrial areas. New residential and industrial colonies are normally developed without timely construction of convenient shopping centers, local shopping centers, community shopping centers and district centers. This resulted in unauthorized, unintended, informal commercial establishments near/on the periphery of urban villages, resettlement colonies or other existing settlements. Initially, the number of informal commercial establishments is 10-15 units, but slowly over a period of 8 to 10 years, the number increase to hundreds. Typical examples are Village Jawalaheri and Village Pitampura in West Delhi which have hundreds of single and double storey shops. This phenomenon is very common and in total there may be thousands of shops around existing settlements, specially in villages of Delhi. This point should be properly cared and looked into and planning, development and construction of commercial urban spaces should be up along with the planning, development and construction of residential, industrial or public and semi-public building complexes. In the new Master Plan of Delhi-2001, it has been made compulsory to provide informal shops in residential, commercial and institutional complexes. 117 R.G. GUPTA -–1995 www.rgplan.org

(ii)

Cost of a developed commercial plot by a developing agency, say DDA, with proper physical and social infrastructure is very high, generally not less than Rs.10,000 per sq. mt. No man of the category of economic weaker section or low income group can afford to pay such a high cost and hence he runs commercial establishments of small size and of informal nature at strategic locations without paying cost of land. Proper research is required on the subject of development of informal commercial spaces to bring down the cost of development to Rs.2000 per sq. mt, so that cost of 10 sq. mt. built up establishment/shop is not more than Rs.20000.

(iii)

Sizes of shopping units in planned commercial markets are normally large i.e. - 15, 20, 30, 40, 50, 60, 80, 100 sq. mt For informal commercial establishments, sizes should be 4, 6 or 8 sq. mt., so that these can be purchased and managed by people of low income groups and economically weaker sections of the society.

(iv)

So far, there is no system of construction of small informal commercial establishments, which at present are in right of ways of roads, in parks and near work spaces. Ultimately, social cost of these unauthorized informal shops is much more due to traffic hindrances, pollution in environment etc. So, proper attention should be paid for the planning of-(a) Units which already exist and (b) New units in informal sector.

21.5.5 Surveys Conducted by City Planning Wing, DDA-1983 Spread of informal commercial units and establishments is always a continuous process and at no stage, one is able to control it, due to less attention/action from Govt. side and genuine requirements of the users. In 1983, City Planning Wing conducted surveys of informal commercial establishments only along Master Plan roads with R/W of 30 mt. and above in four planning divisions namely-(i) Planning Zone E-Trans-Yamuna Area; (ii) Planning Zone-F-South Delhi; (iii) Planning Zone-G-West Delhi and (iv) Planning Zone-H-North-West Delhi. City Planning Wing, DDA did not conduct surveys of congested Planning Divisions namely-A (Walled City of Delhi), B-Karol Bagh and Extensions, C-Civil Lines areas and extensions, D-New Delhi (Lutyen Delhi), due to their peculiar characteristics. A small questionnaire was prepared and used with information on the following three points: (i) (ii) (iii)

Type of squatter/encroachments. Use of encroachments. Whether licensed or non-licensed.

On major roads of 30 mt. r/w and above in Planning Zone E, F, G & H, there were only 5142 informal commercial establishments which were surveyed and results given in Tables 21.3, 21.4 and Appendices 21.1, 21.2, 21.3 and 21.4. 118 R.G. GUPTA -–1995 www.rgplan.org

(a)

No. of encroachers/squatters as per use: In all, there were 4517 shops which accounted for 88% of the total structures under surveys. Next in order was residential use structure, followed by god owns. Highest number of encroachers were in Planning Zone E, (Trans-Yamuna Area), having 33%; followed by Planning Zone G (31%), Planning Zone F (25%) and Planning Zone H (11%) This has been shown in Table 21.3.

Table 21.3: Distribution of encroachers/squatters according to use S. No. 1. 2. 3. 4.

Plg. Div. E (TransYamuna) F (South Delhi) G (West Delhi) H (North Delhi) Total Percentage

Shop

Residential

Godown

Others

Total

% age

1439

203

15

68

1725

33.0

1103

50

1

111

1264

25.0

1481

35

16

75

1607

31.0

494

31

-

21

546

11.0

4517 88.0%

319 6.0%

32 1.0%

275 5.0%

5142 100.0%

100.0

21.6 Planning for Informal Sector (Hawkers) in Delhi 21.6.1 General This is an important aspect of urban planning especially in developing countries; as number of units in informal sector. Informal sector units are in most of the land uses namely residential, commercial, institutional/public & semi-public facilities; recreational etc. situated at most strategic locations. Vendors and hawkers are a traditional identity since centuries, in most of the cities of the country, and of different types/patterns i.e. of Indian bazaar, moving from one place to another, in specific days/particular season and days of the year. Vendors and hawkers are essential part of the urban life and urban system. It should not be taken as a constraint in urban planning. Most of the informal sector units occupy the best locations from their point of view as well as from user’s point of view. Their important characteristics are (i) small size; (ii) easy access; (iii) family ownership; (iv) lab our intensive use; (v) non-formal education and skills of the operators; (vi) long working hours than usually in formal sector; (vii) unregulated markets; (viii) minimum cost of production and management per unit etc. 119 R.G. GUPTA -–1995 www.rgplan.org

21.6.2 Present Policy in Delhi There is not defined policy at national, regional or local level in existence about planning, development, construction and management of urban spaces for informal sector. In the Master Plan of Delhi-2001, number of units in informal sector was prescribed for commercial, institutional and Government Office land use, but this provision has not created any impact so far. In the last two years, planners are concentrating more and more on the subject and many thesis on this topic are being done by he students of School of Planning & Architecture-Delhi. In Delhi, hawkers and venders are controlled by local bodies namely; Municipal Corporation of Delhi and New Delhi Municipal Committee, in terms of permitting them to transact business after collection of (tehbazari) fee from individuals. This is being done under Municipal Corporation of Delhi Act-1957. Tehbazari is a written permission for temporary occupation of an area of 1.8 * 1.2M space. The practice of tehbazari is since 197 and this may continue for a decade or so till need based norms are worked out and implemented. Tehbazari fee is from different informal commercial units of various types namely; (i) functioning from foot-paths; (ii) canvas projection over foot-path; (iii) wooden platform on foot path; (iv) temporary platform generally constructed by fruits & vegetable sellers; (v) by encroaching covered pillar verandahs; (vi) movable units etc. 21.6.3

Characteristics of Informal Sector (Hawkers) Based on simple economic principles and demand supply criteria, informal units start operating from most strategic locations where multiplier effects of economy are maximum & users accessibility is the highest. It is tru that most of the locations of informal sector are against urban planning principles as these units occupy part of the R/Ws of the roads with no parking facilities of any type, without making available of physical, social and ecological infrastructure and also creating pollution. Ms. Veena Garella, Professor in School of Planning & Architecture, New Delhi in an article on the caption ‘Planning for Hawkers in Delhi’ in Vikas Varta DDA states the following characteristics for hawkers. (i)

Hawker Concentrations Hawkers had the largest concentration (27.5%) in the inner city that is Zone A (the Walled City). It is customary for hawkers to locate strategically close to areas where large customer flows and dense traffic are expected. 120 R.G. GUPTA -–1995 www.rgplan.org

(ii)

Types of Hawkers Units There were four distinct type of hawker units observed in the city.

1. 2.

3. 4.

(iii)

Static types, temporary stalls called Khokhas-10% in numbers. Semi-static types, as footpath sellers, who occupy a particular space while at work, then move away at the end of the day-37% in numbers. Mobile types, as on cycles, tricycles, 4-wheeled wooden carts called rehris-27.3% in numbers. Door to door (itinerant) selling goods or services, (cotton ginners, kabariwala, kalaiwala, mason, plumber)-25.4% in numbers. Types of Hawker Activities All hawker activities could be classified under three main categories: (a) Food items (Cooked foods, Drinks and Beverages, Raw foods. (b) Non-Food Items (Textiles, plastic-ware, Kitchenware, cosmetics, foot-wear, stationary, handicrafts, presentation goods, new and second hand goods). (c) Services (hair cutting, tailoring, shoe shine, rickshaw pulling, tamashawala).

21.6.4 Planning, Development, Construction and Management for Informal Sector (Hawkers and Venders) Location of hawkers in most of the cases are at important strategic locations i.e. Inter State Bus Terminus, cinema house, community shopping centre, local shopping centre and convenient shopping centre, hospital, college, senior secondary school, primary school, office complex, other large establishments/installations, railway station, bus stops, important intersections etc. For example, in Govt. office complex at Indraprastha Estate, New Delhi, there are 500 informal commercial shops at least 70% of food articles and the balance of others. Planners never provided any shopping centre with units in informal or in formal sector in such a huge office complex. The result being that environment of the entire area is spoiled. Likewise in the back of Red Fort Delhi there is a large weekly market where thousands of shopping units display and sell their goods. These weekly markets are on all the Sundays and sell all types of goods of values from few rupees up to thousand of rupees. For the proper planning, following steps should be followed: 121 R.G. GUPTA -–1995 www.rgplan.org

(i)

Reconnaissance Surveys

e)

This is required in terms of location of the units, number of units, their approximate sizes, type of articles sold, timing of their functioning etc., and to find out Inferences from the reconnaissance surveys and past available studies. Speciality of the market. Approximate catchment area. Number of required shopping units in 5 years and 10 years, with a break up into (a) Food articles (b) General merchandise (c) Cloth, readymade garments, shoe & chappals. (d) Steel & Wooden furniture. (e) Utensils, crockery etc. (f) Miscellaneous. Approximate number of units in these categories should be 50, 10, 10, 10, 10, 10 percent respectively. Assessment of existing and proposed social infrastructure.

(ii)

Planning proposals

a)

No informal market should be planned and developed in R/W’s of roads especially on any road of 30 mtr. and above. Water and drainage line should be available so that potable water for drinking purposes can be made available as well as disposal of sullage water is also there. Within the proposed complex or in the vicinity, there should be some parking provisions. There should not be any roof above the units otherwise these markets would be permanent and due to this, unauthorized construction can be added.

a) b) c) d)

b)

c) d)

(iii)

Development Construction and Management of Informal Markets

a.

To start with the development and construction of the market, 10% of the cost of the project should be given by a Development Authority or Govt. as a seed capital on full market rate of interest to the project to manage the entire show of development, construction and management. The balance amount including seed capital with interest would be realized from the beneficiaries. Cost of the project would include (i) cost of acquisition of land; (ii) cost of allotment of alternate space if any; (iii) cost of development with physical infrastructure; (iv) cost of construction of social infrastructure; and (v) cost of maintenance at least for 3 years. Suppose this is X. Disposal price of shopping units would be X+25% of X. This cushion has been kept for escalation in the price of various items.

b.

c.

122 R.G. GUPTA -–1995 www.rgplan.org

d.

21.6.5

Development, construction and management of the market would be with the help of NGO and Cooperative Societies. Cost of management will be charged from beneficiaries. Number of Informal Commercial Units in Built Up and New Areas

(i)

Existing built up areas Though already there are number of informal commercial units in existing built up areas. Yet there is a need of study and to provide required units of informal commercial shops. In providing built up areas, making available of space becomes a problem and there is hardly any space beyond R/Ws. Sincere effort has to be made to search out some pockets keeping the following principles in view: (a) (b) (c) (d)

(ii)

Area should be available beyond R/Ws. Water line and storm water drainage should be available. If possible, the proposed centre should be fenced or compounded. There should be proper signage’s, sign board and street furniture in the complex.

In new commercial centre (a)

(b)

(c)

(d)

(e)

(f)

Convenient shopping centre-equal units in informal sector as in formal sector or 10% of the total floor area whichever is more. Local shopping centre-equal units in informal sector as in formal sector or 8% of the total floor area whichever is more. Community shopping centre-units in informal sector equal to 80% in formal sector or 6% of the total floor area whichever is more. District shopping centre- Units in informal sector equal to 60% in formal sector or 5% of the total floor area whichever is more. Educational complexesUnits College 15-20 Senior secondary school 10-15 Primary school 6-7 Health complexes General hospital 15-20 Intermediate hospital 6-8 Dispensary 2-3

123 R.G. GUPTA -–1995 www.rgplan.org

21.7 Concept and Design of Service Centre to Solve the Problems of Informal Sector 21.7.1 Concept of Service Centre In most of the cities, number of informal commercial use and structures are much more than in formal markets. It is also found that informal shopping is more potential than formal shopping due to, (i) Goods are cheaper, (ii) Access to the informal market is easier, (iii) There is no formality of sales tax etc. Based on this background, in 1984, a survey was conducted about automobile workshops which is mostly informal sector in different parts of Delhi. To accommodate informal sector in a planned way, it is proposed to provide following facilities in Service Centre: (a) Goods of day to day necessities. (b) Automobile repair shop for two, three & four wheeler vehicles. (c) Shops of building material, construction and repairs like sanitary goods, electric goods, bricks, sand, hardware etc. (d) Gas god owns and Kerosene Depot. (e) Grain flour mill, cotton carding, and laundry. (f) Shops of eatables. (g) Area for weekly market. (h) Area for parking for different types of vehicles. (i) Enquiry office with facilities of public telephone booth, STD etc. and public conveniences. 21.7.2 Surveys (i)

To design Service Centers specially with provisions of automobile repair shops, different type of surveys were conducted, in 1984, with regards to following 4 factors; (a) Location of Automobile Workshops. (b) Area under occupation. (c) Type of Workshop. (d) Nature of trade.

(ii)

Result of surveys of workshops have been given in the following paragraphs:(a) Location: The survey was done only of those auto workshops which were running in clusters i.e. in groups of 5-10 and more, and which were partly in road R/W’s. Auto workshops which were well established and running in conformity in industrial and commercial areas were not included in the surveys.

From the data collected, it was evident that more than 95% of the workshops were located near Junction/intersections of major roads, near commercial areas and markets, in and around residential areas, near Office complexes etc. In view of the locations mentioned to as above, it is apparent that the most suitable location for auto workshop/service centres is along major transport routes on which maximum traffic passes. 124 R.G. GUPTA -–1995 www.rgplan.org

Table 21.4(b): Covered area (in sq. mtrs.) of automobile workshops Area in (Sq. Mts.) Up to 10 sq. mts. 11-20 21-50 51-100 101-150 151-200 Above 201 No Covered Area

Nos. 270 203 169 264 132 041 049 100

Percentage 21.98 16.53 13.78 21.59 10.75 03.33 03.99 08.15

Total

1228

100.00

Table 21.6 (b) shows that 270 or 21.98% occupied an area of 10 sq. mts. and below, 203 or 16.53% between 11-20 sq. mts., 169 or 13.78% between 21-50 sq. mts., 264 or 21.59% between 51-100 sq. mts., 222 or 18.06% occupied an area more than 100 sq. mts. Under this category, 100 units are unauthorized running on footpaths of roads with no covered areas. Table 21.5(c): Open area (attached with covered shed) of automobile workshop Area in (Sq. Mts.) Up to 10 11-20 21-50 51-100 101-150 151-200 Above 201 No open area attached to the unit Total

Nos. 164 101 113 166 052 018 038 576

1228

Percentage 13.35 8.23 9.20 13.51 4.25 1.46 3.09 46.90

100.00

As regards open area under possession 164 or 13.35% units possess an area of 10 sq. mts. and below, 101 or 8.23% between 11-20, 113 or 9.20% between 21-50, 166 or 13.51% between 51-100 sq. mts. 576 units are such which do not own any open area, attached to the units; meaning thereby that either these units are operating from footpaths and pavements of major roads or have no open area to all. Table 21.6(d): Type of automobile workshops Type of Workshop Car (Four wheeled drive) Three Wheeler Two Wheeler Combined Total

Nos. 320 148 553 207 1228

Percentage 26.06 12.06 45.03 16.85 100.00

125 R.G. GUPTA -–1995 www.rgplan.org

Out of the total 1228 workshops counted so far 320 or 26.06% were dealing in Car/Taxi (Four wheelers), which was next to 553 or 45.03%, two wheelers (scooters/motor cycles). Those dealing in all type of workshops (Car/Scooter/three wheelers account only 207 or 16.85%. Three wheeler scooters workshops were the minimum i.e. 148 or 12.06%. Table 21.8 (d) revealed that much emphasis is to be laid on two wheeled and four wheeled vehicles i.e. car and scooter/motor cycle workshops/Service Centre. Table 21.9 (e) deals with nature of trade of individual auto workshops. Out of 1228 workshops surveyed so far. 60 or 4.89% workshops were dealing in servicing trade i.e. washing, cleaning, oiling and greasing of different types of vehicles. 96 or 7.82% units were dealing n denting, painting and welding works. As regards repairs this alone account for 794 or 64.52% of the total. Miscellaneous trades like seat repairing, tyre retreading/repairing, doors repairing, meter repairing and others accounted for 278 or 22.77% of the total. Table 21.7 (e): Nature of trade in automobile workshops Nature of Trade Servicing/cleaning/washing/polishing/greasing Denting and Painting Repairing: (i) Mechanical (ii) Auto Electric Work (iii)Seat Repairing (iv) Tyre Repairing (v) Welding (vi) Others Total

Nos. 060 096 299 495 013 021 007 237 1228

Percentage 4.89 7.82 24.35 40.30 01.06 01.71 0.57 19.30 100.00

It means in the proposed service centers there should be adequate provision for both repairing and allied trades mentioned as above. As regards servicing of vehicles this only relates to two wheelers and three wheeler auto rickshaws. And for car etc. servicing is done in the service stations as there is no provision of workshops sites for this nature in these surveyed markets. 21.7.3 Findings of the Surveys of 1984 (i)

There were nearly 2500 automobile workshops operating in different parts of the city.

(ii)

The total number of vehicles serviced/repaired in these markets and workshops estimated to be 6, 65903. These vehicles were inclusive of goods carriers, which was not part of the study. The study covers only two wheeler, three wheeler and four wheeler, but not heavy goods vehicles and public buses. 126 R.G. GUPTA -–1995 www.rgplan.org

(iii)

As regards two wheeler or three wheeler auto workshops, about 100 to 125 vehicles were serviced/repaired per month approximately in each auto workshop.

(iv)

As regards four wheeled drive the number of vehicle per month was 50 to 60 vehicles or roughly two vehicles per day.

(v)

The site observations revealed that in most of the markets, workshops, are in a group or 5 to 10 and at some places even more than 10.

(vi)

In some areas specialized markets for particular type of vehicles such as in Jheel Khuranja, (Trans Yamuna area), there were more than 400 auto rickshaw workshops running at one place. Similarly in Kotla Mubarakpur West of Bhishmapitamaha road a full-fledged metro repairing workshop market dealing in two, three, four wheeler had sprung up.

(vii)

It was also observed that most of the workshops were located on spots/places where maximum traffic is generated and attracted like near interstate Bus Terminus; Mori Gate bus terminal; Okla. bus terminal; Uttam Nagar bus terminal; near fruit and vegetable market, in Lajpat Nagar; near Zamroodpur village; Jungpura Bhopal; near industrial estates; work centers and main commercial complexes. In addition to it posh areas and office complex have substantial number of automobile workshops in the surrounding areas. Tentative plans of service centre for such locations have been prepared and given in Maps 21.1 and 21.2.

(viii)

Approximately 50% workshops were unauthorized running on road right of ways.

(ix)

30% of the petty workshops’ owners were paying open/covered tehbazari in lieu of the area under possession with them to MCD. Tehbazari rate were ranging Rs.30 to 45 for a covered area of 2 m x 1.5 m (3 sq. mt.) Once Service Centre comes into operation then system of Tehbazari would be ended.

(x)

This survey was taken as base while designing Service Centre as shown in the Maps 21.1 and 21.2.

21.7.4

Design of Service Centers (i)

Locations; (a) Catchment area of a service centre should be adequate and large so that sufficient numbers of customer are available and the centers do not suffer due to economy. (b) The centre should be approachable by a road not less than 18 mt. in width. 127 R.G. GUPTA -–1995 www.rgplan.org

(c)

Size of a service centre should not be less than .5 ha. (1.25 acre) to accommodate about 100 units and .25 ha (.6 acre) for 50 units in smaller colonies.

(ii)

Design Factors: (a) Service Centre should have separate entry and exit. It is proposed that this should be fenced either by a railing or a low compound wall of .75 mt height. (b) A display boards should be in the walls of the service centre. (c) Each service centre should have facilities of public conveniences, drinking water and garbage dhalao. Besides this, there should be proper system of sewerage disposal.

(iii)

Type of trades to be permitted: Bread, Bakeries and Confectionary; Cold Refrigerators; Atta Chakki; Toy making; Tailoring and garment making; Art wares; Textile and printing; Jewellery, gold ornament and silverwares; Wood Carving; Electro Plating; Bamboo and cane products; Sports goods; Stationery items & Book binding; Radio Assembling and parts; Laundry & Dry Cleaners; Automobile repairs; Shops of spare parts of auto; Cotton Carding; Space for Mason, plumbers, electric repairers; Repairing of gas stoves; Shoe repairs; Shops of eatables; Hardware and building material.

128 R.G. GUPTA -–1995 www.rgplan.org

Appendix 21.1 Statement showing Type and Use of Encroachment/Squatting on Major Master Plan Roads in Planning Zone E (Trans-Yamuna Area) Name of Road & Length

Use of Encroachments Sho p Com m.

Res i

G.T. Rd. (national Highway) 9 Km. Viswsa Rd. 5 Km.

597

23

30

Go swami Ganesh Dutt. Marg. 4.5 Km.

126 75

Vikas Marg Near New Seemapuri 5 Km. Loni Road 3 Km. New Patparganj Rd. 2.5 Km. Old Yamuna Bridge to Wazirabad Rd. 4.5 Km. Shyam Lal College to Parparganj Depot Rd. 56 8 Km. Shyam Lal College to Parparganj Depot Rd. 57 8 Km. Gajipur to U.P. Border 3 Km. Patparganj Rd. 3.5 Km. Mandir marg (Krishan Nagar Lajpat Rai Chowk) 2.5 Km. Eastern Yamuna Canal Rd. Wazirabad to G.T. Rd. 4 Km. Brahampuri to Seelampur. 2.5 km. Marginal Bundh Rd. 5.2 Km. Mojpur to Chowk

GRAND TOTAL

Godo wn

Type of Structure

Tot al

Oth er

Tot al

Pe rm

Kho ka

Jhu g-gi

Tha di

Rehr Ot i h er

5

23

648

37

15

44

279

75

178

20

-

1

23

54

9

9

7

6

5

12

6

54

3

-

2

131

3

4

8

-

37

78

1

131

-

-

2

77

2

-

-

-

43

32

-

77

57

1

-

-

58

2

5

19

3

20

9

-

58

29

-

-

-

29

-

-

-

-

20

9

-

29

33

-

-

-

33

-

2

-

6

18

7

-

33

13

-

2

-

15

-

2

3

-

2

8

-

15

13

-

2

-

15

-

2

-

5

5

3

-

15

7

-

-

4

11

-

-

6

1

1

3

-

11

54

14

1

-

69

-

-

13

19

26

10

1

69

9

-

-

1

10

1

-

1

-

-

6

2

10

76

162

4

13

255

5

5

1

22

181

25

12

9

221

-

-

-

221

3

1

24

1

93

99

-

221

28

-

-

-

28

-

1

5

17

-

5

-

28

71

-

-

-

71

41

2

4

17

4

3

-

71

1439

203

15

88

1725

103

44

156

535

374

474

39

172 5

129 R.G. GUPTA -–1995 www.rgplan.org

Tot al

648

Appendix 21.2 Statement Showing Type and Use of Encroachment/Squatting on Major Master Plan Roads in Planning Zone F (South Delhi) Name of Road & Length

Lala Lajpat Rai Rd. 8.5 Km. Kalkaji Mandir Rd. 4 Km. Kalkaji Mandir to Tuglakabad 25 Km. Mathura Rd. 161 11.5 Km. Mehrauli Babarpur Rd. 10.5 Km. Mehrauli Mahipalpur Rd. 8 Km Lajpat Nagar Sriniwaspuri to Modi Flour Mill. 2 Km. Modi Flour to Mathura Rd.3km Rd. Babarpur 244 to Govindpuri, 4.5 Ring Rd. (Dhaula Kuan to Safdarjung) 6km Aurbindo Marg, 8 Km. Tula Ram M2km African Ave.4km Rd. from Ring 33 to Ashram, 1 Siri Fort Rd.3km Road From Sheikh Sarai to Mehrauli, 5 Km. Road from Madangir & Chirag Delhi3km Grand Total

Use of Encroachments

Type of Structure

Shop Com m

Res i

Godow n

Othe r

Tota l

P er m

Te m p

K ho ka

Jhu g-gi

14

-

-

2

16

2

-

1

1

59

-

-

2

61

-

-

8

41

5

-

8

54

2

1

7

-

14

182

7

22

204

18

-

20

242

26

-

-

-

10

-

-

45

-

244

Tha di

Re hri

Oth er

Tot al

9

3

-

16

-

39

12

2

61

11

7

13

17

3

54

29

18

55

37

14

182

3

3

17

46

64

27

82

26

-

4

2

-

14

6

26

1

11

2

1

1

-

4

3

-

11

-

4

49

3

1

3

1

28

4

9

49

14

-

2

260

2

-

41

138

55

23

1

260

46

-

-

1

47

-

-

24

-

9

14

-

47

85

3

1

4

93

24

2

3

4

42

16

2

93

9 -

1 36

74

2 1 -

11 7 -

1 7

4 -

32

1 32

6 2 3

2 74

2

11 7

10 18

2

-

10 -

20 20

-

6 13

3 2

2

5 3

3 -

3 -

20 20

87

-

-

4

91

3

9

9

9

14

33

-

91

1103

50

1

111

1264

49

66

16 1

227

394

232

121

1264

242

130 R.G. GUPTA -–1995 www.rgplan.org

Appendix 21.3 Statement Showing Type and Use of Encroachment/Squatting on Major Master Plan Roads in Planning Zone-G (West Delhi) Name of Road & Length

Use of Encroachments

Type of Structure

Shop Comm.

Re si

Go do wn

Ot her

Tota l

Pe rm

Te m p

Kh ok a

Jhug -gi

Th adi

Rehri

Ot her

Tota l

101

21

-

2

124

1

-

7

23

62

31

-

124

9

-

-

-

9

-

-

1

3

1

4

-

9

-

-

-

-

-

-

-

-

-

-

-

-

-

68

-

-

1

69

2

1

11

-

13

42

-

69

-

-

-

-

-

-

-

-

-

-

-

-

-

19

-

-

1

20

-

-

-

10

5

5

-

20

Jakhira Rd. to Border 10.5 Km.

116

1

-

1

118

39

-

4

33

29

13

-

118

Janakpuri to Najafgarh 9 Km.

5

-

-

2

7

-

-

-

1

6

-

-

7

37

2

-

6

45

9

-

4

-

18

14

-

45

Patel Road 8 Km.

128

-

-

23

151

2

-

7

-

33

88

21

151

Ring Road (Naraina Vill. To Raja Garden) 5 Km. Raja Garden to Azadpur 10 Km.

152

3

-

5

160

30

58

17

1

18

34

2

160

89

-

-

5

94

1

1

2

-

46

44

-

94

Pankha Road 8 Km.

53

-

-

3

56

11

3

9

-

15

17

1

56

Najafgarh Rd., 15 Km.

469

2

-

13

484

8

-

22

12

230

185

27

484

Rama Road 6 Km.

235

6

16

13

270

4

55

28

53

87

42

1

270

GRAND TOTAL

1481

35

16

75

1607

10 7

11 8

11 2

136

563

519

52

160 7

Jawalaheri Road (30) 4 Km. New Rohtak Rd. to Patel Rd. (205) 3 Km. Outer Ring Rd. (26) from nazafgarh Rd to G.T.K. Rd. 16 Km. Jail Road. Kalidas Marg to Ring Rd. 6.5 Km. From Wazirpur Depot (41) 3.5 Km.

Hari Nagar to Tihar, 1 Km.

131 R.G. GUPTA -–1995 www.rgplan.org

Appendix 21.4 Statement Showing Type and Use of Encroachment/Squatting on Major Master Plan Roads in Planning Division H (North West Delhi)

Name of Road & Length

Use of Encroachments Shop Com m

Type of Structure

Res i

Go do wn

Oth er

Tot al

Pe rm

Te mp

Kh oka

J h u g gi

Th adi

Rehri

Oth er

Tot al

National Highway from Azadpur. 10 Km. Raja Garden to Azadpur 10 Km.

304

31

-

20

355

8

4

10

33

155

130

15

355

87

-

-

1

88

1

1

2

3

46

34

1

88

Road No. 43. 6 Km

103

-

-

-

103

-

-

19

27

36

21

-

103

GRAND TOTAL

494

31

-

21

546

9

5

63

2 3 7

18 5

16

546

132 R.G. GUPTA -–1995 www.rgplan.org

133 R.G. GUPTA -–1995 www.rgplan.org

134 R.G. GUPTA -–1995 www.rgplan.org

22 Base Maps Preparation 22.0 22.1 22.2 22.3 22.4 22.5 22.6

Concept Scale of Maps and their Use Proposals given by National Remote Sensing Agency Hyderabad. Brief of the Proposal given by Norwegian Agency for Development Studies (NORAD) abut Utility Mapping Important Surveys for Delhi Creation of a Department ‘Preparation of Base Maps’ for Delhi. Pilot Project of Preparation of Base Maps of Trans-Yamuna Area along with River Yamuna Bed

22.0 Concept Base maps are the basic inputs for the preparation of spatial maps, whether at the national level, state (region) level, district (sub0region) level, or even at city, town and rural settlement levels, and for Plans of services namely-water, sewerage, drainage, power, flood protection and storm water drainage, telecommunication, gas supply, circulatin system etc. and also for roads, rails, location of economic activities. There cannot be any meaningful plan if not prepared on proper bas maps. No plan, whether Master Plan, Structure Plan, Policy Plan, Zonal or Sector Plan can be prepared without a proper base map. For practical purposes, latest base maps are required for all urban settlements which number 3768 as per 1981 Census. To begin with the work of preparation of base maps, in the first phase large, urban settlements with a population of 100,000 and above may be taken, and also of Spatial Planning Urban Regions (SPURs) as defined in the document prepared by ‘National Commission on Urbanisation’ in 1989 may be taken. Town & Country Planning Organisation is trying for the creation of an independent department in the Ministry of Urban Development for the preparation of base maps of urban areas and settlements. The importance of base maps should not be underestimated as being done so far, since without these, no proper plans can be prepared. The total cost of preparation of base maps with all the details as given in his Chapter is Rs.800 per hect. i.e. Rs. 0.08 per sq. mt. which is negligible in comparison to cost of actual development and construction of urban spaces. To prepare bas maps, decisions on the following points are required: (i) Scale : It usually varies from 1:25,000 to 1:1000. 135 R.G. GUPTA -–1995 www.rgplan.org

(ii) Base Year: To take aerial photographs and then updating base maps after every three years. (iii) Cost of the system: Preparation of base maps requires a lot of expenditure. For Delhi alone, an amount of Rs. 180 million would be required based on 1990 cost index. All these points have been explained in this chapter, taking Delhi as an example: Dimensions of Delhi with Reference to Types of Base Maps Available. The area of National Capital Territory of Delhi is 1487 sq. km, of Delhi Metropolitan Area 3,000 sq. km and National Capital Region 30242 sq. mt. The actual area covered during aerial photography is more and will be 2019 sq. km for the National Capital Territory of Delhi, 3300 sq. km for Delhi Metropolitan Area and 32000 sq. km for NCR. This will be due to photography of adjoining pockets in a particular rectangular grid. Different types of base maps required with the help of remote sensing/aerial photography and otherwise can be divided into the following four categories: (i) Small scale maps in the scale of 1:250,000, 1:100,000, 1:50,000 and 1:25,000. (ii) Medium scale maps in the scale of 1:20,000, 1:15,000, 1:10,000 and 1:6000. (iii) Large scale maps in the scale of 1:5000, 1:25,00, 1:1000 and 1:500. (iv) Very large scale maps in the scale of 1:200, and 1:100

22.1 Scale of Maps and their Use Base maps, whether small, medium, large or of very large scales, are used for the following purposes(i) Small scale maps Small scale maps are used for macro landuse planning, location of settlements, inter-city roads, railway traffic systems, Master Plan of physical infrastructure, viz., water, sewerage, drainage, power, gas supply, plans of provincial, regional level, metropolitan level and plans of agriculture, forestry, water resources at macro level. (ii) Medium scale maps Medium scale maps are used to prepare divisional maps, sector maps, zonal maps and detailed meso level plans of agriculture, forestry, and water resources, plans at sub-regional level, plans of agglomeration of super metropolitan cities like Bombay, Delhi, Madras and Calcutta. (iii) Large scale maps Large scale maps are used for landuse atlas, land ownership atlas, intra traffic and transportation systems, planning of sub-standard areas namely-shanties (jhuggies) clusters, unauthorised colonies, urban villages, rural villages, slum areas and resettlement colonies, general layout plans, implementation plans of residential, industrial, institutional and commercial area, utility maps namely-water, sewerage, storm water drainage, power, gas and telecommunication, implementation plans of any type. 136 R.G. GUPTA -–1995 www.rgplan.org

(iv) Very large scale maps These are used for the purpose of detailing of projects and are prepared manually with the help of plain table surveys, theodolites etc. It is clarified that not only proper base maps are required, but their updating from time to time, generally once in three years, is also required. These base maps are required not only for Delhi Development Authority, but for other authorities, undertakings too, namely-Delhi Water Supply & Sewage Disposal Undertaking, Delhi Electric Supply Undertaking; PWD, Government of National Capital Territory of Delhi, Traffic Police, Irrigation & Flood Deptt., Government of National Capital Territory of Delhi, General Wing, Municipal Corporation of Delhi, New Delhi Municipal Committee, RITES, Department of Urban Improvement, Department of Agriculture & Forestry, Traffic Deptt., Government of National Capital Territory of Delhi, Slum Wing/Board, School of Planning & Architecture and Town & Country Planning Organisation. Small scale maps can be prepared with imageries from(i) LANDSAT-5, MSS & TM; (ii) SPOT-IA; (iii) IRS-IA in 30 mt., 10 mt. and 72.5 mt. resolutions respectively. These imageries can be procured from National Remote Sensing Agency, Hyderabad, Medium scale maps are available for Delhi as well as for many cities, but of 10-15 years old. Large scale maps are the most important one but not available in Delhi. Due attention should be paid for their preparation since these are urgently required for all metropolitan cities to prepare different types of maps.

22.2 Proposals given by National Remote Sensing Agency, (NRSA), Hyderabad National Remote Sensing Agency (NRSA), Hyderabad and Indian Institute of Remote Sensing (IIRS), Dehradun sent a detailed proposal of preparation of base maps for National Capital Region, Delhi Metropolitan Area and National Capital Territory of Delhi, in April, 1990 as per outlines given in the following five paragraphs; (i) Satellite remote sensing data and its processing for National Capital Region in a scale of 1:50,000. (ii) Satellite remote sensing data and its processing for Delhi Metropolitan Area in a scale of 1: 20,000. (iii) Aerial photography and photogrammetric mapping of National capital Territory of Delhi in a scale of 1:5000 and 1: 1000. (iv) Storing and processing of data. (v) Setting up of ‘digital photogrammetric system’ and ‘geo-graphical information system’ for Delhi. Outlines of these five proposals in terms of physical and financial dimensions are given as under:

137 R.G. GUPTA -–1995 www.rgplan.org

22.2.1 Remote Sensing Surveys and Final Output for National Capital Region (NCR) The survey will cover an area of 32000 sq. km with images of 10 mt. resolution in a scale of 1:50,000 with the following components expected to be completed in two years. The following figures include expenditure on manpower and equipment, but do not include cost of printing of maps and reports: i.

ii.

Total spot FCC (False Colour Composite) scenes required:

:

Man Months requirements a. Total man months required for interpretation of all the 90 FCC scenes @ one man-month per scene.

b. Total man-months required for cartography work for all the scenes @ two man-months per scene c. Total iii. Man-power requirement (nos.) a. Urban Planners b. Cartographers/Draftsmen: c. Statistician Total iv. Total expenditure for the entire National Capital Region (NCR) in a scale of 1:50,000 at 1990 price level

90

:

:

90

: :

180 270

: : : :

4 8 1 13

:

Rs.4.7 million

22.2.2 Remote Sensing Surveys and Final Output for Delhi Metropolitan Area This survey will cover an area of 3182 sq. km including Delhi, NOIDA controlled area, Gurgaon, Bahadurgarh, Loni, Faridabad, Ballabhgarh, Kundli, Sonepat etc. The scale would be 1:20,000 and the project is expected to be completed in a period of two years. It would have 55 spot FCC scenes with the following output and cost: (i)

(ii)

Man-month requirements: a. Man-months required for interpretation of all scenes @ one man-month per scene b. Man-months required for cartography work for all scenes @ two man-months per scene c. Total Man power requirements, a. Urban Planners b. Cartographers/Draftsmen c. Statistician Total

55 110 165 3 5 1 9

138 R.G. GUPTA -–1995 www.rgplan.org

The total cost of this project at 1990 price level would be Rs. 3.5 million including cost of man power and machines. This does not include cost towards printing of maps and reports. 22.2.3 Large scale mapping of the entire National Capital Territory of Delhi in scales of 1:5000 and 1:1250 or 1:1000 with 70% forward and 30% lateral overlaps. Components of large size mapping have also been given in Map 22.1. The survey would have the following nine activities with cost component as given in Table 22.1. Table 22.1 (i): Components of large size maps along with cost of each component at 1990 price level Sl. No.

1. 2. 3. 4. 5. 6. 7. 8. 9.

Item

Aerial Photography Ground control (Planemetric) Ground control (height) Monumentation of control points on the grid Control expansion by Photogrammetric Photogrammetric map preparation Rectrification & enlargement (optional) Field verification Fair mapping Total

(ii) (iii) (a) (b) (c) (d) (e) (f)

Total cost (Rs. million) 4.265 1.5 10.266 0.16

Cost/hect. (Rs.)

9.046 9.046 4.57 15.061 9.023

45.00 45.00 22.85 75.00 45.00

159.163

794.15

21.0 7.5 51.0 0.8

Time taken to complete the project for mapping of entire Delhi would be approximately 6 years. Final output products would be as under: One set of contact prints on glossy paper in 1:5000 scale List of control data (both height & plan control) List of monumented control data Rectified enlarged aerial photos on 1:1250 or 1:1000 scale Digital base map data on Compatible Computer Tape (CCT) or on Magnetic tape Photogrammetrically plotted maps duly verifed with the ground data (original plus ammonia copies).

22.2.4 Storing and Processing of Data So far the system of storing and processing of data as and when reproduction is required is no easily available, and for this, system has to be evolved. The cost of keeping records and using them for purposes of updating has to be worked out. This matter was discussed with the officers of National Informatic Centre, Planning Commission, Govt. of India, who estimated that the cost of 139 R.G. GUPTA -–1995 www.rgplan.org

this component would be between Rs. 25-30 million for the entire system at 1990 price level. 22.2.5 Setting up of Digital Photogrammetry and GIS For setting up the systems, the following 8 activities are required and would cost a total of Rs. 3 million on 1989 price levels as given in Table 22.2. Table 22.2: Requirements of setting up of digital photogrammetry system and GIS system for Delhi Name of the Activity

(i) (ii) (iii) (iv) (v) (vi) (vii) (viii)

Rs. (million)

Microphotogrammetric system P.C. based image processing system Colour inkjet printer Magnetic tape drive Digitizer Plotter GIS Software Consultancy charge for NRSA expertise TA/DA etc. (adhoc)

0.60 1.00 0.15 0.20 0.30 0.30 0.30 0.15

Total

3.00

22.3 Brief of the Proposals Given by Norwegian Agency for Development Studies (NORAD) About Utility Mapping Norwegian Agency for Development Corporation (NORAD) was requested to conduct and finance a study of ‘Utility Mapping’ system for Delhi. NORAD submitted a report in March, 1990 with recommendations, of which the important ones are given below: 22.3.1 Names of 15 Organisations which are Concerned with the Preparation of Utility Maps (i) (ii) (iii)

(iv) (v) (vi) (vii)

NIC (National Informatic Centre), Planning Commission, Govt. of India. Survey of India, Govt. of India. Delhi Development Authority for (a) Establishment of suitable grid; (b) Large scale mapping; and (c) Interpretation and updating of base maps. Delhi Water Supply & Sewage Disposal Undertaking for water, sewerage and urban drainage. Delhi Electric Supply Undertaking for power. Irrigation & Flood Deptt., Delhi Govt. for planning of flood protections and control works. Mahanagar Telephone Nigam Ltd. for tele-communication. 140 R.G. GUPTA -–1995 www.rgplan.org

(viii) (ix) (x) (xi) (xii) (xiii) (xiv) (xv)

Delhi Fire Service-for fire safety. Slum Wing/Board for development of part of sub-standard areas. Delhi Transport Corporation for planning of new routes. (RITES) for underground railways. And transport networks. General Wing, MCD for development of parts of sub-standard areas. DDA/Govt. of National Capital Territory of Delhi for environmental Planning. Govt. of National Capital Territory of Delhi, for planning of social services and infrastructure. Govt. of National Capital Territory of Delhi-Police Department.

22.3.2 Important Findings The following are the important findings of the proposals given by NORAD: (i)

A national gird should be established in Delhi and large scale base maps should be produced only for ‘urban areas’ of Delhi as well as of extensions to urban areas.

(ii)

The feasibility study for ‘Panning of utility mapping system’ should be carried out by taking one pilot project.

(iii)

At present, there are no proper ground control points for Delhi of acceptable quality for large scale mapping. A grid of sufficient accuracy must be established with an accuracy of +0.5mt. The number of ground control points in new grid should be one in 10 sq. km for existing urban areas and one in 20 sq. km in rural areas and urban extension areas.

(iv)

Digital maps should be used, in spite of their more cost. Due to several benefits, the most important being that there is no limitation of scale of map and sheets can be reproduced in any scales, as and when desired.

(v)

A local organisation with its office in Delhi should be responsible for continuously updating of the maps. The guidelines should be worked out in a way which ensures use both in manual and computerized utility mapping systems. A new organization should be set up with a seed capital of Rs. 50 million in a separate building. Since the maps have to be updated every three years, so this would be a permanent organization.

(vi)

It is envisaged that NORAD support to the project will be required over five years; 2.5 years for a Plot Project and following 2.5 years, with reduced technical assistance support. To the continued utility mapping and institution building in Delhi. The study should be carried out by a joint Indian and Norwegian team. The team would arrange regular training sessions on Utility Mapping System (UMS) for the participating organizations during the study.

(vii)

The expenditure on the project would be borne by India, except the technical assistance from the Norwegian team. Software in the Utility Mapping System and some important equipments which are not 141 R.G. GUPTA -–1995 www.rgplan.org

available in India and that too for Pilot Project would be supplied by Norwegian team. Technical assistance will be for the Pilot Project and for consecutive period of 2.5 years. The total technical assistance may be of 20 million Norwegian Marks.

22.4 Important Surveys for Delhi 22.4.1 Surveys of Delhi Metropolitan Area It is proposed to have surveys in a scale of 1:25000 or 1:20000 of 3182 sq. km including all priority towns in the first ring of National Capital Region. Names of Priority towns in the first ring are-Mohan Nagar, Sahibabad, Ghaziabad, Loni, Noida, Faridabad, Balabhgarh, Bahadurgarh, Gurgaon, Sonepat, etc. with imageries to be procured from National Remote Sensing Agency, Hyderabad. The total cost of the project is Rs. 3.5 million and it would be completed in a period of two years. These would be important base maps to prepare sub-regional plans of National Capital Territory of Delhi and settlements in the first Ring. 22.4.2 Large Scale Mapping for the Entire National Capital Territory of Delhi Aerial photography would cover an area of 2019 sq. mt. in a scale of 1:5000; enlargements after rectifications from ground surveys in a scale of 1:1250 or 1:1000 with 70% forward and 30% lateral overlaps, photography with 30 cm focal length camera. Final output would be as under: (i) (ii) (iii) (iv) (v) (vi) (vii)

One set of contact prints in a scale of 1:5000 on glossy paper. One set of dia-positive on polyster base material in a scale of 1:5000. One set of coloured photos of important areas only in a scale of 1:5000 One set of contact prints of glossy paper in a scale of 1:1250 or 1:1000. One set of coloured photo only of important limited pockets in a scale of 1:1000. Digital base map data in Compatible Computer Tapes (CCT)/Magnetic tapes. Photogrammetrically plotted maps duly verified on the ground. NRSA. Hyderabad has quantified nine activities namely-(i) Aerial photography (ii) Ground Controls (Planemetrics) (iii) Ground Controls (Height) (iv) Monumentation of control points on the grid (v) Control expansion by photogrammetric (vi) Photogrammetric map preparation (vii) Rectification and enlargement (viii) Field verification and (ix) Fair mapping. Out of these activities, it is proposed that (ii), (iii), (iv), (v), (vi) and (ix) can be done by a Development Authority, of course, in consultation with training from Indian Institute of Remote SensingHuman Settlement Analysis Centre, Dehradun and NRSA, Hyderabad.

142 R.G. GUPTA -–1995 www.rgplan.org

22.5 Creation of a Department of ‘Preparation of Base Maps’ for Delhi 22.5.1 Structure of the Department DDA/Govt. of National Capital Territory of Delhi (GNCTD) (Nodal Agency) Advisors

Users Department

National Informatic Centre, National Remote Sensing Agency Hyderabad Indian Institute of Remote Sensing Dehradun Survey of India, Govt. of India, Town & Country Planning Organisation, Ministry of Urban Development.

All the departments of Govt. of National Capital Territory of Delhi Municipal Corporation of Delhi; New Delhi Municipal Committee

22.5.2 Functions (i)

Preparation of base maps in various scales of different parts as well as of entire National Capital Territory of Delhi.

(ii)

Updating of base maps with the help of ‘Small Format Aerial Photography’ (SFAP).

(iii)

Mapping of utilities, water, sewerage, drainage, power, gas, communication traffic and transportation, location of economic activities.

(iv)

Preparation of landuse maps, land ownership maps.

22.5.3 Office Building: 2000 sq. mt. Floor Area

22.5.4 Sources of Funds (i)

Non-recurring expenditure (one-time cost); 50% grant from Central Government and 50% loan from Plan Funds of Govt. of National Capital Territory of Delhi.

(ii)

Recurring expenditure: by user departments all the costs, namely (a) cost of depreciation of machines, equipment and other fixtures; (b) Cost of maintenance and replacement of machines and equipment and their parts; (c) Cost of printing and stationery; (d) Interest on capital expenditure; (e) Cost of ‘Small Format Aerial Photography’ (SFAP) and’ (f) Cost of services, specially electricity.

143 R.G. GUPTA -–1995 www.rgplan.org

22.6 Pilot Project of Preparation of Base Maps of Trans-Yamuna Area along with River Yamuna Bed 22.6.1 Basic Factors (i) Boundary of the Scheme and Dimensions The Complex is bounded by Delhi-UP Border in the north, east ad south and Ring Road/Right Marginal Bund of river Yamuna in the west. Total area of the Complex is 88 sq. km of Trans-Yamuna Area and 100 sq. km of river Yamuna bed. Population of Trans-Yamuna Area was 438,000 in 1971; 964,000 in 1981; 1.93 million in 1990; 2.13 million in 1994 and expected to be 2.7 million in 2001. The area has all types of development starting from shanty clusters, unauthorised colonies, unauthorised regularized colonies, urban villages, rural villages, 43 Cooperative Plotted House Building Societies, 250 Cooperative Group Housing Societies, few residential and industrial colonies developed by DDA, many group housing pockets constructed by DDA. Most of the areas of Trans-Yamuna Area are sub-standard in nature and it is about 80% unplanned and hardly 20% planned one. (ii) Scales Base Maps are required in a scale of 1:10000 of the entire area, 1:5000 of built up area and 1:1000 of the area where projects have to be planned, developed and constructed upon. (iii) Extended boundary to fly for the preparation of aerial photography Total area would be more than 200 sq. km and exact boundary would be earnmarked on a plan in the scale of 1:50,000, after discussions with National Remote Sensing Agency, Hyderabad and Indian Institute of Remote Sensing, Dehradun. 22.6.2 Items of Large Scale Mapping 1. 2. 3. 4. 5. 6. 7. 8. 9.

Aerial Photography by NRSA-Hyderabad. Ground control (Plannemetric) by DDA. Ground control (height) by DDA. Monumentation of control points on the grid by Survey of India and DDA. Control expansion by photogrammetric method, by DDA. Photogrammetric map preparation by NRSA, Hyderabad. Rectification and enlargement (optional) by NRSA, Hyderabad Field verification-NRSA, Hyderabad Fair mapping-NRSA, Hyderabad or DDA.

22.6.3 Final Output of photography and Line Maps are Required in the Shape as Details given under 1. 2. 3. 4.

One set of contact prints on glossy paper in the scale of 1:5000. List of controlled data, both in height and plan. List of monumented control data. Rectified enlarged aerial photo in 1:1250 scale. 144 R.G. GUPTA -–1995 www.rgplan.org

5. 6.

Digital base map data on Compatible Computer Tape (CCT)/Magnetic Tape. Photogrammetrically plotted maps duly verified on the ground (original plus ammonia copies).

22.6.4 Duration of the Project The entire exercise should be completed in a period of one year after the work order awarded for aerial photography. 22.6.5 Updating of Line Maps Planned and unplanned construction in any urban area has become a continuous activity: At all the times some sort of unauthorised construction or squatting by shanties is taking place. To know the position from time to time, it is necessary to update the maps after every two or three years with the help of ‘Small Format Aerial Photography’ (SFAP) and Computer System. 22.6.6 Cost of the Project It is expected that cost of the Pilot Project would be Rs. 20 million.

145 R.G. GUPTA -–1995 www.rgplan.org

MAP 22.1: Components of Large Size Mapping • • • • • • • •

Aerial Photography Ground Control (Planemetric) Monumentation of Control Points on the Gird Extensions of control Point I in Urban Extensions (by photoggrammetric) Photogrammetric Map Preparation with the help of computer) Rectification and Enlargement Field (Ground) Verification (Manually) Fair Mapping (Line Maps) In Particular (Scales 1:5000 and 1:1250)

146 R.G. GUPTA -–1995 www.rgplan.org

23 Urban Land Policy 23.0 23.1 23.2 23.3 23.4 23.5 23.6 23.7 23.8

Background Law of the Land-Modifications in Various Acts Planning and Development of Urban Spaces Dispersal of Land Control of Land Use Recapturing Plus Values of Land Land Management Maintenance Colonies Conversion of Leasehold into Free Hold

23.0 Background There is no dearth of land. Taking an overall average density of 125 persons per hect., the population of the entire world can easily be accommodated in a small country like U.K. or West Germany assuming that the entire area is useable. Out of an area of 3.28 million sq. km of our country, barely 5 percent is under settlements and the rest is under agriculture, forestry, mining, water bodies etc. Land is a natural resource gifted by the nature, as such, it is to be shared by all living creatures. The Government is the only agency which can ensure a balanced developed and distribution of land amongst the people. The Government must be given some type of control over all land available in the country. The land can thus easily be put to the social and economic welfare of the nation through socialization and rational distribution measures. The Government should, therefore, exert control over planning, development, disposal, management and the pricing system of land. There is a large variation in the prices of land. In Delhi; prices of residential plot vary from Rs. 500 - Rs. 2700 per sq. mt. in the public sector to Rs. 3000 – Rs. 8000 per sq. mt. in the private sector. To quote an example, developed land in resettlement colonies in 1990 was allotted on hire purchase basis at the rate of Rs. 500 per sq. mt. Reserved rate for residential EWS and LIG plots was Rs. 825 and Rs. 1075 per sq. mt. for MIG, Rs. 1400 per sq. mt.; for Self Financing Scheme (SFS) Rs. 2700 per sq. mt.; for commercial plots in district centres Rs. 10000 – Rs. 15000 per sq. mt. The rate for parks and playgrounds is Re.1 per annum and for educational institutions the rate varies from Rs. 750 – 1750 per sq. mt. It is a fact that developed land at cheaper and affordable price is required for the extensions, expansions and improvement of existing settlements. This is also required for the preservation, conservation and improvement of environs of historical sites, monuments and other areas of unique and aesthetic social and cultural values; protection and enhancement of environment along river fronts, pilgrimage centres, tourist centres etc. 147 R.G. GUPTA -–1995 www.rgplan.org

In all the towns and cities land should be developed at affordable rates and such land should be made available at the rates acceptable to the society at large, for the benefit of the society and not for the individuals. Developed Land; includes internal and peripheral development, viz. levelling, dressing, laying of internal and peripheral infrastructure, viz. water supply, sewerage, drainage, electricity, gas lines; garbage depts., milk booths, development of parks, playgrounds and open spaces, development of sites for various community facilities, laying of trunk infrastructure viz. water lines, sewer lines, drains, electric lines, telephone lines, gas lines, construction of Master Plan roads, over-bridges, underbridges, flyovers, bus terminals, street furniture; sites for various community facilities of higher order viz.-college, general hospital, research institutions; sources of potable water, construction of treatment plants, systems of sewage disposal, generation of power etc. Development of any land is a time-consuming process. Colonies which were started nearly eight to ten years back are not yet completely developed. Hence development can be said as a continuous process. Development should be seen always be seen always in terms of long term perspective. In order to foster balanced development in a co-ordinated and integrated manner in any urban settlement, formulation of an appropriate Urban Land Development Policy is a must. A proper urban land policy has eight components. Important components of Urban Land Policy have been given in Map 23.1.

23.1 Law of the Land-Modifications in Various Acts (i) Proposed Modifications in Land Acquisition Act, 1894 and also 1985. Following six modifications/changes are suggested: (a)

Whenever there is a case of acquisition of land for trunk services/infrastructure, i.e. water supply, sewerage, drainage, power, telephone lines, major roads, rail lines, flyovers, road over and under-bridges, water treatment plants, sewage disposal plant etc., the following steps should be followed: • •



Section 4, 6 and 17 of Land Acquisition Act should be applicable simultaneously irrespective of whether the area is lying vacant, has built-up structures or fake religious buildings. In such cases, the entire process of survey and planning, as explained in Section 4, 6 and 17 of Land Acquisition Act, taking over possession of the land, alternate allotment of urban spaces and payment of compensation etc. should not take more than six months. Once a plan of trunk infrastructure/important facilities is finalised and approved, these services should be demarcated on the site with stone pillars. Due publicity should be made with the help of location plans, announcements, public notices, radio and TV, so that the public is apprised of the situation and does not squat/encroach on land earnmarked for these purposes. It has been seen that many unauthorised colonies have come up in green areas or in pockest required for trunk infrastructure due to unawareness among the public. 148 R.G. GUPTA -–1995 www.rgplan.org



• •

(b) (c)

(d) (e)

(f)

It is suggested that there should be an active public information campaign in case of acquisition of land for any planned developed of the city. Alternate allotment, either in terms of developed plots or built-up flats, should be made available to the affected families, whose lands are being acquired, within a period of six months from the date of notification of Sections 4, 6 and 17 f the Land Acquisition Act. The amount of compensation to be paid to the party should be adjusted against the price of alternate allotment of plot/built-up tenement to be made. Alternate allotment should be made to the tenants also, subject to other necessary terms and conditions.

Cost of alternate allotment of urban spaces should be charged to the project of laying of trunk infrastructure. There should be a legal provision in the Act regarding allotment of alternate accommodation in all cases of affected parties in land acquisition, so that people are not uprooted and harassed. These allotments should be subject to the condition that he/she or his/her dependents do not have any other property in the National Capital Territory of Delhi, and other required administrative measures, terms and conditions etc. in force at that time. Stay orders should be granted only in genuine cases. It is observed that people encroach upon public land with the help of stay orders. Preference should be given for alternate allotment to affected parties in cases of construction of trunk infrastructure and master plan roads of r/w of 30 mt. and above. Planned development of Delhi should be well-defined in terms of write-ups and maps.

(ii) (a)

Proposed modifications in Slum Clearance and Improvement Scheme. Outlines of important sections of the Slum Areas Improvement and Clearance Act, 1956 are as under: Section 3, deals with the declaration of slum areas. • Sections 4, 5, 6, 7 and 8 explain how a particular area can be improved and developed/redeveloped. • Section 9, 10 and 11 deals with the declaration of a slum area as clearance area and the procedure of passing slum clearance orders in order to get the area cleared and redeveloped. • Section 12 to 18 deals with the acquisition of land/property in slum areas on the basis of five very gross rent or three years net rent of the property in question.

(b)

Suggested modifications in the Scheme of Slum Clearance and Improvement: As per the 1981 census 320,000 families were living in 2170 hects. Of slum designated areas. In the last three decades, no acquisition of land/property has been made under this act, except few pockets were declared as ‘Clearance Areas’ which DDA had not yet succeeded in clearing and 149 R.G. GUPTA -–1995 www.rgplan.org

demolishing structures. The process of acquiring land under this Act is totally impractical and hence needs modifications. After studying the details of improvements carried out their pros. And cons in the slum areas of Delhi, by the Authority during the last three decades, some recommendations / conclusions are arrived at. These recommendations/conclusions should be considered at the time of modifying the Slum Improvements and Clearance Act 1956. Some of the recommendations/conclusions are given under: • Name of the Act should be changed to ‘Improvement and Development of Habitat in Sub Standard Areas’ • The entire area of 2170 hects. Designated slum area under the Slum Areas (Clearance and Improvement Act-1956) should be declared as development area of the Authority under Section 12 (i) of Delhi Development Act. The responsibility of planning, developing, redeveloping, clearing and rebuilding the entire area of 2170 hects., which is bound by Boulevard Road, Roshanara Road, Road No. 40, meter-guage line near Patel Nagar, Ranjit Nagar, Shadipur, Khampur, Pusa Road, Punchkuin Marg, railway line from Tilak Bridge to Minto Bridge, Bahadurshah Zaffar Marg and Mahatma Gandhi Road should be with the Authority, irrespective of the nature of the area, land use and type of project, whether remunerative or non-remunerative. Authority may be Delhi Development Authority or Slum Board or Municipal Corporation of Delhi. The idea is that the entire system of planning, development and construction should be at one point. • All lands acquired for slum schemes should be the property of the Slum Deptt. • Expenditure and receipts should be debited/credited in the account of the scheme. There should be a clearly defined policy that profits from commercial projects would be used to subsidise projects for EWS People of the slum areas. • It is also recommended that whenever any action in slum areas is taken, it should be for the entire system and sub-system. So far, more than 20,000 tenements under slum scheme were constructed without taking care much of other components, i.e. their place of work and enjoyment. The result being that all quarters have not been occupied by the families who were living in slum areas. This is mainly due to the reason that no comprehensive proposals for the entire system and subsystems were worked out at any stage. People are generally reluctant to shift till their place of work and leisure are also made available at the new places. Now there is a strong feeling and decision that shifting of people should be avoided to the extent possible. • Allotment of built-up flats should be on the basis of hire-purchase system and not on rental basis. • Building bye-laws for these areas should be modified completely to be suited to the need of the society and then enforced strictly. • Maintenance of services, viz. water supply, sewerage, drainage, sanitation, electricity, roads, service roads, parks and playgrounds 150 R.G. GUPTA -–1995 www.rgplan.org



(iii)

should always remain with the local authorities i.e., Municipal Corporation of Delhi. All the capital works, namely-(i) Construction of tenements, if any, for the rehabilitation of families to be shifted from slum areas; (ii) Buildings of social infrastructure on Government properties/evacuee properties; (iii) Clearance of slum area, if any, and then rebuilding of the urban spaces; (iv) Improvements in slum areas in terms of physical and social infrastructure; and (v) Development/construction of remunerative projects in slum areas should be with the development authority.

Proposed modifications in the Delhi Development Act, 1957 (a) Section 6 (Objects of the Authority) should be defined and detailed out as under: • Preparation, monitoring, review an implementation, directly and indirectly, of the Master Plan proposals concerning physical, social ecological and economic infrastructure • Enforcement of land use controls as envisaged in the Act • The acquisition and development of land for various activities for the planned development of Delhi • Making developed land available to various agencies in the public, cooperative and private sectors for house building activity • The promotion of a sufficiently dynamic housing programme • Development of residential, indusrial, commercial and ancillary work centres; or any other project necessary for the planned development of Delhi • In exercise of its role as custodian of the Master Plan, DDA has to coordinate the activities of specialised agencies such as DESU – Delhi Electric Supply Undertaking, MCD – Municipal Corporation of Delhi, NDMC – New Delhi Municipal Corporation of Delhi, CPWD – Central Public Works Department, PWD – Public Works Department, DTC – Delhi Transport Corporation, DWS & SDU – Delhi Water Supply & Sewage Disposal Undertaking, DSIDC – Delhi State Industrial Development Corporation, DTTDC – Delhi Tourism and Transport Development Corporation, DLPPC – Delhi Livestock Products Processing Corporation, MRTA - Mass Rapted Transit Authority etc., who are also involved with the planned development of Delhi (b) Section 8 (preparation of Zonal Development Plan) should be modified as most of the zonal plans prepared in Delhi are incomplete, inaccurate and have taken more than 10 to 15 years to complete. This section should be modified to such an extent that a zonal plan has (i) a proper base map (ii) traffic and transportation plan (iii) Land ownership map (iv) plan of physical infrastructure (v) Plan of social infrastructure (vii) Plan of economic infrastructure (viii) financial plan and (ix) a plan superimposing all these eight elements. (c) Section 24 (Budget of the Authority) should be revised completely to get the following inputs: • There should be a perspective plan of short term and long term projection of financial requirements based on physical targets, 151 R.G. GUPTA -–1995 www.rgplan.org

(d)

correlated with land acquisition, planning, development and construction of urban spaces including availability of building materials. • Proper planning and programming of financial resources should be carried out every year before they are included in the budget. • There should be a system of performance budget and annual plan with close coordination between physical and financial achievements/inputs and outputs. Section 37, 38 & 40 (Power of Authority to levy betterment charges, assessment and collection) should be modified as follows:

As per these sections, at present betterment charges can be collected after work is completed in any areas. In Delhi, there are more than 1000 unauthorised and unauthorised regularised colonies spread out in an area of about 5000 hect. with a population of about 1.5 million. Firstly, it is not possible to develop these colonies and in the end collect betterment or development charges. As such, there should be a modification in the Act that development charges can be collected simultaneously with the development works. If the development charges are not paid in time these can be collected as arrears of land revenue. (iv)

Land Acquisition and Development Scheme, 1959 Land Acquisition and Development Scheme was defined at the national level for granting loans to state governments for bulk acquisition and development of land for various purposes. This scheme came into enforcement on October 20, 1959 with the following features: (a) Financial assistance under the scheme is provided to state governments in the form of loans with a rate of interest of 4% per annum, repayable in 10 annual equated instalments, with a moratorium period of five years. (b) The loan can be used for acquisition and development of land for various purposes. (c) While making allotments among those who are eligible for aid under various housing and slum clearance schemes, preference would be given in order of priority noted below: • Slum Clearance Scheme • Subsidised Industrial Housing Scheme • Low Income Group Housing Scheme • Middle Income Group Housing Scheme • Rental Housing Scheme for State Government Employees (d) Plots for intended commercial or commercial-cum-residential purposed shall be sold by public auction or open tender except those which came under the above five categories. Other plots can be disposal of in patterns the state government may think appropriate. (e) The State Government shall, however, ensure that there is no loss to the project and the entire profit gained by the sale of land for commercial purposes and to persons in higher income group would be used for the purpose of reducing the price of land to be utilized for public housing for people falling in the LIG group or below. 152 R.G. GUPTA -–1995 www.rgplan.org

(f)

Other conditions for allotment of land would be as under: • Not more than one plot to an individual • The land would be given on leasehold basis • The building should come up within a reasonable period • Speculation in land should be avoided • Prohibit misuse of land • Prevent transfer or resale of plot/house to persons not eligible for the benefits of the scheme • Discourage transfer or resale of plots/houses

(v) Control of Land Values in Urban Areas of Delhi: Acquisition, Development and Disposal of Land; No. F.37/16/160-Delhi (1) Govt. of India, Ministry of Home Affairs dated 2.5.61 and modifications from time to time. Copy of the basic policy has been given in Appendix 23.1. (a) (b) (c) (d)

(e)

(f)

(g)

Private investment in housing should be facilitated. Setting up of colonies by private developers should be discouraged. No allotment should be made to any institution till it serves the interest of Delhi. All land acquired under the scheme will be stated as ‘nazul land’ and will vest in the President of India and will be disposed off in his name only on leasehold basis to local bodies and private parties including cooperative house building societies, industrialist, individuals, institutions etc. As a general policy disposal of developed land should be made by public auction except in the following cases: • Alternate allotment of land • Shifting of non-conforming industrial • Allotment to low income group people • Allotment to cooperative house building societies. Ground rent should be charged at a nominal rate of Re. 1 per annum per plot for the first five years. Thereafter the annual ground rent shall be payable at 2.5 per cent of the premium originally paid. The rate of ground rent will be subject to revision of every 30 years. The following conditions shall govern the allotment of land whether by auction or otherwise. • One plot for one family in the entire National Capital Territory of Delhi except in case of persons living in a congested locality. • The structure on the allotted land should be completed within two years. • The plot shall not be transferred before 10 years from the date of allotment, and that too, only after payment of 50 percent of the unearned increase of the value of the plot. • The entire responsibility for the acquisition, development and disposal of the land under the scheme should be of the Chief Commissioner, Delhi (now Lt. Governor, Delhi). 153 R.G. GUPTA -–1995 www.rgplan.org

(vi) The Government of India modified the basic V on 18th July, 1967. The scope of the scheme was enlarged and the following activities were added: (a) Flatted factories; (b) Single-storeyed sheds for group industries; (c) Warehouses; (d) Bus terminals; (e) Parking sites for idle trucks; (f) Car parking; (g) Development of district, community, local and convenient shopping centres; (h) Construction of special markets, such as cycle market, vegetable market etc; and (i)Acquisition an development of land in Narela. (vii) The scope of the basic scheme given in Para (V) was further enhanced vide government order of December 18, 1969, to the extent that any other development project which the Lt. Governor, Delhi considers essential for the implementation of the Master Plan of Delhi and the zonal plans, subject to the condition that such projects are self financing, can be undertaken. (viii) The then Ministry of Works & Housing, (now Ministry of Urban Development) further modified the basic scheme given in Para V vide its order of February 5, 1970, to the extent as given under: •

• • • • •



Allotment of residential plots to persons belonging to LIG and MIG category and reservation of plots for Members of Parliament, Councillors of Metropolitan Council/MCD, salaried classes, Scheduled Castes/Tribes etc. Registration of new co-operative house building societies on group housing pattern and not on plotted system. Allotment of land to owners and tenants of properties in areas which have been declared as clearance areas under the Slum Areas Improvement & Clearance Act-1956. Allotment of plots to persons owning houses/plots in congested localities Realisation of premium/price of plots in instalments as per the stage of development The basic scheme was further considered and modified vide order dated 3 May, 1974. In this order, the premium to be charged on a plot earnmarked for college purposes in Dhaula Kuan was considered and it was decided that a rate of Re. 1 per sq. yd. may be charged irrespective of whether the plot forms a part of ‘General Development Scheme’ or is an individual case. Lastly, the Government vide its order dated April 29, 1976 decided to modify the basic scheme for the allotment of land for the construction of 8662 sheds by DSIDC.

(ix)

Jhuggi Jhompri Removal Scheme (shanties removal and resettlement scheme) The scheme was initiated way back in 1958, approved by the Cabinet on 4 January, 1960 and modified by the Cabinet on 12 November, 1962. The scheme has been modified from time to time subsequently, in response to various problems and the demands of time. Later thinking on the scheme has been given in Chapter 29 (Resettlement Colonies-infrastructure Facilities) and Chapter 32 (The Quality of Life). 154 R.G. GUPTA -–1995 www.rgplan.org

The following are the main factors pertaining to modifications and revisions in the scheme: (a) Size of plot: Initially in 1960s, about 5000 plots of 67 sq. mt. and 45,000 of 21 sq. mt. were developed. In the 1970s, another 150,000 plot of 21 sq. mt. were planned and developed and in 1980s, the size of plots was further reduced to 18 sq. mt., 15 sq. mt. 12.5 sq. mt. and 10 sq. mt. A study is required to determine the ideal size of plot with respect to the magnitude of the squatters problems, the number of squatters and their affordability. (b) Up to the 1970s and early 1980s, physical infrastructure including hand pumps, water taps, latrine blocks and street lights were provided on a community basis. Individual water supply and sewer and electric connections were not provided. In resettlement colonies which were developed up to 1980s, the Municipal Corporation of Delhi is laying physical infrastructure on individual basis, with cost per plot of these additional facilities Rs. 5000. The current thinking is for a provision of physical infrastructure on ‘Group Basis’ i.e. one W.C. for three families, one bathroom for six families, one water tap for six families and so on. This has been proposed and adopted in Delhi based on studies conducted in Delhi, as well as in Maharashtra. Based on this concept, details have been given in Chapter 32 (The Quality of Life). (c) Ultimately, all these colonies have to be linked with piped water, pipe sewerage system, covered storm water drains and individual electric connections. A decision is required on norms on which water supply per capita should be provided. The standard of 50 gallons per day per capita, as in general colonies can not be adopted here. A norm of 20 gallons per day per capita for water and 16 gallons per day per capita for sewage disposal may be adequate. (d) Up to the 1980s, the minimum road width in resettlement colonies was 5 mt. and this width was proved adequate. These roads were provided to allow access to plots of 21 sq. mt. size arranged back to back in rows. Now there is a strong feeling that plot should be provided on group bass by grouping 6, 7 or 8 plots around a common private courtyard which can be @ 7-8 sq. mt. each to be used by all the families. This implies a system of providing approach to individual units through clustered common courtyard, rather than through access roads. (e) The cost of development of plots is increasing day by day. The cost of development per plot including cost of land was Rs. 800 per sq. mt. in early 1960’s when the scheme was initiated. In increased to Rs. 1250 in 1972 and was fixed at Rs. 1860 on 5 September, 1980 as per an order by Govt. of India, Ministry of Urban Development. The present cost of development of a plot of 18 sq. mt., including cost of land and without any subsidy in physical infrastructure at peripheral and internal level would be more than Rs. 45,000. The economics of this has been given separately in Chapter 28 (Environmental Planning Norms). 155 R.G. GUPTA -–1995 www.rgplan.org

(f)

(g)

(h)

(i)

The maintenance of services in these colonies is a gigantic problem. Approximately 1.2 million people i.e. 13% of the population of Delhi lives in these colonies without paying a single penny as property tax. The result is that it needs an investment of considerable amount of public funds for the maintenance of services in these colonies without any return from the beneficiaries. For this some workable solution should be evolved. Details are given in Chapter 49 (Joint Venture and Private Sector: Development and Construction of Urban Spaces). All the land acquired for the scheme, whether used or not, should be the property of the development authority. Expenditure and receipts for the development and construction of urban spaces should be debited and credited to the account of the scheme. There should be a clearly stated policy that profits from commercial development as part of the Scheme would be credited to the account of the scheme and surpluses would be used as subsidies for the plots for EWS and construction of social infrastructure. A material bank for the supply of cheap and good building materials should be created in all major colonies and supply to needy people at no profit no loss. DDA should act as a co-ordinator for all authorities responsible for the maintenance of the services, including plying of buses, supply of milk and other services such as telephone booths etc.

(x) Policy on converting of licence fee system to hire purchase system in resettlement colonies, which have more than 240,000 plots. Since the 1980s thought is being given to the conversion of licence fee system to hire purchase system and decisions were taken by the Govt. of India vide their letter no. 14014/4(203)73/DD IIB-Vol.II Dated 4/5 September., 1980 and letter No. K/19011/2/78/DD IIB(Vol.II) dated 18th December, 1982, but so far, implementation has not been carried out. At present more than 240,000 families are living in various resettlement colonies, mostly in structure on 21 sq. m. and some on 67 sq. m. plots. Of these 50-60% are original allottees, 35 to 40% unauthorised occupants and the balance are trespassers. The premium to be charged from these three categories should be different as per their status and the method of getting plots from DDA or otherwise. The amount chargeable from these three categories should be as under: (a) From original allottees: As per the order of Govt. of India dated 15 March, 1977 an amount of Rs. 1860 should have been charged. On this, an additional amount of Rs. 4470 is being spent on providing additional facilities (individual water, sewer and power). Therefore, the total cost per plot is Rs. 1860 + Rs. 4470 = Rs. 6330. It was proposed to charge only 2/3rd of this cost i.e. Rs. 6330 x 66.7% = Rs. 4420 plot. The approved policy is to charge interest @ 5% per annum on Rs. 1250 and ground rent @ 2.5% on the premium of Rs. 1250 for 10 years. This works out to Rs. 940. In addition to this Rs. 300 per plot are deficiency charges. 156 R.G. GUPTA -–1995 www.rgplan.org

• •

Total amount comes to Rs. 4220 + Rs. 940 + Rs. 300 = Rs. 5460 or say Rs. 5500 It is stated that licence fee paid up to 15 March, 1977 would be adjusted in the premium and to this extent, a rebate will be given. It is also proposed to give a further rebate of Rs. 500 per plot if lumpsum payment is made. In brief, the system of payment for original allottees would be as under:If payment is made in lumpsum, then Rs. 5500 per plot (with a rebate of Rs. 500 per plot). Those who do not pay in lumpsum may be given the option of paying in equated quarterly instalments with different rates of interest based on period opted for payment as under: Period of Instalment 0-5 years 6-10 years 11-15 years

Rate of Interest 5% 7% 9%

Mode of payment Quarterly Quarterly Quarterly

An incentive for low interest has been allowed in accordance with the period of payment in order to boost the recovery within a short span. (b)

For unauthorised occupants, the Government of India decided to charge an amount of Rs. 9000 per plot from unauthorised occupants. The revised amount for this category would be as under; • If the payment is made in lumpsum then Rs. 9000 per plot (with rebate of Rs. 500, if paid lumpsum). • If the payment is made in three annual instalment, then Rs. 10000 with a break-up of Rs. 3300 per annum for the first two instalments and Rs. 3400 for the third instalment. If the payment is made in five instalments then payment would be made of Rs. 11000 with a break-up of Rs. 2200 per annual instalment to make a total amount of Rs. 11,000. After decisions regarding grant of lease hold rights and its terms are announced. The beneficiaries should be allowed to apply for the same within a prescribed period. All such allottees and unauthorised occupants who do not apply for lease hold rights in time shall be charged licence fee @ Rs. 150 per month and those who do not pay prescribed instalments in time shall be charged interest for belated payment at the rate prescribed by DDA. (c) For trespassers: It is proposed to charge market rate which vary from colony to colony.

23.2 Planning and Development of Urban Spaces (This is a large subject and has not been dealt herewith, but in other chapters.)

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23.3 Dispersal of Land A sound Urban Land Policy should have proper dispersal policy of land by the public authority to government departments, cooperative and private sector on some scientific basis with rules and regulations. Land should be dispersed only after it is fully developed and if that is not possible then at least semi-developed land should be dispersed except in specific cases of bulk allotment to Government bodies like Public Works Department (PWD), Life Insurance Corporation (LIC) or State Housing Boards. Even in such cases, it should be ensured that development conforms to the prescribed norms, zoning regulations, standard, duration and trunk infrastructure would be laid by the government body in time. 23.3.1 Calculation of Price of a Developed Land It should be done after taking the following aspects into consideration: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii)

Cost of acquisition of land, cost of rehabilitation of affected parties and alternate allotment, if any Cost of internal infrastructure Cost of internal roads Cost of development of parks, playgrounds and open spaces and sites for various public facilities at neightbourhood level 25% of the cost of trunk infrastructure 25% of the cost of major roads except National Highways, and State Highways 20% of the cost of construction of public and semi-public buildings 20% of the cost of beautification of the zone in which the plot in question is situated.

23.3.2 Rational Distribution of Price of Land for Different Uses An example has been quoted here. Assuming that cost of land on the basis of the formula stated in Section 23.3.1 is X, then percentage of cost of land for different uses can be as under. However, the value X (developed land) would vary from location to location, depending upon the status of the town, accessibility etc • • • • • • • • • •

For EWS, 50% of X For LIG, 75% of X For MIG X For HIG, 2X For district parks, playgrounds and open spaces, 5% of X Sites for educational and health facilities, 10% of X Sites for commercial use, 10 times of X For shifting of non-conforming industrial units, 75% of X For new industries, 4X For informal sector (commercial and industrial use) = X 158 R.G. GUPTA -–1995 www.rgplan.org

23.3.3 A Case Study on the Economics of a Neighbourhood To work out the economics of a neightbourhood of 15,000 population, the various activities should be divided into the following three heads: (i) Activities pertaining to ‘subsidised sector’ (ii) Activities pertaining to ‘no profit no loss sector’ (iii) Activities pertaining to ‘profitable sector’. The entire system should be worked out in such a way that the Government finances are not unduly strained. A neighbourhood having 15,000 population with all the essential physical and social infrastructure, roads and buildings for community facilities and houses for different income groups would cost Rs. 298.2 million and can be divided into the following three parts: (Calculations are based on old rates ). (i) Rs. 148.59 million in subsidised sector; for EWS, L.I.G., social infrastructure. (ii) Rs. 63.30 million in no profit no loss sector; for M.I.G. and informal sector. (iii) Rs. 78.26 million in profitable sector; for H.I.G., Commercial sector and industrial sector. The final financial position would be as under: Amount (Rs. Million) • Loss from subsidised sector 28.2 • Profit from profitable sector 22.5 • Income from ground rent per year 1.5 Part of the loss can be recovered by auctioning some of the residential plots for high income group. Details of this entire exercise has been given in the book of ‘Planning and Development of Towns’ written by the author and published by Oxford & IBH Co-1983.

23.4 Control of Landuse The control of landuse can be exercised through: (i) Enforcement of development act, say Delhi Development Act-1957 (ii) Zoning regulation and land use planning (iii) Direct intervention, i.e. by creating land banks, development of land, and its disposal/dispersal (iv) Legal Controls- e.g. compulsory registration, changes in administrative boundaries, development and building permits (v) Fiscal controls e.g. property taxes, tax penalties, and tax incentives.

23.5 Recapturing Plus Values of Land The unearned values, resulting from change in use of land, change in ownership of land or change in intensity must be subject o partly recapture by public bodies. This can be done in the following ways:

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(i)

(ii)

(iii) (iv)

Levy of appropriate taxes, e.g. capital gains tax, land tax, betterment charges, development charges and particularly tax on unused or under utilized land. Periodic and frequent assessment of land values in and around cities and determination of the rise in such values after every five years, and then collection of a part of this increased value as incremental land tax after every five years. Instituting development fee, permit fee or building fee on all development. Leasing out the land in such a way that part of the future incremental value which is not due to the efforts of the users, is kept by the community, e.g. a public authority, at the time of transfer of land or change of use or change in intensity.

23.6 Land Management (i)

(ii)

(iii)

(iv) (v)

(vi) (a)

The Government or the Development Authority should have the power to take over the land for the implementation of the Master Plan and also to receive part of the unearned income. The land should be allotted on perpetual lease, but the term of lease should provide for revision of amount of ground rent at periodic intervals which should be long enough to enable the lessee to make proper use of the land so allotted. A period of 30 to 40 years is appropriate for this. No sale or transfer of the lease hold right should be permitted during the first ten years, so that land is not taken by those who do not require it for immediate use. After ten years, sales and transfers may be permitted on the condition that a substantial part of the unearned income is deposited to the government or to the Development Authority, so that in can be used for the purpose of development or any other similar activity. Resumption of land should be provided in case of misuse of land or breach of any of the terms of lease conditions. Calculation of ground rent: In Delhi the rate of ground rent is 2.5% of the premium. This is now being considered excessive and unreasonable. Three should be an upper limit on the ground rent also, otherwise a residential plot of land of 200 sq. mt. sold at a rate of Rs. 5000 per sq. mt. would carry a ground rent at the rate of Rs. 125 per sq. mt. per annum, which seems to be on the higher side. The upper limit can be 1% of the actual price of land at the time the plot was auctioned/disposed off. Calculation of reserve price at the time of auction: This should be based on the following factors: Actual cost of the plot as defined in this chapter; (b) Prescribed use of the land; (c) FAR; (d) Relative importance of the locality/town or status of the area; (e) Any special site advantage e.g. close to a landscape feature, water course, lake, etc, and (f) Cost of management of disposal of the system. 160 R.G. GUPTA -–1995 www.rgplan.org

23.7 Maintenance of Colonies The problems of maintenance of land begins when a colony is developing and being inhabited. The system of maintenance of a colony depends on the municipality, its structure and the resources available with them. The maintenance of a colony includes maintenance of parks, playgrounds, open spaces, scavenging of roads/service roads, drains, collection and disposal of garbage, maintaining continuous supply of water, power and disposal of sewage etc. To give an idea of the cost of maintenance, DDA, in 1985, incurred a cost of Rs. 250 million per annum or Rs. 100 per plot per month for the maintenance of resettlement colonies. Maintenance of a colony, irrespective of land use, size and status, should remain with Municipal Corporation of Delhi. To bear the cost of maintenance, municipalities are empowered to collected property tax, fire tax and general taxes. Rate of taxes for different uses is different. Since small municipalities have meager resources they are not capable of spending the money for the maintenance of different types of services under their jurisdiction. In such cases the Govt. has to help in terms of provisions of funds.

23.8 Conversion of Leasehold into Freehold The Scheme of Conversion from Leasehold System of land into Freehold was decided by Delhi Development Authority in pursuance of orders issued by the Government of India, to convert residential flats as well as residential built up plots of size not exceeding 500 sq. mt. in Delhi from leasehold into freehold on payment of conversion charges. 23.8.1 Salient Features of the Scheme (i) (a)

The Scheme covers the following points: Built up plots of 500 sq. mt. and below where the lease/sub-leases has been granted on behalf of the President of India/Delhi Development Authority/Slum & JJ Wing for residential purposes; (b) Janata, LIG, MIG, HIG and SFS flats allotted by the Delhi Development Authority and the tenements allotted by its Slum & JJ Wing (hereinafter referred as ‘Slum-JJ. Tenemens’) on leasehold basis; and (c) Flats constructed by Co-operative Group Housing Societies on land leased by the Delhi Development Authority. The scheme does not cover fixed term leases where premium has not been charged. (ii) The one time charges payable for conversion from leasehold to free hold are set out in Appendix 23.2. These charges may be paid in lumpsum or in equated annual instalments spread over a period not exceeding five years. When the payment is made in instalments interest calculated @ 12% per annum shall be payable. The conversion shall be allowed only after all the instalments have been duly paid. No extension of time for payment of any instalments shall be granted 161 R.G. GUPTA -–1995 www.rgplan.org

(iii)

(iv) (v)

under any circumstances. The liability to pay ground rent shall continue to accrue till the last instalment is paid. Conversion would be allowed only when the residential building on the plot has been constructed and completion certificate/‘D’ form for the building has been obtained. In the case of land allotted to Co-operative group housing societies, conversion for individual flats would be permitted after completion certificate/‘D’ form has been obtained by the society and possession of flats given to the members. The application for conversion shall not be entertained unless accompanied by prescribed documents. In respect of the leases of residential premises where a portion is being used for purposes other than residential to the extent given in Table 23.1 and as per the relevant provision of Master Plan 2001, conversion of the entire leased out premises into freehold will be allowed on payment of additional conversion charges as laid down in Appendix 23.3 for the covered area.

Table 23.1 : Conversion of leasehold into freehold, where part of the property is used for other purposes than residential Category of other than residential use Professional Activity (i.e. as doctors, architects, engineers lawyers, chartered accountants, advocates, consultants, journalists artists, designers/consultants) Specified household industries (Appendix 35.5)

Max. extent of other than res. use.

Other condition

25% or 50 sq. mt. of covered area, whichever is less.

Occupation of the plot/flat by the professionals themselves.

25% or 30 sq. mt. of covered area whichever is less.

(a) Only on ground floor of built up plots. (b) to be run by the occupants themselves.

NB: Conversions to freehold in respect of any property shall be without prejudice to the right of DDA/local authority to take action in regard to the misuse with reference to Master Plan, Zonal Regulation and Building Bye-Laws. (vi)

(vii)

The arrears of ground rent along with interest @ 10% per annum wherever is applicable would have to be paid by the applicant before conversion can be permitted. In cases where revision of ground rent has become due, the revised amount of ground rent will be notified to the lessee for depositing the amount before the execution of the conveyance deed. The conversion shall be applicable only for properties which are on land for which the land use prescribed in the lease deed/sub-lease deed/allotment letter is residential. 162 R.G. GUPTA -–1995 www.rgplan.org

(viii)

In case of mortgaged properties, conversion would be allowed only on submission of ‘No Objection Certificate (s)’ from the mortgagee. If the property has been mortgaged more than once, ‘No Objection Certificate’ from all the mortgagees are required to be submitted. In case of flats allotted by a Co-operative. Group Housing Society, it would be essential to produce ‘No Objection Certificates’ from the institution with which the property has been mortgaged by the society. (ix) In cases where lease deeds/conveyance deeds have not been signed, conversion will be allowed provided that the non-execution of the lease deed has been on account of administrative reasons and not because of certain defaults on the part of the allottees. However in such cases the stamp duty would be payable on the amount of conversion charges including additional conversion charges and the surcharge wherever applicable as well as the price/premium of the property. (x) In case of any legal dispute relating to title of the property, conversion shall not be allowed until the legal dispute is settled. (xi) In case of re-entered properties conversion would be allowed only when re-entry notice has been withdrawn and the lease/sublease/allotment restored. (xii) In case of any dispute between the original lessee/sub-lessee/allottee and power of Attorney holder, application for grant of freehold rights would be entertained only after the dispute is settled. (xiii) In case, where applications for mutation or substitution are pending with the lessor, conversion would be allowed only after the necessary mutation/substitution has been carried out. (xiv) The conversion shall also be allowed in the cases where lessee/sublessee/allottee has parted with the possession of the property, provided that: (a) Application for conversion is made by a person holding power of attorney from lessee/sub-lessee/allottee to alienate (sell/transfer) the property. (b) Proof is given of possession of the property in favour of the person in whose name conversion is being sought. (c) Where there are successive power of attorneys, conversion will be allowed after verifying the factum of possession provided that the linkage of original lessee/sub-lessee allottee with the last power of attorney is established and attested copies of power of attorneys are submitted. In such cases, a surcharges of 33-1/3% on the conversion fee would be payable over and above the normal conversion charges applicable for a regular lessee (no unearned increase will be recoverable.) (xv) In case of the DDA residential flats and the Slum/JJ tenements allotted on hire-purchase bass, conversion shall be allowed only after all the instalments have been paid with interest, if any. (xvi) The allottees of flats and built up plots measuring upto 150 sq. metres shall apply for conversion whereas in the case of plots sizes exceeding 150 sq. meters, conversion is optional. However, for any future sale of 163 R.G. GUPTA -–1995 www.rgplan.org

a built up plot above 150 sq. mt. and up to 500 sq. mt, allottee shall first apply for conversion. (xvii) The land rates for different areas have been given in Appendix 23.4. The localities for which land rates have not been given in Appendix 23.4, land rates of the adjoining/comparable locality would be applicable. (a) However, in the case of Co-operative house building societies, the specific land rates of the localities would be applicable. (b) In respect of DDA flats, the conversion charges mentioned in Appendix 23.2 part (B) would be applicable. For the purpose of ascertaining the zone of a particular DDA housing estate, first the locality in which that particular estate is situated may be determined, then the zone of the locality can be determined by making a reference to Appendix 23.4. (c) For flats constructed by group housing societies on land allotted by DDA, the conversion rates would be as given in Part (C) of Appendix 23.2. For Co-operative group housing flats up to 125 sq. mt plinth area, the conversion charges are based on zonewise flat rates. The zone of group housing society flats can be determined in the manner as mentioned for DDA flats above. (d) For Co-operative group housing flats of plinth area above 125 sq. mt. conversion charges would be based on the formula for built up plots where the plot area would be deemed to be 1.2 x plinth area of the flat. The land rates applicable can be ascertained from Appendix 23.4. (xvii) The requisite conversion charges, additional conversion charge and surcharge as applicable along with processing fee of Rs. 200 are required to be deposited at the time of submission of application form. (xix) Mode of remittance shall be preferably by cheque (subject to realization), pay order, bank draft payable at Delhi. For amounts less than Rs. 20,000, cash will also be accepted. The amount of remittance has to be rounded off to the nearest rupee. The payment is to be made through the prescribed challan form which is a part of application and is in quadruplicate. After depositing the application form and the conversion charges, applicants must ensure to obtain an acknowledgement from the bank together with a copy of the challan to serve as proof of payment for their future reference. The conversion charges, additional conversion fee and surcharge wherever applicable can be deposited either in lumpsum or in not more than five equated annual instalments.

164 R.G. GUPTA -–1995 www.rgplan.org

Appendix 23.1 Basic policy of large scale acquisition, development and disposal of land (Control on land values in the Urban Areas of Delhi Acquisition, Development and Disposal of Land in-1961) The Government of India have considered the proposals regarding acquisition, development and disposal of land. The following decisions have been taken by the Government of India: (i) Private investment in housing in Delhi should be facilitated. Setting up of colonies which could be located elsewhere should be discouraged. (ii) No institution should be given allotment of Government land in Delhi unless it subserves directly the interest of the population of Delhi or it is definite that the nature of work to be carried out is such that it cannot with equal efficiency be carried out elsewhere than in Delhi. (iii) The size of residential plots to be leased out to individuals should not accommodation is constructed by Government. In the case of Cooperative House Building Societies the ceiling may be extended to 1,200 sq. yards, except in the case of such Cooperative Societies as had either acquired land for development under their own arrangement and had been dispossessed hat land in the acquisition proceedings by Government in 1957 or had deposited money with Govt. before 31 December, 1959, for the acquisition of land for housing purposes or had themselves bought land (otherwise than through acquisition proceedings) prior to 13 November, 1959, where the ceiling may be relaxed up to 2,000 sq. yards. Special care should be taken to see that no land wsa allotted to a body which was not a genuine cooperative society. Care should also be taken to ensure that the total quantity of land allotted to a cooperative society does not exceed its real needs for residential accommodation only of its members and that the Cooperative Societies which may be permitted to have a ceiling of 2,000 sq. yds. On individual plots are not allowed to apply for allotment of additional and marely on the ground that larger plots are required for some of their members. 2. Subject to the above mentioned general conditions, the scheme detailed below for the acquisition, development and disposal of land has been approved by the Government of India: (1) Above 8,000 acres of land should be acquired, in the first instance, under the provisions of Land Acquisition Act, 1894. The land so acquired will be developed by the following authorities: (i) The Central Public works Department for housing of Government employees 1200 acres (ii) The Delhi Development Authority for provision of plots for(a) Private housing including plots for individuals whose land has been acquired under this scheme (b) Industries and manufacturers (c) Shopping centres and business premises (d) Public and private institutions and 165 R.G. GUPTA -–1995 www.rgplan.org

(iii)

(iv)

(e) Public utilities and community facilities. 4,000 acres The Delhi Municipal Corporation for:-, (a) Slum clearance projects and jhuggies and jhoppries scheme = 950 acres and (b) Industrial use for the relocation of industries to be shifted from city area = 1000 acres 1,950 acres Cooperative Societies for house building and industrial Co-operatives 850 acres Total

8,000 acres

The Delhi Municipal Corporation is being requested separately to take urgent steps to provide trunk municipal services in the area to be developed under the scheme. (2) The responsibility for the development and disposal of land allotted to the Central Public Works Deptt. Will be that of the Ministry of Works, Housing & Supply. (3) The acquisition and development of land should generally follow the time schedule and targets indicated in Annexure-I. The Central Public Works Department will provide adequate engineering and other necessary staff to work for the Delhi Development Authority, according to the existing procedure. (4) Normally, developed land should be provided for (a) Public and private institutions and for public utilities and community facilities like open spaces, parks, playgrounds etc. (b) Industrial and commercial use; and (c) Housing plots for individuals including those whose land has been acquired by Govt. under this scheme. However, in the case of house-building cooperative societies and cooperative societies of industrialists and manufacturers undeveloped a land may be allotted if such Societies need land for bona fide purposes and have the necessary resources and organization to develop such land. In all cases where undeveloped land is allotted, it should be stipulated the development should be completed within a period of three years, failing which land should be resumed and the premium originally paid refunded to the Society concerned, after deducting 10% thereof as penalty for not carrying out the development within the stipulated period. (5) Out of 8,000 acres of land proposed to be developed, in the first instance, about 2,500 acres of land, which had already been declared as ‘development area’ should be acquired expeditiously and placed at the disposal of the Delhi Development Authority for development and disposal under this scheme. Proposals for declaring more areas as ‘development areas’ may, in due course, be submitted to Government in consultation with the Delhi Municipal Corporation. (6) All land acquired under the scheme will be nazul land and will vest in the President and will be given out in his name only on leasehold basis to local bodies and private parties, including cooperative societies, industrialists, individuals, institutions etc. 166 R.G. GUPTA -–1995 www.rgplan.org

(7) An additional charge, over and above the cost of acquisition and development, which should be merged in the price of land, should be charged at the following rates:

Developed residential plot of: the first 200 sq. yds. or part thereof the next 200 sq. yds. or part thereof the next 200 sq. yds. or part thereof the next 200 sq. yds. or part thereof the next 200 sq. yds. or part thereof Thereafter at sq. yds. or part thereof

Rs. 3/- per sq. yd. Rs. 4/- per sq. yd. Rs. 5/- per sq. yd. Rs. 6/- per sq. yd. Rs. 7/- per sq. yd. Rs. 8/- per sq. yd.

(8) As a general policy, disposal of developed land should be made by auction and the premium should be determined by the higher bid, except in the following cases, where land may be allotted at pre-determined rates, namely, the cost of acquisition and development plus the additional charge mentioned in sub-paragraph (7) above: (i) to individuals whose land has been acquired as a result of the Chief Commissioner’s notification dated 7 March, 1957, 3 September, 1957, 18 November, 1959, 10 November, 1960, or other such subsequent notification, provided that this concession will not be available in the case of individuals affected by the notification dated 7 March, 1959, and 3 September, 1957, if the acquisition proceedings have been completed and payment made or deposited in court by 1 January 1961. In these cases (a) if a residential plots is to be allotted the size of such plot, subject to the ceilings prescribed, may be determined by the Chief Commissioner, taking into consideration the area and the value of the land acquired from the individual and the location and value of the plot to be allotted. and (b) If an industrial plot is to be allotted; its size may be determined with reference to the requirement of the industry to be set up provided that the setting up of such an industry is in accordance with the Master Plan and the industrialistconcerned has the capacity to establish and run such industry and provided further that the extent of land allotted at predetermined rates should not exceed the area required from the industrialist concerned. In making such allotments for industries, the Chief Commissioner will be advised by an Advisory Committee to be nominated by him. (ii) to industrialist who are being asked to remove their factories from their present locations. Such allotments will be subject to the condition that the location of the industry concerned within the urban area is in accordance with the Master Plan. The Advisory Committee referred to in the previous sub-paragraph should be consulted in making such allotments. (iii) To individuals in the low-income group. These allotments will be made by drawing of lots under the supervisions of an Advisory committee to be nominated by the Chief Commissioner. A suitable percentage of the area developed for private housing by the Delhi Development Authority may be reserved for this purpose. (iv) To cooperative house building societies and cooperative societies of industrialists and manufacturers. 167 R.G. GUPTA -–1995 www.rgplan.org

(9) Ground rent should be charged at the nominal rate of Rs. 1 per annum per plot for the first five years in the case of such allotments, whether by auction or at pre-determined rates. Thereafter the annual ground rent shall be payable at 2.5% of the premium originally paid. The rate of ground rent will be subject to revision after every 30 years. (10) The following conditions shall govern the allotment of land whether by auction or otherwise to individuals (including those whose land has been acquired): (a) No plot should be allotted to any person, who or whose wife/husband or any of his/her dependent relations including children owns a house or residential plot of land in Delhi, New Delhi or Cantonment. The question of making an exception in the case of persons living in a congested locality or whose family has outgrown should be considered after some experience has been gained of the working of the scheme. (b)

The allottee of a plot should be required to construct the house in accordance with the sanctioned plans within two years of the date of allotment, failing which the land should be liable to be resumed.

(c)

The allottee of a plot shall not sell or transfer his rights in the plot or part thereof for a period of 10 years from the date of allotment except with the previous approval of the Chief Commissioner which will be given only in exceptional circumstances. Thereafter, the permission to sell will be given by the Chief Commissioner in both the case, 50% of the unearned increase in the value of the plot will be paid to Government before the transfer is permitted.

(d)

Lease deeds may be simplified and many contain the following conditions: (i) due observance of municipal bye-laws; (ii) use of the land for the purpose for which it is allotted; (iii) Construction within the stipulated time; (iv) requiring permission before transferring any interest in the land; (v) Sharing with the Government fifty per cent of unearned increase on transfer of land; (vi) obligation to pay ground rent regularly; and (vii) re-entry and forfeiture of premium in part or in full if any of the above conditions is not fulfilled. (11) It has been decided that, in the case of co-operative house building societies listed in Annexure II, the following concessions will be given: (a) The additional charge over and above he cost of acquisition should be recovered at half the rates mentioned in sub-paragraph (7). (b) The ground rent should be recovered at Re. 1 per annum per plot for a period of 10 years and thereafter at the rate of 2.5% of the premium originally paid. The ground rent will be subject to revision after every 30 years. In view of the concessions refereed to above, only undeveloped land should be allotted to these cooperative house building societies, subject to the conditions prescribed in sub-paragraph (4) Where, however, the Cooperative House Building Societies are not in a position to develop the land, developed land will be allotted to the Society as mentioned in sub-paragraph (8). 168 R.G. GUPTA -–1995 www.rgplan.org

In the case of other cooperative house building societies, whose requests for acquisition of land had been received prior to November 13, 1959, including those for which a preliminary notification under section 4 of the Land Acquisition Act, 1894 has been issued, land will be allotted as mentioned in sub-paragraph (8). The following other conditions, in addition to the conditions mentioned in subparagraph (10), should be applicable to cooperative house building societies: (i) The Society will be required to offer to every persons who owned land on the date of the initial notification in the area proposed to be acquired, membership of the Society and to allot him land on the same terms and conditions as in the case of the original members of the Society. (ii) No land allotted or sold to a member of a Cooperative Society should be sold by him any form, ‘benami’ or otherwise, to a person who is not a member of that Society. (iii) No member of any cooperative house building society shall have the right to transfer or sell his plot to any other member of the society except with the permission of and in accordance with the rules that may be framed by Govt. in this behalf. (12) The allotment of land to and the rates of premia and ground rent recoverable from: (i) Schools, hospitals, social, cultural and other Charitable institutions; (ii) religious, political or semi-political organizations; and (iii) Local bodies for remunerative, semi-remunerative and un-remunerative purposes will continue to be governed by the existing order of the Government of India. (13) In order that private investment in housing in Delhi is encouraged and to provide houses for those who prefer to live in rental accommodation, certain number of residential plots should be leased out regularly by unrestricted public auction, i.e. the condition that one should no own any other plot or house in Delhi, New Delhi or the Cantonment being waived in such cases after providing for the requirements referred to in the previous sub-paragraphs. The auction price in such cases will be the premium and ground rent shall be charged at 2.5% of such price from the date of allotment of the plot subject to revision after every 30 years. Other conditions of allotment mentioned in sub-paragraph (10) (b) (c) & (d) should apply. (14) It has been decided that the entire responsibility for the acquisition, development and disposal of land under the scheme should be that of the Chief Commissioner, Delhi. 3. It is understood that steps have been taken to acquire about 300 acres of land and to make available about 2,000 plots for disposal by auction by October, 1961. Necessary action should be taken expeditiously in this regard. 4. In demarcating areas for acquisition, care should be taken to demarcate such areas where water supply and power could be made available.

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Appendix No. 23.2 Statement showing one-time conversion charges for various size of plots/categories of flats/tenements allotted by Delhi Development Authority/Slum Wing (DDA) and flats constructed by Group Housing Societies on land leased by Delhi Development Authority. (A) For Plots Plot area Metres

in

Sq. Conversion fee to be Formula for calculating calculated on the following conversion fee basis

Upto 50 NIL Above 50 and up to 7.5% of notified land rate per 150 sq. mtrs. For area above 50 sq. mtrs. .075xRx (P-50) Above 150 and up to Conversion charges applicable 250 to 150 sq. mtr. plus 10% of notified land rate per sq. mtr. for area above 150 sq. mr. Above 250 and up o Conversion charges applicable 350 to 250 sq. mtr. plus 15% of notified land rate per sq. mtr for area above 250 sq. mtrs. Above 350 and up to Conversion charges applicable 500 for 350 sq. mtrs. Plus 20% of notified land rate per sq. mtrs. for area above 350 sq. mtrs.

NIL

(7.5 x R) plus [0.1xR (P150)]

(17.5xR) Plus [0.15xRx (P250)]

(32.5xR) Plus [0.2xRx (P350)]

P = Plot area in Sq. Mtr. R = Land rates for residential purposes in rupees per Sq. Mtr. as notified in Appendix 23.4 for period up to 31.3.1993. For the period beyond 31.3.1993 the notified land rates applicable for calculating the conversion charges would be those prevailing on the date of conversion.

(B) For Flats/tenements allotted by Delhi Development Authority and its slum wing on leasehold basis: Category of East Zone flats/tenements

North/West Zone

South Zone

Central Zone

Janta LIG MIS/SFS (i) Type-II SFS (II)/HIG/Type-IIA/Type-II-B SFS (III)

NIL 3,000 4,250

NIL 9,000 12,750

NIL 12,000 17,000

NIL 15,000 21,250

6,250

18,750

25,000

31,250

7,500

22,500

30,000

37,500

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(C) For Flats Constructed by Group Housing Societies on Land Allotted by Delhi Development Authority (in Rs.) Plinth area of flat/tenement in Sq. mtrs. 30 and Below Above 30 and Up to 50 Above 50 and Up to 75 Above 75 and Up to 100 Above 100 and Up to 125 Above 125

East Zone

North/West South Central Zone Zone Zone NIL NIL NIL NIL 3,000 9,000 12,000 15,000 4,250 12,750 17,000 21,250 6,250 18,750 25,000 31,250 7,500 22,500 30,000 37,500 Conversion charges would be on the basis of the formula for built plots referred to in part “A” of Appendix No. 23.2. The plot area would be deemed to be 1.2x Plinth Area of the flats.

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Appendix No. 23.3 Statement showing additional conversion charges for covered area put to other than residential use. (This would be in addition to the nominal conversion charges payable as per Appendix 23.2)

(A)

For Built-up Plots

Plot area in Sq. Additional conversion fee to Mtrs. calculated on the following basis.

be Formula for calculating additional conversion fee.

Upto 50

20% of notified land rate per sq. mtr. of covered area put to non-residential use. Above 50 to 150 22.5% of notified land rate per Sq. Mtr. of covered area put to non-residential use. Above 150 and Up 30% of notified land rate per sq. mtr. of to 250 covered area put to non-residential use. Above 250 and Up 45% of notified land rate per Sq. Mtr. of to 350 covered area put to non-residential use. Above 350 and Up 60% of notified land rate per Sq. Mtr. of to 500 covered area put to non-residential use.

(B)

0.2xRxM .225xRxM 3xRxM .45xRxM .60xRxM

For Flats/tenements Allotted by Delhi Development Authority and its Slum Wing on Leasehold Basis:

Category of East Zone flats/tenements

North/West Zone

South Zone

Central Zone

Janta Mx225 LIG/MIG/SFS (I) Mx250 TYPE-II SFS (II)/HIG/TYPEII-A/TYPE-II-B SFS (III)

Mx675 Mx750

Mx900 Mx1000

Mx1125 Mx1250

172 R.G. GUPTA -–1995 www.rgplan.org

(C)

For Flats Constructed by Group Housing Societies on Land Allotted by Delhi Development Authority.

Plinth area of East Zone flat/tenement in Sq. mtrs.

North/West Zone

South Zone

Central Zone

30 and below Mx225 Mx675 Mx900 Mx1125 Above 30 and Up to Mx250 Mx750 Mx1000 Mx1250 125 Above 125 The additional conversion charges would be on the basis of the formula for built up plots as referred to in Part (A) of Appendix No. 23.3 : the plot area would be deemed to be 1.2xplinth area of the flat. M=

Covered area in sq. mtrs put to other than residential use.

Note: Rates for calculating additional conversion charges area based on conversion fee of Rs. 3000 in respect of LIG flat in East Zone. Proportionate increase in additional fee will be made in case any change in conversion fee in the rates specified in Appendix No. 23.2 is notified.

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Appendix No. 23.4 Schedule of Market Rates of Land in Delhi/New Delhi Applicable for Conversion Up to 31.3.1993

Sl. No.

Name of Locality

Residential

ZONE - I Central Zone 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. NB:

Connaught Place Connaught Circus Connaught Place Exten. up to Commercial Zone Barakhamba Road (Beyond Connaught Plance Extn.) up to Commercial Zone. Curzon Road beyond Connaught Place Extn. Up to Commercial Zone. Hanuman Road (Commercial Zone) Janpath (Beyond Connaught Place Exten. up to Windsor Place) Bhagwan Dass Road Hailey Road. Hanuman Road (Res. Zone) Baird Road Jain Mandir Road Jantar Mantar Road beyond Connaught Place Extn. Lady Harding Road. Mandir Marg Area Outside the Extended Commercial Zone, Parliament Street. Minto Road Punchkuin Road Bhagat Singh Market Babar Road Krishna Market Pahar Ganj Mathura Road Press Jhandewlan Motia Khan (including ‘c’ Type Tenements.

8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/8000/-

The DDA flats located in the following localities would also fall under the Central Zone:- Motia Khan, Sarai Khalil, Turkman Gate.

ZONE-II South Zone 1. 2. 3. 4.

Khan Market Diplomatic Enclave Diplomatic Enclave Exten. Golf Links

6000/6000/6000/6000/-

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5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29. 30. 31. 32. 33. 34. 35. 36. 37. 38. 39. 40. 41. 42. 43. 44. 45. 46. 47. NB:

Aurangzeb Road Prithivi Raj Road Tis January Marg Ratendon Road Humayun Road. Jor Bagh Sunder nagar Andrews Gang Sadiq Nagar Defence Colony R.K. Puranm Moti Bagh Lodi Road Lodi Estate Aliganj Sewa Nagar Lajpat Nagar facing Ring Road Lajpat Nagar (I to V) Nizamuddin Jangpura Kalkaji Malviya Nagar Extn. and Old M.B. Road Vasant Vihar (DDA Land) Anand Niketan Shanti Niketan Anand Lok Panchsheel Park Gulmohar Park West End Niti Bagh Maharani Bagh New Friends Colony Friends Colony Greater Kailash Safderjung Area Enclave Masjid Moth Chirag Enclave C.P.R. Colony East of Kailash Sarvodya Colony/Enclave Sadhna Enclave Cosmopolitan House Bldg. Society

6000/6000/6000/6000/6000/6000/6000/5500/5500/5000/5000/5000/5000/5000/5000/5000/4000/4000/4000/4000/4000/3600/3600/5750/5750/5750/5750/5750/5750/5750/5750/5750/5750/5750/5750/5175/4600/4600/4600/4600/4600/4150/4150/-

The DDA flats located in the following localities would also fall under the South Zone:

Alaknanda, Badar Pur, Basant Gaon, Ber Sarai, Bhim Nagri, Chiragh Enclave, Dakshinpuri, E.P.D.P. Colony, Friends Colony, Gautam Nagar, Greater Kailash, Hauz Khas, Jasola Kalkaji, Katwaria Saria, Khiri, Kishan Garh, Kiolkri,Lado Sarai, Madangir, Madanpur, Khaddar, Malviya Nagar, Mandakani Enclave, Masjid Moth, Munirka, Niti Bagh, Panchsheel Marg, Pul Pehlad Pur, Safdarjung Development Area, Safdarjung Enclave, Saket, Sarai Julaina, Sarita Vihar, Sarvapriya Vihar, 175 R.G. GUPTA -–1995 www.rgplan.org

Sunlight Colony, Tamoor Nagar, Tigri, Sidharth Extn., Sukdev Vihar, Vasant Kunj, Vasant Vihar, Vijay mandal Enclave, Yusuf Sarai, Kalu Sarai, Shahpur Jat, Sheikh Sarai, Usha Niketan.

ZONE III West Delhi 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25.

NB:

Ajmal Khan Road Gaffar Market Karol Bagh M.M. Road Rani Jhansi Market Link Road (Karol Bagh) Desh Bandhu Gupta Market Patel Nagar (East, West & South) Rajinder Nagar (Old & New) Rohtak Road (Old & New) Najafgarh Ind I. Area Rameshwari Nehru Nagar Moti Nagar Sarai Rohilla Tilak Nagar Tihar I & II Ramesh Nagar Industrial Area Extn. Tagore Garden Naraina Vikas Puri Janakpuri Paschimpuri (Paschim Vihar) Chaukhandi Nangloi

5000/5000/5000/5000/5000/5000/5000/5000/5000/4000/3000/3000/3000/3000/3000/3000/3000/3000/2470/2630/990/1480/1320/1320/1320/-

The DDA flats located in the following localities would also fall in the West Zone:-

Bodella, Hari Nagar, Hastal, Jaidev Park, Jwala Puri, Khyala, Madi Pur, Maya Puri, Naraina, Pankha Road, Paschim Vihar, Peera Garhi, Possangi Pur, Prasad Nagar, Punjabi Bagh, Raghubir Nagar, Rajouri Garden, Rehgr Pura, Sultan Puri, Tagore Garden, Toda Pur, Madipur Rohtak Road, Mansarover Garden.

ZONE-IV North Delhi 1. 2. 3. 4. 5. 6. 7.

Kamla Nagar Roop Nagar Shakti Nagar Qutab Road Roshnara Road Lajpat Rai Market Ansari Market

3000/3000/3000/3000/3000/3000/3000/-

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8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29. 30. 31. 32. 33. 34. 35. 36. 37. 38. 39. 40. 41. 42. 43. 44. 45. 46. NB:

Jawahar Nagar Khurshid Market Teliwara Azad Market Mall Road Rajpur Road Malka Ganj Alipur Road Gokhale Market Hathi Khana Khanna Market (Near Tis Hazari) Lahna Singh Market Nicholson Road Vijay Nagar Ashok Market Subzi Market Indira Nagar Azad Pur Andha Mughal Band Stand Area Ext. (BSA) Bharat Nagar Gur-Ki-Mandi Gulabi Bagh Kingsway Camp Timarpur Anagroori Bagh Edward Lines Hakikat Nagar Hudson Lines Wazir Pur/Ashok Vihar Sri Nagar Shalimar Bagh Pitampura Haiderpuri (Prashant Vihar) Bharola Rohini G.T. Karnal Road Malik Pur Chhawni, Raj Pur Chhawni Tagore Park

3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/3000/2500/2500/2500/2500/2500/2500/2500/2500/2500/2500/2500/2500/2500/3225/3225/2370/1510/1510/1510/1510/3000/3000/2470/-

The DDA flats located in the following localities would also fall in the North Zone:

Avantika, Jahangir Puri, Lawrence Road, Mangol Pur, Ram Pura, Sarai Rohilla, Shakur Pur.

ZONE-V East Delhi 1. 2. 3.

Jheel Kuranja Geeta Colony Jhilmil

1200/1200/1330/-

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4. 5. NB:

Yamuna Vihar Other Colonies of Trans Yamuna Area

1330/1330/-

The DDA flats located in the following localities would also fall under the East Zone:

Anand Vihar, Bhatnagar, CHBS, Chilla Village, Dilshad Garden, East of Loni Road, Gazipur, Himmat Puri, Kondli Gharoli, Kalian Puri, Mayor Vihar, Mansarover Park, Nirman Vihar Nand Nagri, New Seelampur, Priya Darshni Vihar, Shastri Park, Trilokpuri, Vivek Vihar.

NARELA & OTHER OUTLYING COLONIES 850/Note: The Localities for which no market rates of land have been indicated above, the market rates of land, shown as above, for the adjoining/comparable locality may be made applicable.

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MAP 23.1: Important Components of Urban Land Development Policy -

Law of Land and Modifications in Various Acts -

Land Acquistion Act Urban Land Ceillings & Regulations Act Slum Areas Improvements and Clearance Act Development Act

-

Planning and Development of physical, Social, Economic and Ecological Infrastructure

-

Disposal of Land -

-

Land Management -

-

Freehold or Leasehold or Combination of the Two by Way of Allotment or Auction

Identification of Ownership of Land Various Authorities Including of Private. Keeping of Records on Computer Systems

Maintenance of a Colony -

External Façade of Buildings and Common Horizontal and Vertical Circulation Physical Infrastructure with the Complex Street Furniture within the Complex

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24 Urban Development Strategies 24.0 24.1 24.2 24.3

Introduction Duration of a Plan Order and Priority of Tackling/Dealing with Urban Problems Importance to Planning, Development and Construction of Utilities and Services 24.4 Comprehensive Planning versus Project Planning 24.5 Financial Planning 24.6 Involvement of Private Sector 24.7 Master Plan versus Structure Plan 24.8 Interaction and Interchange of Technical Knowhow 24.9 Sub-standard Areas 24.10 Administration of a Super Metropolitan City-Delhi

24.0 Introduction Urban Development Strategies (UDS) are those systems with which planning, development, construction and management of various urban spaces are carried out in an appropriate and useful manner and as per the requirements and demand of society. UDS helps in achieving the above mentioned functions and objectives in time and within the existing and predicted resources and constraints for the five elements of planning viz. man, nature, structures, networks and society. It makes plans in the shape of long term (national level), medium term (state level) and short term (local level) plans and a final output in the form of physical and fiscal plans along with system of coordination, integration, evaluation and monitoring. There are 10 components of urban development strategies (UDS) not interlinked or inter-connected with each other. Knowledge and decision on each is very important in this modern age of dynamism characterised by increased spread up in sub-standard areas, higher growth rate of population, mis-management and nonfulfilment of objectives for improvement in the quality of life. These 10 components have been evolved for Delhi-a Super Metropolitan City of 9.8 million present population, 5.2% per annum rate of growth of urban population and three-fourth population living in sub-standard areas. These ten components are given in the beginning and also shown in Map 24.1.

24.1 Duration of a Plan Duration of a Plan, Master Plan, Structure Plan or Policy Plan should depend upon the subject to be dealt with namely-(i) storm water drainage and flood protection works (ii) water supply (iii) sewage disposal (iv) power distribution and supply (v) gas (vi) traffic and transportation via roads (vii) traffic and transportation 180 R.G. GUPTA -–1995 www.rgplan.org

via urban rails and (viii) location of large economic activities. The duration of a plan has been worked out based on the magnitude cost of the subject and its character. Duration of each subject should be as under: (i) 40-60 Years; Plans of drainage and flood protection, railway terminals, university campuses, conservation of historical monuments, gas pipe lines, electric high tension lines. (ii) 25-30 Years: Potable water supply, sewage disposal and power distribution. The quantum of all these three services is large and making available any one of them needs huge financial resources in terms of billions of rupees. Outline details have been given under: The present water supply in Delhi is 480 mgd and by 2010 A.D. its requirement is expected to increase to 1760 mgd. The present sewage disposal capacity is 305 mgd and by 2010 A.D., it is expected to increase to 1280 mgd. Similarly the present power supply available is 1600 MW and by 2010 A.D. it is expected to increase to 64000 MW. Besides requiring huge financial resources, the availability of these bulk services is dependent on the adjoining states, as such, the duration of the plan should not be less than 25 years, so that projects can be implemented and feedback is also received. (iii) 20-25 Years; Traffic and transportation via roads as well as via urban rails-The present number of passenger trips per day in Delhi is 9.8 million and is expected to increase to 28 million by 2010 A.D. Even after substantial improvement in roads and intersections, Delhi cannot take more than 4 million pedestrian trips per day by personalized mode of transport and 8.75 million passenger trips per day by bus mass transport. The balance number of trips i.e.8.75 million per day have to be taken care of by urban rail (Metro), whose (1989) cost was Rs.59 billion. With such a huge expenditure, the time span of the project should be about 25 years, due to same reasons as given in para (ii) above. (iv) 10 Years: Due to dynamic changes in the society, the duration of land use planning should not be more than 10 years, because all the times there are frequent changes. (v) 5 Years: Physical and financial planning of all the projects should coincide with the Central and State level Five Year Plans, and reviewed after every five years. (vi) Annual Plans: These should be for all the projects, showing the physical and financial input and output of constraints, and resources.

24.2 Order and Priority of Tackling/Dealing with Urban Problems Demand and type of urban spaces especially in a large super metropolitan city are unlimited and making available financial resources is difficult. In Delhi alone for the VIIIth Five Year Plan, the demand for financial resources for development of different types of urban spaces, utilities and services for different land uses was as under: (i) Housing in public, private and cooperative sector-Rs. 69.7. billion; (ii) Development of sub-standard areas-Rs. 5.2 billion; (iii) Water supply-Rs. 9.45 billion; (iv) Sewe rage-Rs. 3.26 billion; (v) Power-Rs. 23.0 billion; (vi) Conservancy & sanitation-Rs. 1.03 billion; (vii) Storm water drains-Rs. 1.54 billion; (viii) Fire serviceRs. 0.44 billion; and (ix) Roads-Rs. 17.56 billion. 181 R.G. GUPTA -–1995 www.rgplan.org

Financial resources are also required for other sectors like decongestion of Delhi, covering of storm water drains, conservation of monuments, construction of social infrastructure, remote sensing and aerial photography, channelisation of river Yamuna, development of facilities’ centres, development of service centres, integrated freight complex, metropolitan passenger terminals etc. Supply of physical and financial resources is limited and all demand cannot be met immediately and at one time. Hence it is necessary to decided the order and priority in planning, development and construction of urban spaces. An order of priority of tackling/dealing with urban problems based on experiences has been prepared and given below: (i) Planning of utilities and services; (ii) Control of pollution of different types; (iii) Traffic and transportation via roads; (iv) Traffic and transportation via urban rail; (v) Location of large economic activities; (vi) Land use planning; and (vii) Project planning.

24.3 Importance to Planning, Development and Construction of Utilities and Services It is experienced that normally urban planners do not pay due attention and care required for planning, development and construction of utilities and services for the population in different parts of the city. Often, planners ignore the subject with the remark that the matter is concerned with engineers. A typical example of this is with regard to the Master Plan of Delhi-2001, where details of planning of services have not been given. Indeed, there are 24 types of services classified into seven groups which require proper planning and implementation. The names of these groups and services have been given under: (i) Utilities: water, sewer, power and gas. (ii) Communication: post & telegraph, telephone and telex. (iii) Emergency services: fire fighting, mobility of police, air-raid shelters, rehabilitation sites for flood evictees. (iv) Environmental protection services: water pollution, air pollution, noise pollution, scavenging & public health engineering, control of temperature and creation of lung spaces. (v) Landscape improvement programme: soil erosion and its fertility, tree plantation, landscaping and soil pollution. (vi) Waste diposal: solid waste disposal (inorganic), sold waste disposal (organic), industrial and power waste disposal and its use. (vii) Drainage: waste water disposal, storm water disposal and flood protection works, irrigation system, channelisation of water courses and construction of lakes.

22.4 Comprehensive Planning versus Project Planning (i) The procedure of comprehensive planning is lengthy, cumbersome and needs a lot of time, manpower and financial resources. Comprehensive planning starts from policy making at the National Level, to be properly interpreted at regional level and to be detailed out at city level. For the preparation of a comprehensive plan, i.e. Master Plan or structure plan, the following steps should be taken: (a) Surveys of land-use, traffic and transportation, physical surveys, socioeconomic surveys, soil survey etc. (b) Calculation of existing physical, social and economic indicators. (c) Projection of all above indicators for 5, 10, 15 and 20 years. 182 R.G. GUPTA -–1995 www.rgplan.org

(d) Listing out the problems of the city or urban areas. (e) Proposals for different spatial urban spaces, based on planning principles, norms and systems. (f) Implementation of various projects and feed back to the planning. (ii) Preparation of the Second Master Plan of Delhi was started from 26 February, 1977 and it finally came into enforcement on 1 October, 1990. Hence it took a time of 13 years and 5 months, a very lengthy period, which brought many negative consequences. Some of them are given below: (a) Surveys of 1981 on which Master Plan was prepared have become obsolete, hence not applicable at present. (b) New theories like shifting of shanties from project site, ‘in/around SITU development on shanties sites’ have emerged. These theories were not emerged in the Master Plan. (c) Mass Rapid Transit System/underground railways (Metro) which was not evolved in MPD-2001 has been accepted to a great extent now. (d) Conversion of lease-hold into free hold system has also been accepted which was never thought into. (iii) After going through various pros and cons, it is concluded that the preparation of a Master Plan of a Super Metropolitan City should not take more than five years, otherwise the very purpose of preparing the plan is defeated, surveys become obsolete and results are not as per need of the society. Implementation of the following projects should no wait for the comprehensive planning, but should be done after the preparation of detailed project report and plan by a team of planners with good knowledge of the subject. (a) Construction of a meat processing plant; (b) Construction of a second entry to railway terminals; (c) Shifting of non-conforming industries to planned industrial complexes; (d) Shifting of wholesale markets from congested localities; and (e) Construction of a fish & poultry market.

24.5 Financial Planning Financial planning is the planning of inflow and outflow of financial resources to fulfil society’s demands and needs (biological, physiological, psychological or primary, secondary and tertiary) of living, working and leisure. It is based on long term, medium term and short term planning for 20 years, five years and one year respectively with the help of latest tools and techniques, namely-(i) input-output analysis (ii) ABC analysis (iii) Performance budget (iv) zero-based budget (v) linear programming (vi) dynamic programming etc. Incoming and outgoing resources have to be from and to public, private and cooperative sector. So far, planners have not paid adequate attention to financial planning. Normally budgets show receipts and expenditures without linking them with physical progress and performance. For example Delhi Development Authority’s budget is of 1300 projects of cost varying from few thousand to hundreds of millions rupees without linking with the importance of the project, performance and achievements. The system of budget making should be as under: (i) Divide various projects as per ABC analysis (ii) Projects in category A should be paid full attention and all details should be provided, while all projects in category C should be clubbed together and then shown in the budget, Projects in category B (intermediate Category) should be paid comparatively less attention, than in Category-A. 183 R.G. GUPTA -–1995 www.rgplan.org

(iii)

For category A projects, physical performance should be linked with financial investments, time and man power.

24.6 Involvement of Private Sector This is an important subject and should be given due importance, since only a handful authorities, departments or organizations cannot by themselves fulfil the aims and objectives of improving the quality of life in terms of development and construction of urban spaces. In the last four decades, in spite of Delhi Development Authority generating, directly or indirectly, about 1000,000 residential urban spaces, 12,000-15,000 commercial spaces, 12000-15000 industrial spaces, 3/4th population of Delhi still lives in sub-standard areas. The involvement of private sector is a necessity, but it is to e accepted in a competitive spirit and not with conflicts. For this, seven controls are necessary, the names of which are given below. The details, however, are given in the Chapter 49 (Joint venture and Private Sector: Development and Construction of Urban Spaces). (i) Proper definitions of comprehensive physical planning along with infrastructure development (ii) Rational distribution of price of urban spaces for various land uses and sub uses. (iii) Percentage of mix of Economically Weaker Section, Low Income Group, Middle Income Group and High Income Group. (iv) Selection of suitable applicants but in a democratic process. (v) Type of physical and financial plans. (vi) Timely sanction of Plans from various competent authorities. (vii) Percentage distribution of activities of urban spaces into three sectors, namely-public, private and cooperative.

24.7 Master Plan versus Structure Plan Based on the experience of the last 30 years of implementation of Delhi Master Plan, in is concluded by the author that instead of a Master Plan a ‘Policy Plan’ or ‘Structure Plan’; Policies on the following subjects, should be prepared, implemented and feed back taken. (i) (ii)

(iii) (iv) (v) (vi) (vii) (viii)

Urban Land Policy. Planning of an urban settlement; including of sub-standard areas, namely-shanty clusters, unauthorised colonies, designated slum areas, urban villages and pavement dwellers. Planning of rural settlements. Transport systems. Planning of physical, social and economic infrastructure. Public participation. Type of institutions and management. Financial planning and sources of finance.

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24.8 Interaction and Interchange of Technical Knowhow Delhi has considerable technical knowhow in most of the planning subjects namely- (i) remote sensing, aerial photography (ii) urban planning (iii) traffic and transportation planning (iv) urban design (v) planning of services (vi) impact of projects on environments and vice-versa (vii) channelisation of rivers (viii) urban rails (Metro) etc. There should be a system of preparation of manuals on each above topic in all the organizations such as DDA, Institute of Town Planners, India, Schools of Planning & Architecture etc. Following are the important projects on which interaction and interchange of technical knowhow should be there: (i) Meat processing plant; (ii) Fish & poultry market; (iii) Grain markets; (iv) District centres; (v) Fruit & vegetable markets; (vi) Second entry to railway terminal; (vii) Channelisation of river; (viii) Integrated freight complex cum-and wholesale markets; (ix) Navigation in rivers and transportation of goods and passengers in large cities; (x) Keeping rivers fee from pollution; (xi) Design of metropolitan passenger terminal; (xii) Planning of large complex upto sizes of 5000-7000 hect; (xiii) Mud housing; (xiv) Sites and services; (xv) In/Around SITU planning, development, construction of urban spaces on shanties (jhuggies) sites.; (xvi) Construction of multi-storeyed buildings; (xvii) Urban land policy; (xix) Urban form and aesthetic.; (xx) Development inlying areas; (xxi) Large facilities centres and service centres; and (xxii) Development of large green areas.

24.9 Sub-standard Areas Sub-standard areas which need policy decisions are pavement dwellers, Shanties (Jhuggies) clusters, Unauthorised Colonies, Designated Slum Areas, Urban Villages, Rural Village, Unauthorised regularized colonies and Resettlement colonies. To formulate policies on any of the above sub-standard areas, is outside the scope of this chapter. However, details with regard to some of the components namely-shanty (jhuggi) clusters, planning of resettlement colonies etc. have been given in other chapters of the book, namely, Chapter 19, (Urban Basic Services Programme (UBS)); Chapter 28, (Environmental Planning Norms); Chapter 30, (Planning and Integrated Development-A Large Complex for One Million Population); Chapter 31, [Transit Camps]; Chapter 32, [The Quality of Life]; Chapter 35, (Housing in Urban Villages); Chapter 36, (Housing in Rural Settlements); Chapter 37 (Housing for Landless Labourers); and Chapter 38 (Housing in Unauthorised Regularised Colonies). The subject is of maximum importance and the Ministry of Urban Development, should have an independent department to deal with it. Following can be four branches/units of sub-standard areas, in case of Delhi. (i) Shanty (jhuggi) clusters (a) Relocation of jhuggi clusters from project sites to developed colonies. (b) In/Around Situ development, and construction of urban spaces for small dwelling units on shanty (jhuggi) sites 185 R.G. GUPTA -–1995 www.rgplan.org

(c) (ii) (a) (b) (c) (d) (e) (f) (g) (h) (i) (j) (k) (l) (m) (n) (o) (p) (q) (r) (iii) (iv)

24.10

Environmental improvement. Designated slum areas Walled City of Delhi with reference to repairs of katras, reconstruction of katras, reconstruction of katras by issue of No Objection Certificates. Development of physical infrastructure in slum designated areas. Construction and management of night shelters. Horticulture works/parks/tot-lots/playgrounds. Construction of urban work spaces/shops/stalls for informal sector. Construction and management of homes for destitutes. Slum staff housing. Office building for Slum Wing. Environmental improvement in urban slums. Publicity programme. Built up community hall-cum-barat ghars and slum welfare centres. Protection of land. Organisation of community development programme for skill upgradation of women and youth. Establishment of Co-operative Cell and NGOs. Pay and use Jan Suvidha Complexes. Construction of flats at Mata Sundari Road and other places for slum dwellers. Planning, survey, monitoring, research and innovation. Construction of night shelters. Development of urban and rural villages. Provision of physical and social infrastructure in unauthorised colonies, resettlement colonies.

Administration of a Super Metropolitan City-Delhi

The subject has been dealt with in details in Chapter 48 (Planning Administration of a large metropolitan city-case example of Delhi) and only brief has been given under: 24.10.1 Functions for Proper Administration of Govt. of National Capital Territory Can be divided into four parts-(i) Law & order; (ii) Maintenance of services; (iii) Regulatory functions; and (iv) Planning, development and construction of urban spaces. 24.10.2 Different Level Models (i) Three-tier models are applicable to regions like National Capital Region and River Valley Regions. (ii) Two-tier model; policy making, preparation of physical and fiscal plans along with coordination, integration, evaluation and monitoring of urban spaces should be at the higher level. At the second level, there should be executing 186 R.G. GUPTA -–1995 www.rgplan.org

departments/authorities for development and construction of urban spaces. This is applicable to metropolitan and super metropolitan cities. (iii) One-tier model; Policy making and execution of various works of a small city and town would be at one level. 24.10.3 Specific Example of Delhi A tentative proposed chart for Delhi Chief Minister

Ministers of Home, Finance, Urban Transport, Local Self Govt., and Rural Reconstruction

Ministers of Education, Services And Health

Dy. Chief Ministry (Planning, Development and Construction of Urban Spaces) Ministries of Planning, Development of SubStandard Areas, and Development and Construction of Urban Spaces

24.10.4 Names of Subjects of Planning, Development and Construction of urban Spaces There are 37 subjects, namely-(i) potable water (ii) solid waste disposal (iii) sewage disposal (iv) storm water drainage (v) power (vi) gas supply system (vii) postal, telegraph and tele-communication (viii) protection of physical environment to control water, air and noise pollution (ix) animal husbandry, poultry and fisheries (x) mining (xi) agriculture and forestry (xii) traffic and transportation via roads (xiii) traffic and transportation via urban rail (xiv) preservation and conservation of historical monuments and to maintain ecological balance (xv) acquisition and allotment of alternate urban spaces (xvi) shifting of economic activities including development of wholesale markets (xvii) education (xviii) health (xix) social security (police) (xx) social justice (Courts) (xxi) recreation (xxii) residential group housing construction (xxv) industrial plotted development (xxvi) convenient, local and community shopping centres (xxvii) district centres and sub-central business districts (xxviii) govt. offices (xxix) environmental improvement in slum designated areas (xxx) unauthorised colonies (xxxi) shanty clusters (xxxii) unauthorised regularized colonies (xxxiii) rural villages (xxxiv) urban villages (xxxv) upgradation resettlement colonies (xxxvi) special projects like meat processing plant, fish & poultry market, stadiums (xxxvii) tourists centres.

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MAP 24.1: Important Components of Urban Development Strategies

1. 2. 3. 4. 5. 6. 7. 8. 9. 10.

Duration of a Plan Prioritization in Dealing with Urban Spaces Due Importance to Planning Development and Construction of Urban Spaces Comprehensive Planning Versus Project Planning. Financial Planning Involvement of Private sector Master Plan Versus Structure Plan Interaction and interchange of Technical Knowhow Sub Standard Areas Administration of a Super Metropolitan City.

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25 Landuse-Theory and Practice 25.0 25.1 25.2 25.3

Introduction Landuse Theory at Regional Level Landuse Theory at City Level Landuse Theory for Location of High Rise Buildings

25.0 Introduction Landuse in theory and practice has a wide scope and is increasing day by day along with increase in urban population, its rate of growth, dynamism in the society, gap between demand and supply of urban spaces etc. The theory is applicable at the regional level, the city level and project level. At the regional level, influence of the entire catchment area has to be seen on a particular urban settlement, large, medium or small city and vice-versa. At city level, basic elements of planning viz. man, nature, network, structure and society have to be studied with relation to needs of man which may be classified into biological, physiological and psychological or primary, secondary or tertiary or living, working, enjoying etc. At the project level, the specific location of a project has to be seen and decided taking into consideration many factors, of which-(i) location of the plot (ii) landuse (iii) size of the plot and (iv) accessibility to the plot are more important. Based on these four factors, the ground coverage, setbacks and FAR of a particular project, specifically a multi-storeyed building should be decided.

25.1 Landuse Theory at Regional Level The subject has been further divided as follows: (i) Extent of area (ii) Different strategies to solve the regional problem (iii) Structural changes needed. 25.1.1 Extent of Area If the different relations-economic, political and cultural, a international, national and regional level, are studied then it is found that in all the levels there is one part which always dominates over the rest, in decision, even at international level, concerning political, economical and cultural affairs, is called the centre, and the rest of the surrounding area as periphery. The intensity of relationships at the three different levels, viz. international, national and regional, depend upon communication systems, movement of goods, passengers and political relations. 189 R.G. GUPTA -–1995 www.rgplan.org

The metropolitan city or core region, which is the main concern, always has one main city, the centre and the other parts, containing settlements of lower order and non-urban land use, the periphery. The area over which the main city has command depends upon the decision making powers it has on economic, political and cultural affairs of the periphery. 8Freidmann defines the core region as: ‘Core regions are characterised by their high promise for economic growth. Structurally, they will consist of one or more clustered cities, together with an encompassing area that may be conveniently delimited by the extent of daily commuting, or, alternatively, by the distribution of agricultural activities that furnish sustenance to central urban populations. Their problems will be manifold; how to sustain growth, how o absorb newcomers into local labour force and provide for their needs, how to organize a livable physical environment that is also efficient, and how to manage the increasingly complex affairs of metropolitan society voracious in its hunger for space.’ The reasons of decision making for the periphery by the centre are further clarified in the following seven points given by Friedmann: (i) The failure of diminishing returns o set in at the centre (ii) The failure to perceive peripheral investment opportunities (iii) Export demand for goods produced at the centre (iv) Coincidence of centre with the national market (v) Location of quarternary services at the centre (vi) Heterogeneity of populations (vii) Inability of the periphery to make adjustments appropriate to constant socio-economic change at the centre due to: (a) High replacement rates on the periphery; (b) disruptive effects of rapid outmigration; (c) lack of capital; and (d) inability and unwillingness to see the regional problem. The above point proves that a city has influence over its surroundings depending upon decision making capacity and communication system. Therefore, the calculation of needs and existing and predicted constraints-physical, social, economic, administrative and political require the consideration of not only the local area, but of the whole region. 25.1.2 Different Strategies to Solve the Problem Knowing the fact that exists a relationship between a city and its periphery, the next step is to know its type and magnitude and the solution to it. There can be the following four types of relationships between a city and its periphery: 9 (i) City at the centre, and upward-transitional area surrounding it

8

1. John Friedmann, Regional Development Policy; A Cast Study of Venezuela, The M.I.T. Press, 1966, p. 4. ‘Upward-transitional’ areas have a favourable location relative to core regions and this asset, plus their natural resources suggests the possibility of greatly intensified use of resources. Normally this kind encompasses several cities and receives a net inflow of population. It ‘will show a strong admixture of forestry, agricultural and cattle raising activities’ and therefore have a lower population density than core regions.

9

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10 City at the centre, with downward-transitional area surrounding it (ii) 11 (iii) City at the centre, with resource frontier area surrounding it. (iv) City at the centre, with a combination of either upward-transitional, downward transitional or resource frontier area.

These different combinations will have different solutions, and the description of each is outside the scope of this chapter. Hence a general approach has been adopted here. All the above different combinations have the common problem of social costs which are in excess of social benefits, and inhabitants being exposed to financial and other burdens of congestion which they would otherwise need not to suffer. The solution to this problem can be either renewal of the combination, which is highly difficult due to financial, technical and political limitations, or accommodation of some of its existing or future expected population and economic activities outside the existing area. There can be two methods of limiting the problems in conurbation, either by spreading the excess population in large number of small towns (that is by using the instrument of dispersion of economic activities) or by concentrating in a few large centres (by the instrument of concentration of economic activities). The former holds good when the overspill population is not large, and the receiving towns have spare infrastructure and are short of labour whereas the latter is preferable in other cases. There are two basis advantages of concentration in a few large centres. Firstly, a large concentration, away from the main conurbation, is likely to take, proportionally, more pressure from it and secondly, it may offer economies of scale in the provision of infrastructure and work as a real counter magnet. Besides this, there are other advantages, e.g., it is easier to plan overspill population in a few centres rather than in a series of small ones. They are likely to be more stable due to prospects of greater industrial diversification, and lastly, they can absorb large industrial groups, which have to shit as a whole at a time (in order to preserve their established inter-relationships between different firms, and maintain external economies). 25.1.3 Structural Change Needed Land use elements, along with the existing socio-economic and political constraints are projected for a planning period of 20 years. The method is not perfect 10

‘Downward-transitional’ areas are old, established settlements, whose economies are stagnant or in decline and whose peculiar resources combinations suggest an optimal but less intensive development than in the past, It may have an ageing industrial structure or an exhausted natural resource. 11 ‘Resource Frontiers’ are zones of new settlement in which virgin territory is occupied and made productive. Resource frontiers normally are related to agricultural activities and may be contiguous with already settled areas. They can be non-contiguous also, generally when associated with large scale investments in a mineral or forest development scheme and involving substantial urbanisation. Here in our problem of ‘city region’ we are only concerned with the contiguous case.

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or consistent, as it does not take into account the element of structural change, which will be in the planning period in such a dynamic age. As such the importance of structural change has been discussed below. Structural change is the most important element, in the development process. It involve a process of expansion in quantity and quality in the physical, socioeconomic and political system. In these changes are to be authentic and fully consolidated, then the process must operate under certain conditions. Firstly, the changes must be dynamic, secondly, they should be consistent in the whole range of economic, political and social factors, and thirdly they should be self-generating. This dynamic, consistent and self-generated process simultaneously affects all key aspects of society-the economy, the social stratification, the culture, the political institutions and also all the images, attitudes, motivations and institutions deriving from such structures. The process of structural change changes the structure of production, types of goods and services in quantity and quality. As the agricultural system is replaced by the semi-industrial or industrial it changes the system of market management and sectoral composition of production. It changes the structure of employment, that is, the ratio of skilled and unskilled labour, structure of income by the help of taxes. The change in social structure and stratification are reflected through the generation of mobility in people and institutions, both horizontal and vertical. This mobility initiates the process of urbanization and brings a social change in rural life. It improves the level of living, health, food, housing, education, social security and recreation. All these changes are reflected through social roles, status and value patterns in individuals and institutions. The process of structural change brings innovations into methods of productions, which are the result of the emergence and assimilation of new cultural values. As a result change occur in consumption habits, transport facilities, clothing, forms of expression, customs, procedures, languages and systems of communication. This procedure brings changes in rural and urban life. Change in political structure. Social mobility, progress in education and the presence of new social groups, new attitudes, relating to the handling of public problems. The progressive weakening of the traditional leaders and parties and their replacement by new groups brings on actual alternation in the power structure and an important change in the rules of the political games. The ‘structural change’ brings changes in man and in society; in their economic, cultural and political settings. Thus predicting land use first needs study of changes which are going to happen due to structural change, not only in local areas but in regions also.

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25.2 Landuse Theory at City Level 25.2.1 Background Land use, as seen today, exists in three dimensions which are (i) over land (ii) above the land and (iii) below the land. For finding out land use in totality, all the elements forming it need to be studied in terms of the different needs of these elements, transformation of needs into conditions within the existing constraints and finally formation of land use by these conditions. There are five basic elements which form land use, viz. man, society, nature, structures and networks. These elements create certain needs for man. The needs may be biological, physiological or psychological. These needs create certain conditions within the existing or predicted physical, economical, social, administrative and political factors. These created conditions to form a land use pattern. The study of the above system should be done with the help of various subjects-geography, economics, sociology, politics, law, engineering, architecture, urban planning and regional planning. All these disciplines contribute to and help in the qualitative and quantitative study of element within the existing and predicted constraints viz. physical, economical, social, administrative and political. The 45 nodes forming the relationship between nine disciplines and five elements, has been shown in Map 25.1.

Definition of Land Use The resultant spatial pattern, obtained by this multi-disciplinary study of five basic elements, viz. man, nature, society, structures and networks within the existing and predicted constraints viz., physical, social, economic, administrative and political in three dimensions i.e. under, above and on land, is called land use. 25.2.2 Formulation of Theory (i)

The five elements forming land use need to be integrated in a balanced manner12 which gives maximum satisfaction to man in his individual capacity, in a family and in society and in his activities of living, working and leisure. This has been shown in Map 25.1.

12

Balance manner-If we see hierarchy in elements, we find that man is a primary element, as our main goal is to give him maximum satisfaction. Since man wants both nature and society to survive, so these two elements are at secondary level. Man and society create for themselves the need for structures and networks, which are at a tertiary level.

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(ii)

Man has certain needs13 for his satisfaction and survival. These needs create some conditions14. The quantity and quality of satisfaction depends upon the capacity of the existing and predicted constraints-physical, economic, social, administrative and political. For example, if there is an increase in population by 100 families, they will require 100 places of living, working and enjoying and traffic routes to link all the places. This need to 100 families will demand the construction of these facilities and the conditions for this construction will be shaped by the existing constraints. Only 50 units may be constructed due to physical limitations and lack of funds. Also, all 100 families may not like to live together due to different social grouping. Administrative procedures and formalities may hinder the progress of work, or political constraints may even cancel the scheme.

(iii)

These needs and conditions create the following three types of forces15 within the existing and predicted constraints:

13

Needs can be considered in many ways: (A) Needs may be subjective or objective. Subjective needs differ from person to person. They will differ as per the person’s qualities, status, prestige etc. While objective needs help a man to survive, as he want…calories per day… space in a room…working area in a factory…etc. As these two types of needs are different across individuals, we have to consider an average man, by classifying him into certain strata or groups.

(B) Needs can be classified as per importance also. One such classification could be primary, secondary and tertiary needs. For example, for an immigrant who want to come to an urban area may have the primary need of finding a job, a secondary need of finding a place to live an a tertiary need for recreation. Likewise other needs may also be classified as per importance. (C) Man has certain needs, both as an individual and as a member of society. Individual needs can be (i) biological (ii) physiological, (iii) psychological and social needs are of health, education, social security, food consumption and proper nutrition, employment and better condition of work, clothing, recreation and human freedom. 14 All different needs mentioned above create different conditions, e.g. houses, hostels, boarding houses etc. are required for living; dispensaries, clinics and hospitals are required for health; nursery, primary, secondary schools, colleges, universities and research institutions, are required for education. 15 Characteristics of different types of forces (i) Physiological force. These are non-directional forces, necessary around a main to breathe, around a building to maintain light and ventilation plane an urban area to have at least one mile of green belt to protect it against the nuisance of forces of agglomeration, from the surrounding areas. (ii) Texture forces: These forces are also non-directional and they maintain all elements or parts of elements in a certain pattern. Elements are arranged in different patterns due to physiological and density forces. When men will assemble on a ground, they will assemble in different patterns and buildings are also arranged in different patterns. (iii) Directional forces. People not only need physiological space and proper relationships between them, but they also need to be as close as possible to the points of their interest which attract them with directional forces; e.g., as a city centre. These forces perform the functions of concentration, decongestion, centralisation and decentralisation. Directional forces are of the following types (a) Central forces. These are of two types - Centripetal forces (forces of concentration or centralization) - Centrifugal forces(forces of deconcentration or decentralization (b) Linear forces: geometric (i) Lini-petal (toward a line) (ii) Lini-fugal(away from a line) Non-geometric (i) Lini-petal (towards an irregular line) (ii) Lini0fugal (away from an irregular line) (c) Surface forces; geometric, non-geometric (d) Volume forces: certain volume of air space is required to make the environment safe between residential and non-residential areas.

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(a) Physiological forces; (b) Texture forces; and (c) Directional forces. (iv)

Now the problem is to synthesise these, to get a resultant, in terms of intensity and quality, as shown in Map 25.2:

The directional forces indicate the intensity of goods and passengers, from the texture forces we get densities of different parts and by he combination of texture and physiological forces we get the floor area ratio of different buildings. Quality of forces can be positive or negative, attractive or repulsive, regular or irregular, seasonal or periodic, etc. (v)

These resultant forces explain the various laws of land use (creation, development, declination, internal balance between elements, physical characteristics) like location, function, form and structure, and unite them into a common product. Due to this resultant all the different forces are created, like concentration, deconcentration, centralization, decentralization, invasion and succession. This resultant decided where a particular land use of a given intensity and quality should be located.

(vi)

This phenomena may be visible in different forms in practice. These resultant forces create different forms and structures of land use. The forms and structures can be basic16 such as circular, linear (geometric and nongeometric), composite17, i.e. a combination of he two.

16

Basic forms and structures are found in very small settlements of older times, of limited size, having less investments on roads, where people live in the form of a circle due to defence requirements. Basic geometric linear or non-linear forms and structures are found when development is along existing roads, not having any defence problems. Networks and man-made factors do not impose pre-detemined patterns. Only the configuration of the area and physical factors may play an important role. 17 Composite structures and forms are also derived from basic ones in formal and informal ways through various combination of forces. These can be of two types viz., natural and planned. Natural forms and structures are found generally in old settlements and planned ones in new settlements. Various combinations of forms and structures are found in practice: (a) Regular structure, irregular from; (b) Regular structure, regular form; (c) Irregular structure, irregular form. This phenomenon is also visible in two different types of shapes, i.e. natural and planned. Natural shapes. Since thousand of years land use has developed in a natural way under the influence of a few and limited forces. In he beginning land use was being implemented in a hexagonal pattern, but when these natural solutions ceased to answer all needs of human beings, a switch to the pattern of irregular ways was made. Natural shapes grow without a plan and often tend to be a radial since all people are interested in reaching a common place. They do not have any straight roads, rectangular squares, and similar shaped plots. Even today these are found in old parts of cities and villages. Planned shapes (formal in design). These are formed by geometric forms of private and public open spaces. These are of the following four types: (a) Radial shapes; (b) Grid iron pattern; (c) Geometric shape, linear or curvilinear; (d) Composite shape, by combining one or two. Radial shapes are generally formal. The scope for flexibility is less, as the radial road pattern is fixed and cannot be changed without a bold step. Grid iron pattern is derived from the principles of repetition of similar and equal elements (houses, buildings, plots etc.) Here also the flexibility is limited, though more than in radial shapes. Geometric shape, linear or curvilinear are the most common shapes and are different in different circumstances. Composite shapes can be made by combining any of two or more.

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25.3 Landuse Theory for Location of High Rise Buildings 25.3.1 Location of high rise buildings is based on many factors, of which four namely-(i) landuse (ii) location in the city (iii) size of the plot in question and (iv) accessibility and problems of traffic and transportation, are most important. Based on these four factors, zoning regulations i.e. ground coverage FAR, height, set backs, parking norms for a zone can be decided. To arrive at a conclusion and to evolve a theory, a comprehensive study of nine multi-storeyed buildings in Delhi and another ten multistoreyed buildings in Indore was conducted in 1986-87, by the author and then conclusions derived. 25.3.2 19 Multi-storeyed buildings were studied with relation to the following 15 points and the following conclusions were drawn: (i) Area of the plot in sq. mt. (ii) Area of the plot affected by road widening (in sq. mt.) and percentage of the affected portion with the total area of the plot. (iii) Use on various floors, (including basement) in terms of sq. mt. and also percentage of total floor area in sq. mt. for each use (iv) Total working population and average area per person in sq. mt. (v) Ground coverage, permissible and provided (vi) FAR, permissible and provided (vii) Set backs, permissible and provided (viii) Height of the building, permissible and constructed (ix) Location of service lines i.e. water, sewer, storm water drains, electric lines, telephone lines, etc. (x) Quantum of water supply and sewage disposal in gallons per day per capita (xi) Parking requirements; required, provided within structure and outside structure (xii) Landscape area developed and maintained (xiii) Observation with regard to water pollution, air pollution and noise pollution (xiv) Landuse as per Master Plan, Zonal Plan and detailed layout plan. Violation of landuse, if any. (xv) Traffic and transportation: (a) traffic volume on peripheral roads (b) Existence of service road (c) Controlled entry and exit to the building (d) Cut in the central verge in the main road (e) Speed and delays in the stretch in front of building/buildings. 25.3.3 Proposed Theory for Location of High Rise Buildings in a Zone in a Metropolitan City Ground coverage in all the cases, irrespective of location of the building, landuse (residential, group housing, commercial or institutional) should be 25% as it gives a scope of provision of parking as per norms. However, FAR should be on a sliding scale, starting at a minimum in the centre of the city, increasing as distance 196 R.G. GUPTA -–1995 www.rgplan.org

between the plot and the centre of the city increases and ultimately reaching a maximum in the outer part of the city. This system would solve the following problems: (i) It will reduce the problem of traffic and transportation in the heart of the city and would also bring a balance in traffic distribution in inner and outer areas and in different parts of the city. Parking areas can be provided easily in the outer areas than in inlying built up areas, due to availability of land. (ii) It will discourage developers and builders from constructing multi-storeyed buildings in central areas which are already congested and should not be further overloaded. (iii) The required parking can be accommodated as per norms in outling areas. Table 25.1, 25.2 and 25.3 have been prepared and given below showing factors on which zoning of a multi-storeyed building should depend.

Table 25.1: Factors on which zoning of a multi-storeyed building depends and relation with four Rings in a city Item

1.

2.

3.

Physical Position Instance from the centre in km Percentage of open area to total urban area Mix landuse in percentage of the total landuse Physical infrastructure Water Sewerage Drainage

Power Tele-communication Social infrastructure Education Health Security

Number of Rings (1)

(2)

(3)

(4)

Up to 5

5-10

10-15

15-20

10

10-30

30-50

50-75

30-50

20-30

10-20

-

Unsatisfactory Less satisfactory

Tolerable

Can be made satisfactory

Unsatisfactory Less satisfactory

Tolerable

Can be made satisfactory

Justice Recreation Shelter

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4.

Economic infrastructure Per capita income Per capita production Land Value Traffic & transportation problem Volume/capacity Delay at intersection

5.

Parking inadequacy

(ii)

Maximum Maximum Maximum

Lesser Lesser Lesser

Less Less Less

1.2-1.5 Untolerable

1.0-1.2 Tolerable

Completely inadequate

Tolerable

Minimum Minimum Minimum

0.8-1.0 Some delays Tolerable

0.5-0.8 No delays Can be provided as per norms.

Ground coverage in all the cases should be 25% but FAR can be as given in Table 25.2:

Table 25.2: Proposed FAR and parking norms in four Rings of a city and on special plots

Use

Number of Rings (1)

Special plots

Parking norms *ECS/1000 sq. m.

(2)

(3)

(4)

Residential 100 125 Residential150 175 cumcommercial Commercial 150 175 * Equivalent Car Space (ECS)

150 200

175 250

175 250

1.33 1.33

200

250

250

1.67

(iii)

Requirement of parking for a plot of 4000 sq. mt. in different rings and on special plots would be as under, taking an average area per car space as 28 sq. mt.

Table 25.3: Parking requirements in sq.mt. in various Rings for a plot of 4000 sq. mt. (special plot), based on parking norms Use

Residential Residentialcumcommercial Commercial

Number

of

Rings

Special Plots

No. 1 1490 2235

No. 2 1862 2607

No. 3 2235 2980

No. 4 2670 3750

2670 3750

2805

3272

3741

4676

4675

Parking requirements for three types of land uses in Ring No. 1 to Ring No. 4 have been calculated based on FAR for each given in Table 25.2., and setback. Front 10 198 R.G. GUPTA -–1995 www.rgplan.org

mt. rear and sides 3 mt., basements are within set back in a plo of 4000 sq. mt. (50 mt. x 80 mt.) would be 2948 sq. mt. and in 8000 sq. mt. (80 mt. x 1000mt.) would be 6438 sq. mt. From the above table it is clear that parking requirements can be met in one basement, if it is provided in the entire plot within set back except in the following cases: (i) Residential-cum-commercial with more than 200 FAR. (ii) Commercial with more than 175 and more FAR. 25.3.4 Conclusions from Study Based on various points studied in 9 multi-storeyed buildings in Delhi and 10 multistoreyed buildings in Indore, the following conclusions were drawn: (i) In large sized plots, the following uses should be permitted subject to land use in the Master Plan. Size Use - 4000 sq. mt. and above Residential up to 175 FAR - Above 4000 sq. mt. and less than 8000 Residential-cum-commercial up to 200 sq. mt. FAR - 8000 sq. mt. and above Commercial up to 175 FAR

In large sized plots, multi-storeyed buildings for residential, residential-cumcommercial and commercial can be permissible subject to landuse in the approved plans since this would ensure adequate parking as per norms. Width of roads is also adequate to take traffic the environmental problems.

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26 High Rise Buildings 26.1 26.2 26.3

Factors for Location of High Rise Buildings Components for Design of Industrial High Rise Buildings Terminology on the Subject and a Detailed Questionnaire

26.1 Factors for Location of High Rise Buildings Location and design of high rise buildings is a controversial subject with many pros and cons, positive and negative consequences. The subject has been discussed in many forums, but so far without proper quantification of various factors, which influence the location and design of high rise buildings. In this chapter, it has been attempted to quantify factors with regard to the physical infrastructure, traffic and transportation, etc. Location of high rise buildings should be dealt with carefully with respect to the following four factors. (i) (ii) (iii) (iv)

Location: Siting with relation to urban planning, environment planning and traffic and transportation planning. Urban design: in term of aesthetics, shape, size and form. New construction technologies and systems. Management/maintenance in term of services and common spaces.

26.2 Components for Design of Individual High Rise Buildings Twelve components for design of individual high rise buildings, are as under. Details of most of these components are available in National Building Code and in brief have been explained below: (i) Environment planning; (ii) Structure design; (iii) Fire; (iv) Lift; (v) Air-conditioning; (vi) Services: water, sewerage, drainage, power, tele-communication, scavenging and garbage disposal; (vii) Traffic and transportation problems; (viii) Community facilities and social infrastructure; (ix) Shopping facilities; (x) Project management; (xi) Types of plans to be submitted; (xii) System of sanction of plans. 26.2.1 Environment Planning Environmental planning includes planning within and outside the structure, and the Complex in relation to adjoining structures and complexes. The environment has to be tackled in relation to noise, air and water pollution, zoning regulations 202 R.G. GUPTA -–1995 www.rgplan.org

(density, FAR, ground coverage, set backs and height), and parking norms, For example, when a large number of people are living in a high rise building, atmospheric pollution of the area due to consumption of petrol and diesel by vehicle reaches high and need proper controls. 26.2.2 Structure Design The structural elements of high rise buildings are beams, columns and foundations. These are, directly or indirectly affected by wind, earthquake and thermal loads. Some of the main points to be considered in the design of tall buildings are as under: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix)

design laternal stiffness (Drift Ratio) and related perception of sway motion type of occupancy (commercial, residential, office building) Foundation considerations fire rating considerations availability and cost of major construction materials heating and air conditioning load considerations method of electrification – under floor or punch through wall system construction time schedule and cost of interim financing relationship between construction labour and construction equipment.

26.2.3 Fire All the details are provided in the National Building Code and some essential details in para 26.3 of the chapter. 26.2.4 Lift In the design of lift system it is imperative to consider the location, capacity and speed of lift. Information with regard to the purpose of the building, the number of floors, uses on each floor, anticipated population and possibility of expansion of the building is required. The quality of service is measured by the passenger waiting time on each floor. As per the Bureau of Indian Standards (BIS), acceptable intervals are defined as follows: (i)

(ii)

Waiting time 20-25 seconds 30-40 seconds 45 seconds and above

Excellent Fairly good Not satisfactory

Speed of the lift

BIS further recommends the following speeds of lift for buildings having different number of floors 203 R.G. GUPTA -–1995 www.rgplan.org

No. of Floors 4 -5 6 – 12 13 – 20

Speed (metre per second) 0.5 – 0.75 0.75 – 1.5 Above 1.5

26.2.5 Air Conditioning Air conditioning system can pose serious hazards, if proper safety precautions are not observed in their planning and implementation. An improper system may allow the passage of smoke, hot gases and fire from one enclosure to another or from one floor to another. The safety measures required to be incorporated in airconditioning systems are given below: (i)

(ii) (iii) (iv)

In case of non-residential premises, air handling units should as far from each other as possible and should be separate for each floor. Fresh and return air ducts for every floor should be distinct and in no way inter-connected with the ducting of any other floor. In residential buildings the flats on each floor should have separate air conditioning systems. Fire escape routes like corridors, lobbies, staircases etc. should not be used as return air passages. Ducting should be constructed from substantial gauge metal steels which can withstand fire for at least two hours.

26.2.6 Services: Water, Sewerage, Drainage, Power, Telecommunication, Scavenging and Garbage Disposal (a) (b) (c) (d)

(e) (f)

Utilities: water, sewer, power, gas Communication: post & telegraph, telephone/telex Emergency services: fire fighting, air-raid shelters Environmental protection services: water pollution, air pollution, noise pollution, scavenging and public health engineering, control of temperature and creation of green spaces lungs solid waste disposal and waste water disposal.

Details of these services are available in the National Building Code. The quantum of services required will be the same for low rise or high rise buildings except for marginal additions as given under: (i) (ii)

20% additional water for fire fighting system. 20% additional power load for lift system.

There is no doubt that innovations have to be made in the technical knowhow for planning and implementation of services in high rise buildings. This requires proper training systems in architecture, urban design and building science. Adequate 204 R.G. GUPTA -–1995 www.rgplan.org

manpower should be added in sanctioning of building plans as well as for proper supervision of the construction of the high rise buildings. 26.2.7 Traffic and Transportation Problems (a) (b) (c) (d)

Entry and exit of different modes of vehicles, namely – service vehicles, light vehicles, cycles Pedestrians Parking for different modes of vehicles and Proper roads on the periphery.

High rise buildings should be permitted only in comprehensive, integrated and planned commercial centre or group housing pockets; or on 45 mts. and above wide roads on plots of 4000 sq. mt. and more, subject to various other conditions of land use and principles of planning. In these types of cases problems of traffic and transportation and proper parking are solved to a great extent. In cases where parking cannot be provided within the complex, it should be provided elsewhere in adjoining areas which should be developed by the Development Authority after taking adequate development charges from the owners/developers/builders and beneficiaries of the complex. 26.2.8 Community Facilities and Social Infrastructure Standards of community facilities and social infrastructure with regards to education, health, social security, social justice and recreation are given in various Master Plans/structure plan. These standards should be followed strictly for multistoreyed complexes. Within the Complex of high rise buildings, provision of a nursery school/crèche, should be there with provisions of first-aid room and small medical store. 26.2.9 Shopping Facilities It is necessary to provide some retail formal or informal small shops within the complex otherwise it leads to unauthorised construction. These shops should be provided on the following scale: (i) (ii) (iii)

In government offices @ 5 to 8 units per 1000 employees In commercial offices @ 8 to 10 units per 1000 employees In residential flats @ 1 to 3 units per 1000 residents.

26.2.10 Project Management Construction of high rise buildings is a difficult task. Project management system includes horizontal, vertical and diagonal planning, development, construction, coordination and integration of 10 components namely – environmental planning, structure design, fire detection and control, lift system, air-conditioning, water, sewerage, drainage, power and telephone systems, scavenging and garbage 205 R.G. GUPTA -–1995 www.rgplan.org

disposal, traffic and transportation problems, community facilities and shopping facilities on one side and human satisfaction (users) on the other side. All these activities have to be within the norms of approved Master Plan and other zoning regulations provisions. 26.2.11

Types of Plans to be Submitted

Various plans with details therein to be submitted are as under: (i) General information about the project (a) Size of the plot in sq. mt.; (b) area affected in the proposed right of way to roads; (c) location with reference to important roads and bench marks. (ii) Urban planning (a) Land use as per Master Plan; (b) Land use as per Zonal Plan (if any); (c) Land use as per layout plan (if any); (d) Proposed density; (e) Name of the Ring of the city in which the plot is situtated or is it a special plot of 4000 sq. mt. and above? (iii) Traffic and Transportation planning (a) Width of existing and proposed roads; (b) Provision of entry and exit; (c) Provision of service road; (d) A comprehensive circulation plan of the plot and of its adjoining areas. (iv) Fire detection, fighting, prevention and protection planning (a) Plans as per details given in Chapter 3 of National Building Code. (v) Planning of services (a) Plans of each floor; (b) Necessary number of crossections; (c) Elevations of each side; (d) Details of toilet blocks, kitchens and other specific areas. (vi) Details of landscaping and street furniture within the plot and on peripheral roads. These features area – Electric poles, overhead electric wires, underground electric wires, telephone poles, public telephone booths, tree plantation along road sides, landscaping, footpaths, dust bins, dhalaos, bus queue shelters, road signages, property numbering, name plates, street lights, parking of different modes of vehicles, public toilets and conveniences, covering of drains, control on noise pollution, properly pointed speed breakers, sculpture pieces at suitable locations along with water fountains, overheads tanks, underground water tanks, tree-guards, parks with railings, sitting benches, tree plantation etc. 26.2.12 System of Sanction of Plans (for example in DDA) • • • • • •

Director of Building Department, DDA Chief Engineer (Water), DWS & SDU Chief Engineer (Sewage), DWS & SDU Chief Engineer (Planning), DESU Chief Fire Officer, Delhi Fire Service Concerned Road Authority namely – MCD,

Chairman Member Member Member Member Member 206 R.G. GUPTA -–1995 www.rgplan.org

• •

NDMC, PWD, Delhi Govt. Dy. Commissioner, Traffic Police, Delhi Jt. Director (Building), DDA (Urban Planning Background)

Member Member Secretary

26.3 Terminology on the Subject and a Detailed Questionnaire 26.3.1 Terminology Access A clear approach to the building for movement of Fire Engines for carrying out fire fighting and rescue operations. Automatic Sprinkler System An arrangement of piping, sprinkler and connected equipments designed to operate automatically by heat of fire and to discharge water upon that fire and simultaneously give automatic audible alarm. Automatic Fire Detection & Alarm System: An arrangement of automatic fire/smoke detection system provided in the building to raise an alarm in the event of outbreak of fire at its incipient stage. Auto D.G. Set Arrangement for providing power in case of failure of normal electrical supply automatically. Building Height The vertical distance measured in the case of flat roofs, from the average/level of the centre line of the adjoining street to the highest point of the building adjacent to the street wall and in case of pitched roof, up to the point where the external surface of the outer wall intersects the finished surface of the sloping roof and in case of gable facing the roads, the mid point between the eaves/level and the ridge Architectural features serving no other functions except that of decoration shall be excluded for the purpose of measuring height. The height of the building shall be taken up to terrace level for the purpose of fire safety requirement. Combustible Material A material is combustible, if it burns or adds heat to a fire when tested for non combustibility in accordance with good practice.

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Compartmentation Arrangements for preventing spread of smoke/hot gases/fire from one section of the building to the other part of building (vertical/hortizontal). Down Comer An arrangement for fire fighting within the building by means of down comer mains of not less than 10 mm internal diameter, connected to terrace tank through terrace pump, gate valve and non return valve and lending valve on each floor/landing. It is also fitted with inlet connections at ground level and air release valve at roof level for being capable of charged with water by pumping from fire service appliances. Draw Off Connection A pipe not less than 100mm dia with foot valve and female round thread outlet for drawing water from static water tank by the fire appliances. Fire Lift One of the lift specially designed for use by fire service personnel in the event of fire. Firemen’s Switch An arrangement when operated, brings down the lift car at ground floor and to remain under the control of fire service personnel, for gaining access at the upper floors. Fire Resistance Ability of an element of building construction, component for structure to fulfil, for a specified period of time, the required stability, fire integrity and/or thermal insulation and or other expected duty in a standard fire resistance text. Fire Service Inlet A 2, 3 or 4 way collecting head with non return valves filled to the down comer/wet riser main, so that in case of need, fire service can directly pressurize the system with their pump. Fire Tower An enclosed staircase which can only be approached from the various floors through landing or lobbies separated from both the floor areas and the staircase by fire resisting doors and open to the outer air. 208 R.G. GUPTA -–1995 www.rgplan.org

First Aid Fire Fighting Appliances/Hose Reel Portable fire extinguishers/hose reel installed in the building for combating the fire at initial stage. Fire Pump An electric/diesel pump installed at static water tank to charge the water mains for fire fighting. High Rise/Multi-Storeyed Building Building of 15 m and above in height. Illuminated Exit Signs A device for indicating the means of escape during normal circumstances and power failure. Low Rise Building Building less than 15 m in height. Means of Escape An escape route provided in a building for safe evacuation of occupants. MCB/ELCB Devices for triping off electrical circuits in event of any fault in the circuit/installation. Manually Operated Electrical Fire Alarm System An electrical device manually operated which gives an audible and/or visible alarm of fire on control panel. Non Combustible A material which does not burn nor add heat to a fire when tested for non combustibility in accordance with standard specification. Public Address System with Talk Back Facility An arrangement audible to an occupant for announcing any emergency/instructions with a facility to communicate back to the fire control room.

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Refuge Area A pre-determined safe place for taking shelter in case fire breaking out in a building. Travel Distance The distance from the remotest point on a floor of a building to a place of safety, be it a vertical exit, horizontal exit or an outside exit, measured along the line of travel. Terrace Pump An electrically/driven pump, located on the terrace connected to a terrace tank with gate valve on suction side and to the internal hydrant system/hose reel with non return valve on delivery side. Under Ground/Overhead Tank Underground/overhead water tank, constructed to store water exclusively for fire fighting purpose. West Riser An arrangement for fire fighting within the building by means of vertical rising mains of not less than 100 mm internal dia with landing valves on each floor/landing for fire fighting purposes and permanently charged with water from a pressurized supply.

Wet Riser cum Down Comer An arrangement for fire fighting within the building by means of vertical rising mains of not less than 100 mm internal dia with landing valves on each floor/landing connected to terrace tank also for fire fighting purpose, through a terrace pump, gate valve and non return valve near the tank and to a fire pump, gate and non return valves, over the static tank. Yard Hydrant Outlet provided on five water mains in the setback area for drawing water for fire fighting purpose. Low Fire Hazard Industries Engineering industries using/processing or assembling non-combustible material i.e. Lathe Machine, Steel Works, Steel Components etc. 210 R.G. GUPTA -–1995 www.rgplan.org

Moderate Fire Hazard Industries Industries using/processing combustible materials but not flammable liquid etc., plastic industries, rubber and PVC industries, Textile, paper, furniture, flour mills etc. etc. High Five Hazard Industries Industries using/processing flammable liquids, gases, chemicals, petroleum products, plastic of Thermo Setting group etc. 26.3.2 Questionnaire for High Rise Buildings/Other Buildings Designed by Delhi Fire Service Headquarters: New Delhi. (i) Name of the building. (ii) Address of the building. (iii) Name and address of builder/promoter. (iv) Name and address of owners/occupiers of individual flats. (v) Plot area: (a) Title; (b) Land use (in case of residential building indicate no. of dwelling units). (vi) Covered area (at grade level). (vii) Height of the building. (vii) (a) Overall height (from grade level) upto terrace level. (b) Whether set back areas are conforming to unified building bye-laws. (ix) (a) Number of basements (Please indicate level below grade in each case). (b) If basement extends beyond the building line please indicate the load bearing strength of the roof of basement. (c) Area of basement. (d) Whether any piazza is proposed? If so, details of the level of piazza and ramps etc. be indicated. (x) Number of floors (including ground floor). (xi) Occupancy (use-Please mention separately for basement & floors). (xii) Covered area of typical floor. (xiii) Parking areas (Please give details). (xiv) Details of surrounding property/features: Compass direction relation to bldg. North South East West

Type of Height in case Distance wall Any other in Property/ of bldg. to wall from information the feature bldg.

(xv) Approach to proposed building, width of the road and connecting roads, if any. (xvi) Please give details of water supply available exclusively for fire fighting. (xvii) Has wet riser (s) been provided? If so, please indicate the number of risers and internal dia of each. (xviii) Has any downcorner been provided? If so, please give details. (xix) Please indicate the present arrangement for replenishment of water for fire fighting. (xx) Is a public or other water supply for fire fighting. (xxii) Have internal hydrants been provided? If so, please indicate: (a) No. of hydrants on each floor including basement (s) and terrace. (b) Have these hydrants single or twin outlets. (xxiii) Have first aid hose reel been provided? If so, please indicate: (a) No. of hose reels on each floor including basement (s). (b) Bore and length of hose-reel tubing 211 R.G. GUPTA -–1995 www.rgplan.org

on each reel. (c) Size (bore) and type of nozzle fitted to each hose reel. (d) total number of hoses provided near each hydrant. (xxv) Have branch pipes been provided? If so, please indicate: (a) the type of branch pipes. (b) size of nozzle fitted to each branch. (xxvi) (a) If the basement is used for car parking or storage, has it been sprinkled? (b) Whether any cubicals proposed in the basement? If so, the area of each cubical be indicated? (c) Whether segregation/compartmentation of the basement has been provided? If so, please give details. (xxvii) Is the building equipped with automatic fire detection and alarm system? If so, please indicate: (a) the type of detectors used; (b) the standard to which the detectors confirm; (c) the code to which the installation confirms. (xxviii) Have manual call boxes been installed in the building for raising an alarm in the event of an outbreak of fire? If so, please give details. (xxix) Has public address system been installed in the building with loudspeakers on each floor with talk back facility. (xxx) Has an intercom system been provided between the various floors and the fire control room at entrance lobby? (xxxi) Has a fire control room been provided in the entrance lobby of the building? (xxxii) How many staircases have been provided in the building? Please indicate in each case: (a) Width of the stairway. (b) Width of treads, (c) height of risers, (d) If the treads are of the non-slip type. (xxxiii) What is the average occupant load per floor? (xxxiv) Whether fire tower has been proposed? (xxxv) How many lifts have been installed in the building? Please indicate in each case: (a) The floors between which the lift runs. (b) The type of doors fitted to the lift car and at each landing. (c) Fire resistance rating of lift car and landing doors. (d) Floor area of the lift car. (e) Loading capacity of the lift car. (f) has communication system been installed in the lift for car? (g) Has a fireman’s switch been installed in the lift for grounding it in the event of fire? (xxxvi) Have any stationary fire pump (s) been installed for pressurizing the wetriser? If so, please indicate: (a) The number of pumps (b) The size of suction and delivery connection of each pump; (c) The output of each pump; (d) The maximum head against which the pump can operate at the output mentioned at (c); (e) Is the pump automatic in action?; (xxxvii) Has a standby source of power supply been provided? If it is through a generator, please indicate: (a) The capacity (output); (b) The functions that can be maintained simultaneously by the use of generator, such as operating lift (s), fire pumps emergency lighting etc.; (c) Is the generator automatic in action or has to be started manually? (xxxviii) Has any yeard, hydrant been provided from the building’s fire pump? (xxxix) Where more than one lifts are installed in a common enclosure, have individual lifts been separated by fire resisting walls or 2 hours fire rating? (xxxx) Has the lift shaft (s), lift lobby or stairwell been pressurized? If so, give details. (xxxxi) Have the lift lobbies and staircases been effectively enclosed to prevent fire/smoke entering them from outside at any floor? (xxxxii) Have all exits and direction of travel to each exit been sign-posted with illuminated signs? (xxxxiii) Has a false ceiling been provided in any portion of the building? If so, please indicate location and also mention if the material used for the false ceiling is combustible or non-combustible. (xxxxiv) Is the building centrally air-conditioned? If so, please 212 R.G. GUPTA -–1995 www.rgplan.org

indicate: (a) The material used for construction of ducts and its fittings. (b) The type of tining used for ducts, if any. (c) The type of lagging used, if any, for insulating any portion of the duct; please also indicate how the lagging is secured. (d) If false ceiling is provided, please given information as at (42) above. (e) If plenum is used as a return air passage, has it been protected with fire detectors? Please give details. (f) Has a separate A.H.U. been provided for each floor? (g) Whether automatic shut down of A.H.U. is coupled with detection system? (h) Is the ducting for each floor effectively isolated or is it continuous on more than one floor? (i) Is the fire dampers being provided? (xxxxv) Where are the switchgear and transformers located? If inside the building, please indicate: (a) If the switchgear and transformer(s) form spreading? (xxxxvi) (a) Where electric cables, telephone cables/wetrisers/down comers pass through a floor or wall have the spaces (apertures) round the cables/pipes been effectively sealed/plugged with non-combustible, fire resistant material? (b) Ventilation: Whether natural ventilation is relied upon? If so, give details of the vents for the stair-well, lift shafts, basement. Whether mechanic ventilation has been proposed? If so, give details of the proposed system indicating the number of air changes for the basement and other floors. Whether mechanical ventilation is coupled with automatic detection system? Please give details of the system. (xxxxvii) Please indicate the number and type of fire extinguishers provided at various locations and the arrangement for the maintenance of the extinguishers. (xxxxviii) Please indicate if all fire extinguishers bear the ISI certification mark. (ixL) Whether the refuge area has been provided? If so, the floor on which provided and the total area provided floorwise. (L) Area the occupants of the building systematically trained in fire prevention, use of fire extinguishers and emergency procedures? If so, please give details. (Li) Does an emergency organisation exist in the building? If so, please give details and append a copy of the emergency (Fire) orders. (Lii) Has a qualified Fire Officer been appointed for the building. (Liii) Has the building bene protected against lightning? If so, does the lighting protect confirm to any code? Please indicate details. Provision of HCB & ELCB in the building/ (Liv) The work has not been started on site and construction will be started only after final approval of the Competent Authority/the position of construction at site is given below. (Lv) Name and address of Fire Consultant with Registration No………. . Remarks of the concerned Local Body: The proposal has been broadly examined. The above information is correct and the proposal is permissible as far as DDA/MCD/NDMC is concerned (Additional comments, if any). The proposal can be considered by Delhi Fire Service at conceptual stage/is forwarded to Delhi Fire Service along with three sets of drawings which are according to Bye-laws, Master Plan, Zonal Plan and fire fighting regulations and policy instructions of Govt. The proposal involves relaxation in respect of height/set backs/……… The architect has been advised to furnish the requisite materials and documents, within one week time directly to the Delhi Fire Service.

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Map 26.1: Components of Design of High Rise Buildings



ENVIRONMENT PLANNING



STRUCTURE DESIGN



FIRE DETECTION



LIFT AND ESCALATORS



AIR CONDITIONING



SERVICES, WATER, SEWERAGE, POWER, DRAINAGE ETC.



TRAFFIC AND TRANSPORTATION INCLUDING PARKING



COMMUNITY FACILITY AND SOCIAL INFRASTRUCTURE



SHOPPING FACILITY ONLY FOR DAY TO DAY NEEDS



PROJECT MANAGEMENT SYSTEM



TYPES OF PLANS



SYSTEM OF SANCTION OF PLANS FROM VARIOUS AUTHORITIES

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27 Theory of Low Cost Shelter 27.0 27.1 27.2 27.3

Basics Theory of Low Cost Shelter Principles of Planning of Low Cost Shelter System of Development and Construction of Urban Spaces

27.0 Basics (i) Delhi is a Super Metropolitan City with a present population of 9.8 million which is expected to reach 13 million by the end of the century. The urban area of the city is spread over 600 sq. km. In the last three and a half decades, Delhi Development Authority, the only planning and development authority for the city developed and constructed directly or indirectly about 1000,000 residential urban spaces. In spite of the development of such a large number of residential spaces, the emergence of shanties (jhuggies) cluster has become a continuous process. In 1961 the number of shanties was only a few thousands, which increased in 1974 to about 200,000, came down o 20,000 in 1977 after rehabilitation of 150,000. Now again the figure has jumped to 270,000 families. The situation has become alarming and is increasingly making its presence felt. These clusters do not only provide proper living conditions to their inhabitants, specially the children, but also cause tensions and unrest in the minds of people living in neighbouring areas. What is most impressing is that instead of paying a meager amount of Rs. 8 per month per plot as licence fee, the shanty dwellers prefer to continue living in socially and hygienically unhealthy surroundings and environments. This problem is unfolding not only in Delhi but also in metropolitan and super metropolitan cities of the developing countries too. (ii) Shelter is the outcome of the basic needs of man. Basic needs are living, working and enjoying; or biological, physiological, psychological; or subjective, objective or primary, secondary and tertiary. Shelter is not merely a physical shell, but it engulfs a complete range of utilities and services (water, sewerage, drainage, power, telephone, gas liens etc.) with proper circulation for pedestrians, cyclists, light heavy vehicles; security, justice, recreation; also social infrastructure in terms of education, health with proper input of aesthetics in urban form. Housing is seem in many forms; (a) informal housing by various names, as ‘Callampas’ (Mushroom) in Latin America; ‘Bidonvilles’ in Francaphone Africa; ‘Cities of Misery’ in some places; ‘Jhuggi Clusters’ in India; ‘Squatter Settlements’ in many places’ (b) Sites & services; (c) Unauthorised, unintended and undesirable housing; (d) Blighted housing in slum areas; (e) Housing of different types and categories constructed by public, cooperative and private sector. 215 R.G. GUPTA -–1995 www.rgplan.org

Satisfactory housing is one which is satisfactory to both beneficiaries and users. There should be more involvement of local, physical and human resources to make available developed lands, building materials, construction of urban spaces and making arrangements for part of the financial resources from public, cooperative and public sector. (iii) Low cost shelter is that housing, which requires an investment ranging between 15-20% of the income of the family. At present day costs, the housing constructed by public agencies is not within the paying power of the economically weaker section of the society with income up to Rs. 1500 per month. Hence some basic changes have to be brought into the present system. (iv) Characteristics of low income people living in shanties (jhuggies). Details have been given in Chapter 20 (Physical and Socio Economic Surveys), and outlines are given under: (a) Reasons for growth in numbers of squatters • Easy availability and surety of a job. •

Lack of accommodation for the urban poor in their native towns/villages.



Fast rate of urbanization in large cities, which thus require more and more labour force.



Dubious role of local leaders/politicians motivated by voting considerations.



Lack of control on unauthorised purchase and sale of residential urban spaces.

(b) Most shanties clusters are on public land where it is easy to squat. These lands are generally meant for parks, playground, social infrastructure. They also squat along main traffic corridors roads and rails. (c) The density of population in these settlements is very high and can go up to 600 families per hect. i.e. 3000 persons per hect. or 1200 persons per acre. (d) Average size of a shanty in various shanty clusters varies between 6 to 9 sq. mt. (e) 65% of the population is male, showing that in the initial stages, the male population migrates and then their families follow. (f) 30% of the population is below 20 years of age, 65% between 21-50 years and 5% above 50 years of age. (g) 70% of the population is illiterate but now this percentage is decreasing and by the end of the century it may decrease to 50% (h) 75% of the total working force is labour class. 216 R.G. GUPTA -–1995 www.rgplan.org

(i) 65% of the population is Hindu, 34% Muslim and the balance 1% belongs to other religions. (j) 90% of the shanties are exclusively for residential use and the balance 10% for commercial or residential-cum-commercial use. (k) 80% of the population has migrated from Uttar Pradesh and the balance have come from Madhya Pradesh, Bihar, Rajasthan and West Bengal and only few from outside the country i.e. from Bangladesh. (l) Most of the workers work within a radius of 2 km of the cluster, as such, transport requirements are low. (m) Shanty clusters lack even the minimum physical and social infrastructure.

27.1 Theory of Low Cost Shelter Physical and Financial Resources-Components

Management of Urban spaces

Cooperative

Private

AFFORDABLE HOUSE

Development

Public

FINANCIAL

PHYSICAL

Planning

Low cost DU to the extent that it has tolerable specifications, size and minimum physical and social infrastructure based on socio-economic characteristics of cluster in question

Action on above points is possible Only IF (i) Principles of planning of low cost shelter* and (ii) System of development and construction of urban places*. Are sound and within affordability of the people at large.

* These components have been explained in the next two paragraphs 27.2 and 27.3.

27.2 Principles of Planning of Low Cost Shelter Following are the seven components: (i) Availability of land; (ii) Tenural rights; (iii) Comprehensive planning; (iv) Integrated development and construction; (v) Allotment of urban spaces; (vi) Maintenance of the complex and (vii) Information system. 217 R.G. GUPTA -–1995 www.rgplan.org

27.2.1 Availability of Land Most important criteria is the availability of acquired land. In 1975-76, in Delhi, about 140,000 plots of 21 sq. m were planned and developed on the already acquired land, in spite of the fact, that some of the sites were away from the work places i.e. against the planning principles, some were requiring change of land use and mostly were in outlying areas. Many professional and some section of the society criticized the location of some colonies namely-Khichripur, Kalyanpuri, Trilokpuri, Himmatpuri, Sultanpuri, Mangolpuri, Jahangirpuri etc., but there was no other alternative except to accept the acquired pockets of lands. In the last 20 years. Delhi Development Authority has planned and developed various resettlement colonies in about 2000 hect. of land with 240,000 plots and this was feasible due to availability of acquired land. This is the largest programme of sites and services ever done in any city of the world. For the future resettlement colonies of sites and services in Delhi, adequate land should be reserved in large schemes namely, Dwarka, Narela, Rohini Phase IV & V and other future schemes. 27.2.2 Tenurial Rights In the nineteen sixties and seventies, all plots, numbering more than 200,000 were developed and allotted on licence fee basis @ Rs. 8 per plot per month. This amount was hardly 1% of the income of the family of the target group. Even then, so far the people were not paying and the arrears were accumulated to a total of Rs. 200 million. It shows the inherent defect in the system. In the late seventies and early eighties, decisions were taken by the Ministry of Urban Development in consultation with the DDA to allot all plots including the earlier ones on hire purchase basis, in instalments, after giving an element of subsidy. The policy was formulated for allotment on hire purchase system to (i) original allottee (ii) unauthorised occupants and (iii) tresspassers. Details have been given in Chapter 23 (Urban Land Policy). Implementation of the policy however, has not yet begun. 27.2.3 Comprehensive Planning Many times, it has been classified that comprehensive plan includes physical plan and financial plan. Physical plan includes (i) proper base map based on latest aerial survey (ii) socio-economic, traffic and transportation and other surveys (iii) inference from various past studies and surveys (iv) layout plan showing different landuses, size of plots, circulation system, parking areas, landscape pockets etc. (v) engineering planning of services, water, sewerage, drainage, power, telecommunication, estimates, bill of quantities, notice inviting tenders etc. and (vi) detailed landscape planning. Financial plan includes input and output of financial resources from and to the public, the cooperative and the private sector based on new systems and tools such as ABC analysis, performance budgeting, zero budgeting, social accounting etc. Along the physical and financial plan, there has to be a proper write-up about system of coordination, integration, evaluation and 218 R.G. GUPTA -–1995 www.rgplan.org

monitoring of all the departments and of all the subjects of the plan. Cross subsidies play an important role in financial role in financial planning. This has been explained in Chapter 30 (Planning and Integrated Development-A Large Complex for One Million Population). 27.2.4 Integrated Development Each project big or small, has many components, as given in Chapter 48 (Planning Administration of Mega Cities, a case example of Delhi). Each project has to be integrated with respect to the following components: (i) Landuse, viz. residential, industrial (work spaces), commercial (shops0, institutional (education, health, security, etc.). (ii) Circulation via major roads, neighbourhood roads, service roads etc. at master plan level, zonal level and neighbourhood level. If any of the category of road is not constructed in time, the other roads are also not able to function properly. (iii) Mix of various income groups such as the economically weaker section, low, middle and high income group. Tenements for all different income groups have to be started simultaneously because each is complimentary to the other. (iv) Physical infrastructure consisting of various services viz. water, sewerage, drainage, power, tele-communication etc. have to be integrated within themselves and at macro, meso and micro level. (v) Social infrastructure concerning to education, health, security, justice, recreation, should be provided. 27.2.5 Allotment of Urban Spaces This is a difficult exercise. In the last three decades, Delhi Development Authority adopted a system of issuing a permission or possession slip at the site from where a squatter is shifted and an allotment slip at the site where he is resettled in the developed colony (resettlement colony). In theory or on paper the system looks very easy but it has led to many complications. Many slips are not genuine and lead to disputes for many years. Hence, the system needs to be modified to the extent that at the time of issue of the permission or possession slip, two full family photograph should be attested by the officer concerned, one copy should be handed over to the family and another copy of the same photograph should be maintained for official record so that whenever there is a dispute due to misuse, checks can be made with the photo record of the family. This system is viable only if the entire record is maintained on a computer system. 27.2.7 Information System By and large, there are, as yet, no established information system for planning, development and construction of urban spaces in any type of urban development, including low cost shelter. This implies that the advantage of experiences gained by of one authority or department is not used by the others. In the last two decades, Delhi Development Authority planned, developed and constructed maximum number of urban spaces for the economic weaker section of 219 R.G. GUPTA -–1995 www.rgplan.org

society in terms of development of plots, approximately 240,000, with physical and social infrastructure. Next to this is Bombay where development of sites and services is being done since 1985. Development of sites and services plots has also been done in other metropolitan cities as per details given in Chapter 28 (Environmental Planning Norms), Chapter 10 (Housing in Bombay), Chapter 11 (Housing in Madras) and Chapter 12 (Housing in Calcutta). Models on information system should be evolved after discussions on the subject in various Development Authorities, Town & Country Planning Departments, Housing Boards, Improvement Trusts, Schools of Planning & Architecture and individuals. The proposed system should be available on a computer system so that access to data becomes easy from various points of view for every one.

27.3 System of Development and Construction of Urban Spaces 27.3.1 Seven Stages of Development and Construction of Housing Units Housing should not be taken only as a quantitative product but also as a tool for the total development of human being in terms of raising the standard of life. The standard of life is visible in terms of his or her better education, health, security, shelter and employment. The system of development and construction of housing units for the poor is different than for MIG & HIG. The former type should be developed and constructed in seven stages through which a full-fledged colony with physical, social and economic infrastructure can be developed within a reasonable level of cost. These seven stages have been explained below: (i) Stage No. 1: Acquire land required for the project, prepare physical and financial plans showing all components of comprehensive planning i.e. physical, social and economic infrastructure. This plan should spell out the system of allotment or disposal of plots and built up units. The entire system should be finalised after discussions with the beneficiaries, non government organizations and cooperative societies. Once the plan is finalised and approved, it should be divided in two parts, the one, with 20% area and the second, with 80% of the area. The first part should be used for the purpose of complete development and then occupying the same while the second part only for rudimentary development useable/workable for an intermediate period of six months, but for the entire population. (ii) Stage No. 2: The first part, i.e. 20% of the area marked for permanent development, should be developed with complete physical and social infrastructure, as per final and approved specifications. Families shifting in this 20% of the area should be permitted to construct permanent houses as per specifications and type designs supplied by the authorities. A period of six months should be given to the beneficiaries, for the construction of dwelling units. This would be called phase one of the permanent development. The second part, i.e. 80% of the area should be developed only to the extent of levelling, dressing, plots of small sizes demarcation, temporary road formation, providing water supply (by deep hand pumps), sewerage system in soak pits and street lights at few points. People may start living in this part in shanty type 220 R.G. GUPTA -–1995 www.rgplan.org

structures after rudimentary development, since these temporary structures will have to be demolished later on. (iii) Stage No. 3: The laying of physical infrastructure in the second part i.e. 80% of the area should star without disturbing the people who have been shifted and living there. This is a highly technical job which should be undertaken by public authorities/departments and with public funds, without putting any burden on the beneficiaries. (iv) Stage No. 4: The construction of roads and storm water drains should begin in this stage with the help of the beneficiaries at least to the extent of labour. Technical knowhow for the system should be provided by public agencies/govt. departments. (v) Stage No. 5: Construction of plinth of plots and core units in the first part where habitation does not exist will be provided by the beneficiaries through loans obtained from financial institutions and the technical knowhow by public authorities. This system would be adopted in all the phases. (vi) Stage No. 6: Construction of housing units would be undertaken will labour, material and capital to be provided by the beneficiaries and only the technical knowhow would be from the public body i.e. government department. This activity would be carried out in five phases, each covering 20% of the area. Duration of each phase would depend upon the phasing of development. (vii) Stage No. 7: A part of the social infrastructure pertaining to health, education, recreation and social security should also be constructed by a public agency and the balance social infrastructure should be shared by registered societies and public bodies in due course of time. 27.3.2 Issues of Development and Construction of Urban Spaces for Low Income Groups (i) The system adopted by public authorities/agencies at present is to plan, develop and construct housing and then to allot it to the concerned people. The system should be changed to the extent that Govt. bodies should act as facilitators and not as executors and implementers except giving technical knowhow to beneficiaries. Mutual and self aid are valuable and unlimited resources and can bring down the cost of housing to a great extent in financial terms and also improve the quality of construction. (ii) Besides providing shelter, housing is also a source of employment, revenue through taxes, and economic development. Housing should be seen in broad perspective and should be taken as a basic instrument of development of personalities. Housing is more necessary for squatters than for middle and high income group, because the former does not have physical and financial resources to get it while the later has a lot of resources. (iii) A full proof system of identification of squatters need should be established, otherwise a situation of transfer of plots from original allottees to extraneous people and re-squating of original allottees on public land, starts and the process is repeated all over again, as had happened in Jahangirpuri a resettlement colony in Delhi. In fact this has become a common system in Delhi. To avoid this, a perfect system of identification of allottees should be established. 221 R.G. GUPTA -–1995 www.rgplan.org

(iv) There is a complete lack of proper physical, social, and economic surveys, to evolve and formulate policies on the subject. At national, state (regional), local (district) and city level, some system of proper information should be worked out and followed so that proper data is available at all levels and in time. Shifting of a squatter family from one place to another should be permitted only after entering the complete information in the information card maintained by the squatters as well as by the authorities. (v) There should be lesser emphasis on environmental improvement in shanty (squatter) clusters (E.I.J.J.) since these are interim arrangements and in any case this improvement does not lead to a improvement in the quality of life, and such expenditure becomes infructuous. (vi) In the last 18 years, DDA has developed more than 240,000 plots of sites and services and allotted them to squatter families. This has attracted more and more families and has increased migration from smaller urban centres and rural areas to Delhi. This is a cyclical problem since while the govt. wants to resettle the existing squatter families by giving them physical, social and economic infrastructure. This very action attracts more squatters and keeps alive the problems. (vii) The provision of a cut of date for the allotment of plot is debateable issue since on many occasion the date had to be extended for various reasons. This is an important issue and decision on the subject should be taken carefully. (viii) The system of collection of licence fee or rent or hire purchase instalments has so far not proved successful. In Delhi, beneficiaries do not even pay a licence fee @ Rs. 8 per plot per month which is hardly 1% of their average earnings. Hence some hard decisions have to be taken to formulate a system of collection of licence fee/rent. The collection of instalments should be through nongovt. organisations by making cooperative societies of residents of squatter colonies. (ix) No further encroachment should be permitted in resettlement colonies which are already developed and saturated. If any further encroachment takes place then Registered Societies, Welfare Associations and concerned Govt. Authorities should be held responsible and strict action should be taken. (x) New resettlement colonies should be located at proper locations based on regional criteria i.e. in priority towns, on the outskirts of urban limits and also in 15% of the areas of all the large projects, namely-big industrial estates, district centres, housing complexes, etc.

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PART FOUR

NEW MODELS OF PLANNING

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28 Environmental Planning Norms 28.0 28.1 28.2 28.3 28.4

Background Planning Norms Macro Level Planning Norms in Delhi, Bombay, Calcutta and Madras Recent Surveys of Urban Poor in Delhi Example of Sites and Services to Explain Environmental Planning and Planning Norms

28.0 Background The society is composed of four basic ‘elements’, viz. man, nature, networks and structure. The quality of life of a society can be improved with proper planning, development and management of six factors namely – (i) physical infrastructure (ii) social infrastructure (iii) economic infrastructure (iv) communication infrastructure (v) community upgradation infrastructure, and (vi) ecological infrastructure. To raise the standard of living of the society, various planning norms have been evolved from time to time, specially in the Delhi Master Plans of 1962 and 2001. These documents though comprehensive to a great extent, do not spell out any norms and standards of sub-standard areas where a majority of population of urban poor live. Academic inputs are required to teach planning and development of different types of infrastructure in sub-standard areas with three methods – curative, preventive, and development. Proper planning norms are required for all such areas. The present population of Delhi is 9.8 million which is expected to increase to 13 million by the end of the century and 20 million by 2010 A.D. Besides an unprecedented growth in human population, the vehicular population has reached a figure of 2.2 million, which is the maximum in the country and is a major cause of the high population level. Delhi spans 51.9 km. (maximum) in length and 48.48 km. (maximum) in width. If proper planning and development of urban spaces is not carried out by 2010 A.D. Delhi may extend from Ghaziabad in the east of Najafgarh Town and Bahadurgarh in the west, Sonepat in the north to Faridabad, Ballabhgarh and Gurgaon in the south. In such a case the area under urban limits of Urban Delhi would be 3000 sq.km. i.e. the entire area of Delhi Metropolitan. Development of any Urban area includes – (i) Development of physical infrastructure i.e. water, sewerage, drainage, power, tele-communication and gas supply (ii) social infrastructure i.e. education, health, social security, social justice, recreation and shelter (iii) economic infrastructure i.e. commercial centres, industrial estates and office complexes to create employment opportunities (iv) communication infrastructure i.e. inter and intraurban transport via roads and urban rails an (v) community upgradation infrastructure i.e. development of talent and skill of urban poor with the help of non-government organizations and cooperative societies. 224 R.G. GUPTA -–1995 www.rgplan.org

28.1 Planning Norms In different Master plans, Landuse Plans and Structure Plans of various cities in the country; various planning norms have been laid down, but most of them have been formulated based on the western standards without considering the fact that 80% of the population live in sub-standard areas. Hence, it is very important to formulate laws, zoning regulations and rules and regulations for areas inhabited by urban poor. Delhi has 75% of its population living in sub-standard areas, 1.4 million of whom are living in shanty clusters, 1.8 million in slum designated areas, 1.2 million in unauthorized regularized colonies, 0.5 million in unauthorized colonies, 1.2 million in resettlement colonies, 0.5 million in urban villages and one million in rural villages. Nowhere in the Master Plans whether of Delhi or any other city have standards about sub-standard areas, in terms of minimum size of plot, setbacks, FAR, standard for water supply, sewage disposal, power distribution, size of plots for social infrastructure i.e. schools, dispensaries, etc. have been given. For the first time in October, 1984, DDA formulated planning norms and standards for unauthorized regularized colonies and then in 1987, planning norms for urban villages. Details of norms are available in Chapter 38 (Housing in Unauthorised Regularised Colonies) and Chapter 35 (Housing in Urban Villages) respectively. 28.1.1 In the Delhi Master Plan 1962, the following planning norms for general planning and development about physical and social infrastructure are given. No specific norms are given for sub-standard areas. (i) (ii) (iii) (iv) (v)

Nursery school each for 1500 population Primary school each for 5000 population Senior Secondary school each for 7500 population College each for 1,50,000 population Parks, playground, open spaces from 5% to 16.4% of the neighbourhood, based on density (vi) Total public and semi public facilities i.e. social infrastructure from 12.4% to 37.3% of the area of the neighbourhood, based on density (viii) For the Walled City of Delhi, the standard of social infrastructure was further reduced to a great extent. (ix) Water supply at the rate of 80 gallons per day per capita (x) Power at the rate of 23 Mega Watt (MW) per 10,000 populations (xi) Sewage disposal at the rate of 64 gallons per day per capita (xii) Telephone lines at the rate of one for 10 people or two families. 28.1.2 The Delhi Master Plan - 2001, Proposes the Following Planning Norms of Urban Spaces as given in Chapter 42 (Planning of Shelter and Low Cost Specifications) On the basis of experience gained over 30 years, the Author clearly states that planning norms for new areas can never be suitably adopted for sub-standard areas. Hence, it is necessary to introduce ‘new norms’ and zoning regulations for sub-standard areas. 225 R.G. GUPTA -–1995 www.rgplan.org

28.1.3 Planning Norms for Urban Villages of Delhi The policy framework for planning of urban villages has been evolved after careful and comprehensive consideration of various components and factors of development of urban villages of Delhi keeping in view their contextual relationship with urban areas of Delhi. (i) (ii) (iii) (iv) (v) (i) (a)

(b)

(c)

(d)

(e)

(ii)

Permission for commercial areas. Permission for industrial use. Use of large properties of more than 500 sq.mt. Sanction of building plans. Collection of development charges.

Guidelines for permitting commercial use in an urban village Any commercial use within Lal Dora of an urban village shall be regularized if it was in existence before February, 1977 provided the structure fits in the approved layout plan. Any commercial use within a Lal Dora of a urban village shall be regularized if it is in existence even after February, 1977*, but after the receipt of development charges at the rate to be decided by the authority provided it fits in the approved layout plan. Any commercial use outside the Lal Dora of the village, but within the boundary of the approved layout plan can also be regularized it it existed prior to February, 1977, and is shown in the layout plan. Development charges should be at double the rate of development charges for residential use. Any commercial use in an urban village outside the Lal Dora but within the boundary of the approved plan, and, it after February, 197718 shall also be regularized subject to four times the development charges of residential use and if it is fitted in the layout plan. Fitting of structure in a layout plan should be seen with reference to the following three components of planning: • Parking • Road widths • Environmental problem with regard to type and intensity of land use, environmental problem. Guidelines for permitting industrial use in an urban village.

To formulate policy on the subject of permission for industrial use in urban villages, the following studies were conducted – (i) a detailed comprehensive socio-economic and environmental pollution survey of village Peeran Garhi a typical village in West Delhi; (ii) land use analysis of 46 urban villages as given in Appendix 35.2 of Chapter 35; and (iii) socio-economic survey of 52 urban villages as given in Appendix 35.3 of Chapter 35. (a) 18

Household and small industries as per names given in list of Appendix

February 1977 is a cut off date of regularization of commercial use

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35.5 should be permitted in residential use zone with the following guidelines: • • • • • •

The industry should be run by the owner of the premises Floor area for industrial use should not be more than 30 sq.mt. Number of workers should not exceed four Power load should not exceed 1 KW with single phase and 2 KW with 3 phases Household industrial units should not be considered for alternate allotment Loan should be provided to enable such units to run on regular basis.

Household industries may be permitted within or outside Lal Dora, and also within the approved boundary of the urban village if the structure fits in the layout plan. (b) Light and service industries, restricted by 10 workers at a time and a power supply not exceeding 5 H.P. should be permitted in industrial estates to be developed either on the periphery of the village or in some other suitable locations within one or two kin. Names of such industries are given in Appendix 35.7. Plots or built up sheds in these industrial estates should be allotted only to industrial units being shifted from the villages on pre-determined prices. (c) Noxious and hazardous industries should not be permitted in urban villages at any cost; Instead they should be closed down or shifted to developed industrial estates in Delhi Metropolitan Area or in National Capital Region’s priority towns. Names given in Appendix 35.6. (iii)

Use of large properties exceeding an area of 500 sq.mt. or more: (a)

A survey of properties exceeding 500 sq.mt. in 82 urban villages falling in the jurisdiction of DDA was conducted by the City Planning Wing of DDA sometime in December, 1984. The result of the survey is in Table 28.1. Table 28.1: Properties exceeding 500 sq.mt. in area Number of Large Properties of more than 500 sq.mt.

Zero 1-5 5-10 10-20 more than 20 Total 687

Number of villages

25 31 10 6 10 82

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(b) • • (c)

Proposed use: It is proposed to allow the users of these properties as per the following norms: Land use as shown in the approved plan of the village, Zonal Plan and Master Plan. Clearance from ‘Urban Land Ceiling and Regulations Act’. Number of dwelling units: The number of dwelling units and zoning regulations for a plot less than 4000 sq.mt. will be determined as per Master Plan of Delhi -2001, reproduced below: Table 28.2: Residential plot-plotted housing : zoning regulations

Sl. No

Area of the plot (sq.mt.)

1. 2. 3. 4. 5. 6. 7. 8. 9. 10.

Below 50 50 to 100 100 to 250 250 to 500 500 to 1000 1000 to 1500 1500 to 2250 2250 to 3000 3000 to 3750 Above 3750

Maximum ground coverage (%age) 75 66 60 50 40 33.33 33.33 33.33 33.33 33.33

FAR

No. of dwelling units

Max. height in mt.

150 180 160 140 100 83 83 83 83 83

1 2 3 3(4) 5(7) 5(7) 7(10) 9(13) 11(6) 13(19)

8 11 11 11 11 11 11 11 11 11

In case of residential plots above 250 sq.mt facing 24 m and above road, and where three storeys and a barsati was permitted, (as per density calculated in the sanctioned layout); (a) the FAR shall be increased by the maximum ground floor coverage (b) maximum height shall be 14 m and (c) the number of dwelling units shall be as given in the brackets. Other regulations shall be as per Master Plan – 2001 and given under: • Minimum size of the residential plot shall be 32 sq.mt. however, in case of Government sponsored economically weaker section schemes, size could be reduced further. The permissible maximum covered area on ground floor and FAR shall in no case be less than the permissible covered area and FAR for the largest size plot in the lower category. • •



The mezzanine if constructed shall be counted in the FAR. The basement in case of plotted development shall be under the ground floor and maximum under the extent of ground floor coverage subject to condition that minimum of 2 m distance shall be kept from the adjoining plot. For plots above 250 sq. m and up to 500 sq. m maximum of three servant quarters and for plots above 500 sq. m maximum of six servant quarters shall be permitted. 228 R.G. GUPTA -–1995 www.rgplan.org







Each servant quarter shall comprise of one habitable room of area not less than 11 sq. m floor area, exclusive of cooking verandah, bath room and lavatory. The maximum size of servant quarters shall be 20 sq. m. For plots above 250 sq. m parking provision shall be provided @ 1.33 car space per 100 sq. m of permissible built floor area. The covered parking area shall be included in FAR except when it is provided in the basement. Sanction of building plans in urban villages should be on the system, as given in Table 28.3.

Table 28.3: Proposed system for sanction of building plans in urban villages Sl. No. Item

(1) (2) (3)

Land policy Development charges

(4)

Area required for widening of road and public & semipublic buildings Building Byelaws for plots up to 4000 sq.mt.

(5)

(6)

(7)

8)

(v)

Land use

For plots more than 4000 sq.mt.

Building fee

Repair of old structures

Within Lal Dora

Outside Lal Dora but within boundary of the approved plan

As per approved plan Free hold Nil

As per approved plan

After payment of compensation No bye-laws except the following: -FAR:150 -No. of storeys :2 Not applicable

No fee As in the ‘City Area Policy’

Lease hold As in case of unauthorized colonies for residential and commercial use. Free of charge

Building bye-laws as given in Master Plan of Delhi-2001.

Zoning regulations as given in MPD-2001, with permission of group housing. As in case of normal colonies. As in the ‘City Area Policy’

Development charges and premium

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Table 28.4: Proposal for levying development charges in regularizing structures in urban villages With Lal Dora of urban village

Outside Lal Dora but within the approved boundary of urban village No development charges should be (i) No development charges to be charged if the charged from plots under residential structure is of residential use and is prior to the or commercial use situated in Lal date of notification of the land under Section-4 of Land Acquisition Act as well as before February, Dora of any of the urban villages. 1977 in case of residential use. (ii) Development charges will be charged if the structures are after the date of notification under Section-4 of Land Acquisition Act but before February, 1977 in case of commercial use and June, 1977 in case of residential use and Rs. 270 per sq.mt.* in case of commercial use, provided these structures are in the approved layout plan of the urban villages. There rates were calculated in 1983. (iii) Development charges will be are after the date of Land Acquisition Act as well as February, 1977 in case of commercial use and June 1977 in case of residential use but fitted in the layout plan at the rate of Rs. 270 per sq.mt.* in case of residential use and @ Rs. 540 per sq.mt.* in case of commercial use. * These rates were calculated in 1983 in a comprehensive report of ‘Problems & Solutions of Unauthorised Colonies’ and later on approved by DDA vide Resolution of October 1984, approved by DDA vide Resolution of October 1984

(b) Payment of premium Regarding payment of premium, a Group was constituted by the Ministry of Urban Development on May 29, 1982 for analyzing cases on Government land. The Group Recommended the recovery of premium from the properties on acquired land as given in para 38.5.2 in Chapter 38 (Housing in Unauthorised Regularised Colonies)

28.2 Macro Level Planning Norms in Delhi, Bombay, Calcutta and Madras 28.2.1 Delhi: During 1975-76, 1,43,263 plots of 21 sq.mt. each, spread across 968 hects. With 61% of the area earmarked for facilities and circulation, were developed with a provision of 90 plots for senior secondary schools, 136 for primary schools, 140 for nursery schools, three for colleges, 9860 plots for shops, five for general hospitals, 30 for dispensaries, three for fire stations, five for police stations, 55 for community halls, 28 plots for libraries, development of 500 parks and construction of 50 km of roads, 600 km of drains, 80 km of water supply lines and 14,000 lavatory seats. Physical infrastructure provided in these 16 large colonies developed up to 1977 was on community basis where as the social infrastructure was as per Master Plan norms. In the last 14 years the number of residential units have 230 R.G. GUPTA -–1995 www.rgplan.org

increased by 40% in terms of addition of new shanties (jhuggies) in the right of ways of roads and in social infrastructure sites. This has strained the available physical and social infrastructure. Norms of social infrastructure adopted in these colonies have been proven adequate, but physical infrastructure which has provided on community basis is now being changed on individual basis. Details on the subject have been given in Chapter 34 (Physical Planning of Resettlement colonies). 28.2.2 Bombay: Bombay Metropolitan Region is spread over a total area of 4363.5 sq.km. with 27 urban centres and 1096 villages. Its urban population in 1981 was 9.7 million which is projected to increase to 12.9 million in 1991 and 16.2 million in 2001 A.D. Details of various schemes have been given in Chapter 10 (Housing in Bombay). No specific scheme of allotment of alternate plots for shanty dwellers is there, although a large scheme for the development of 85,000 sites and services is under implementation. Of the 85,000 plots, 40,000 are in Bombay Municipal Corporation and 25,000 units in Kalyan Metropolitan Corporation and Thane Metropolitan Corporation and 20,000 units in New Bombay. The total cost of the project at 1985 price levels was Rs. 1330 million. There is a scheme for the construction of 20,000 housing units for various income groups along with physical and social infrastructure at CharkopKandivilli in total area of 93 hect. As per a policy decision, the physical infrastructure along Divisional Plan (D.P.) Roads (18 mt. and above) would be laid and the cost borne by Bombay Municipal Corporation (B.M.C.) and cost of other infrastructure would also be loaded on the scheme. The plots have been developed in clusters of 35 plots with a break up of six plots of 40 sq.mt. each and 29 plots between of 25-30 sq.mt. In this cluster, 70.8% has been taken for plotted development, 9.5% for green area and 19.7% for circulation purposes. Many clusters have been developed and constructed upon and the residents are satisfied with the design and spaces. 315 such modules have been grouped to make a large colony in a total area of 93.24 hect. with a break-up of 67.45% disposeable land and 32.52% (24% for circulation and 8.52% for recreational) non-disposeable. Only 6.24% land has been provided for social infrastructure in the ‘complex’. Percentage of social infrastructure is much less that of Delhi. 28.2.3 Calcutta: Calcutta Metropolitan Area is in an area of 1390 sq.km. comprising of three municipal corporations, namely – Calcutta, Howrah and Chandanagore, two notified areas, 72 non-municipal urban units and 400 rural mauzas. The population of Calcutta as per the 1981 census was about 8 million, out of which 45% was of the EWS category and 26% of the LIG category. As per the same census, 3.028 million people were living in 5000 slum clusters (bastis) which has higher growth rate of population as compared to other areas. These clusters (bastis) have been improved environmentally and are now permanent settlements. In Calcutta, four schemes of sites and services / housing units for economically weaker section (EWS) and Low Income Group (LIG) are being 231 R.G. GUPTA -–1995 www.rgplan.org

implemented. Details of which have been given in Chapter 12 (Housing in Calcutta). A brief explanation of the four schemes is given below: (i)

(ii)

(iii) (iv)

B.D. Area Development Project: This project, in an area of 120 hect. is for the development of 6826 plots for sites and services for a total population of 40,000, thereby implying a density of 334 persons per hect. or 132 persons per acre. EWS & LIG, component in this scheme is 67%. East Calcutta Area Development Project: This project, covering 6751 plots with 50,000 population is in an area of 258.8 hect. with 76% component for EWS & LIG. East Calcutta Extension Project: It is in an area of 30.8 hect. for 20,000 population with 65% components for EWS & LIG. West Howrah Area Development Project: It is in an area of 360 hect. with construction of 8580 units for EWS.

28.2.4 Madras: Madras Urban Agglomeration is in an area of 572 sq. km. with 4.3 million population as per the 1981 census. Out of these 1,71,000 families live in slum areas. During 1970-85, i.e. in a period of 15 years, 77,050 housing units were constructed, of which 52,800 were for EWS, 12,000 for LIG and 12,250 for MIG. Details have been given in Chapter 11 (Housing in Madras). Madras Urban Development Projects of sites and services were initiated in 1977 with the assistance of the World Bank. Outlines of the eight schemes / project are given in the following tabular statement:

Table 28.5: Resettlement schemes in Madras Scheme

Arumbakkam Villivakkam Kodugaiyur Mogappair(East) Mogappair(West) Moduravoyal Manali I Manali II Total

Area (hect.)

Total units

34.20 71.55 84.87 74.13 73.00 26.70 40.00 38.00 442.45

2334 3751 6039 5062 5555 2048 2947 2652 30388

Gross density (persons per hect.) 375 288 391 376 419 422 405 384 3060

EWS units 1721 2242 4246 3418 3930 1344 1989 2058 20948

The typical landuse pattern followed in Madras in these schemes is 54% residential, 0.5% industrial, 12.5% institutional, 5% commercial, 8% for parks, playgrounds, open spaces and 20% for circulation. In Delhi, landuse break-up for sites and services planned and developed in 1975-76 was residential plotted development 38% and the balance for non-remunerative purposes. 232 R.G. GUPTA -–1995 www.rgplan.org

70% of the plots are for EWS with sizes varying between 35 to 40 sq. mt., 25% for Low Income Group, 3% for Middle Income Group and 2% for High Income Group. In Delhi, size of plot has been reduced to 18 sq. mt. for economically weaker section of the society. Madras has 1413 slums with 1,70,000 families living there in shelter, of which 67% are thatched, 20% semi-pucka and 13% pucka. A population of 8,77,262 was living in these pockets as per the 1987 surveys, 67% of the huts were occupied by the owners and 31% were on rent.

28.3 Recent Surveys of Urban Poor in Delhi A comprehensive survey of 2,27,117 households having a population of 1.1 million was conducted in May, 1989 by ‘Urban Basic Services Unit of Delhi Admn.’ with regard to health, sanitation and hygiene services viz.- (i) maternity and child welfare centre (ii) (dais) mid-wives (iii) private practitioners (iv) Govt. health workers (v) private health workers (vi) shallow and deep hand pumps (vii) latrine seats (viii) water taps (ix) dhalao (x) Septic tanks (xi) Sullage points near hand pumps (xii) Scavangers safai karamcharis (xiii) water tankers (xiv) Pour flush (sulabh shauchalayas). The results have been given in Chapter 1 (Shelter at Global Level). These surveys showed that the standards of facilities available in these shanty (jhuggi) clusters are far from satisfactory.

28.4 Example of Development of Sites & Services to Explain Environmental Planning and Planning Norms 28.4.1 Physical Parameters (i)

The size of the dwelling unit is 27 sq.mt. with 18 sq.mt. to be constructed on the ground floor and 9 sq.mt. on the first floor. These plots would be arranged in clusters of 5, 6 or 7 units. Detailed designs of the cluster and residential unit would be taken from technical consultants and would be supplied to plotholders / cooperative societies free of charge. The entire development and construction would be carried out in a planned way involving co-operative societies and non-government organizations. Design of the cluster with one unit has been given in Map 28.1. (ii) Physical infrastructure (a) Services • water supply @ 30 gallons per day per capita • sewage @ 24 gallons per day per capita • power @ 10 MW per 1,00,000 population • storm water drainage as per site requirements (b) Circulation system • Master Plan roads – 60 mt., 45 mt., and 30 mt. as shown in the Master Plan or Zonal Plan. • Zonal Roads – 24 mt. and 18 mt. as shown in the Zonal Plan or in integrated plan. 233 R.G. GUPTA -–1995 www.rgplan.org

• •

Approach road to clusters – 9 mt. Entry to the cluster and to individual plots – 3 mt. and 1 mt. respectively. One mt. path can be provided only where one side of it abuts on a park. (c) Tree plantation would be at the rate of one tree per family. These would be planned and maintained by the society and individuals. Technical know-how would be given by the public body to the society and beneficiaries through non-government organizations. (iii) Social infrastructure This would be provided on norms, worked out on the basis of Master Plans of Delhi and also adopted in other metropolitan cities namely- Bombay, Calcutta and Madras. These norms are given under: (a) One primary school in 3000-4000 sq.mt. each for 8000-10,000 population with a provision of double shift. (b) One integrated senior secondary school in 1.2-1.6 hect. each for 20,000 population with a provision of double shift. (c) One community hall/barat ghar/library, each in 1,000 sq.mt. for 40,000 population. (d) One clinic-cum-dispensary in 500 sq.mt. each for 25,000 population. (e) One police post in 500 sq.mt. each for 25,000 population. (f) One small shop between 8-12 sq.mt. each for 12-15 families.

28.4.2 Quantum of Land For the development of 80,000-1,00,000 plots, of 18 sq. mt. each and 27 sq. mt. built up area in two floors, a total area of 800 hect. is required at a zonal density of 125 plots per hect. (50 plots per acre) or gross residential density of 250 plots per hect.. (100 plots per acre) or net density of 500 plots per hect. (200 plots per acre).

28.4.3 Identification of Lands Pockets of land would be identified from acquired lands in –(i) Dwarka (ii) Dhaka-Dhirpur (iii) Narela (iv) Rohini Part-III and from new lands to be acquired. Pockets of these plots would be integrated with pockets of lands for Low Income Group, Middle Income Group, High Income Group and other land uses namely – commercial, institutional and circulatory. The entire system would be on the basis of ‘Integrated Planning’.

28.4.4 Planning Physical, financial and economic planning along with architectural, engineering, landscaping and other details would be carried out by Slum Wing, Municipal Corporation of Delhi, with the help of technical consultants of different disciplines. The prepared plans could be discussed in various forums, workshops and conferences, to the extent of getting objective comments and not subjective comments. 234 R.G. GUPTA -–1995 www.rgplan.org

28.4.5 Involvement of Other Organisations The development of any colony includes laying and making available of physical, social and economic infrastructure at macro, meso and micro level with fund from the public, cooperative and private sector. For this, various organizations/departments and authorities, namely- ‘Delhi Water Supply & Sewage Disposal Undertaking’, ‘Delhi Electric Supply Undertaking’, ‘Conservancy Department of MCD’, ‘Planning & Finance Department of Delhi Govt.’, Lands & Building Department of Delhi Govt., Directorate of Education, Directorate of Health, Delhi State Industrial Development Corporation, Delhi Civil Supply Corporation, Delhi Agricultural Marketing Board, etc. would be involved from the initial planning stage, and would be detailed out and coordinated by the DDA. 28.4.6 Constitution of Cooperative Societies These would be formed / registered after making rules and regulations to involve beneficiaries on the principles of persuasion and understanding with the help of ‘non-government’.

28.4.7 Tenurial Rights In the past, the Delhi Development Authority had adopted systems of handing over plots based on licence fee at the rate of Rs. 8 per hect. per month. Now, the plots should be given on hire purchase system perpetual leasehold basis, as detailed out in Chapter 23 (Urban Land Policy). The system based on licence fee has not proved successful. In the last 15 years arrears to the extent of Rs. 200 million have been accumulated.

28.4.8 Financial Parameters Based on 1991 Level (i) Assumptions/planning decisions to be taken • Cost of acquisition of raw land including cost of rehabilitation of affected families: Rs.1.6 million per hect. or Rs. 160 per sq.mt. • Cost of laying trunk infrastructure i.e. contruction of water treatment plant, electric sub-stations, trunk lines, high tension lines, large storm water drains would be met from the plan funds of Delhi Govt. i.e. with public funds. • Price of land to be charged from different income groups would be as given under based on the assumptions that cost of developed land including cost of acquired land is X • Economically Weaker Section (including shanty dwellers): 0.5X. • Low Income Group = 0.75X. • High Income Group and commercial use at local level: 3X or more. (losses from EWS & LIG would be compensated by profits to be earned from HIG and commercial use). 235 R.G. GUPTA -–1995 www.rgplan.org

(ii) Cost of construction of social infrastructure would be as follows: • • • • • •

Amount (Rs. million) Primary school 5.0 Integrated Sr.sec. school 10.0 Community hall/Barat ghar/Library 1.0 Clinic-cum-dispensary 1.5 One Police post 1.0 Cost of construction of social infrastructure would be compensated from the profits from commercial use at city level. In this case, planning of commercial pockets should be linked with development of slum pockets.

(iii) Planning and development would be based on integrated system. • Trunk development would be undertaken by respective departments of Delhi Govt. and MCD. • Internal development along with construction of social infrastructure would be done by the DDA/MCD. • Peripheral development would be undertaken by DDA/MCD. (iv)

(a) (b) (c)

(d)

Economics of development and construction of 20,000 dwelling units for a population of 1,00,000 along with physical and social infrastructure, as per details given in concerned paras. These results are based on a density of 250 plots per hect. or 100 plots per acre, and for this an area of 80 hect. is required at zonal level. At city level, double the area would be required. This entire calculation is based on the thinking in the year 1991. Amount million) 128.0 240.0

Cost of acquisition of 80 hect. of land @ Rs.160 per sq.mt. Cost of development of 80 hect. of land @ Rs.30 lakh per hect. or Rs.300 per sq.mt. Cost of construction of social infrastructure to the extent of 120.0 10 primary schools, each of Rs.5 million ,5 integrated sr.sec.schools, each of Rs.10 million, 2.5 community hakk/barat ghar of Rs.1 million, 4 clinic-cum-dispensaries each of Rs.1.5 million, 4 police posts each of Rs. 1.0 million and other miscellaneous facilities, street furniture, etc. costing Rs. 7.5 million Sub Total 488.0 Cost of construction of dwelling units, each of 18 sq.mt., @ 540.0 Rs.1500 per sq. mt. i.e. Rs.27,000 per dwelling unit in the first phase and 9 sq.mt. whenever the owner’s affordability would allow. Grand Total

(v)

(Rs.

1028.0

Actual cost of development and construction per unit

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A total amount of Rs. 1028 million is required for the development of land, construction of social infrastructure and dwelling units for 20,000 families or 1,00,000 population. This is at the rate of Rs. 10280 per head or Rs. 51400 per family. This excludes the cost of trunk infrastructure and major road.

(vi)

(a)

Cost of land (per unit)

Rs. 6400

(b)

Cost of development of trunk infrastructure

(c)

Cost of development (per unit)

Not calculated as it will be funded from Plan Funds Rs. 12,000

(d) (e)

Cost of construction of social infrastructure(per unit) Cost of construction of one dwelling unit Sub-Total:

Rs. 6,000 Rs. 27,000 Rs. 51,400 + cost of trunk infrastructure per unit

Proposed subsidy per unit would be as given in Table 28.6 Table 28.6: Proposed subsidy per unit

S. No.

Use/Activites

(1) (2)

Cost of trunk infrastructure Cost of land = 6,400 + 12,000 = 18,400 and development Social Infrastructure = 6000 Sub Total = 24400 Construction of dwelling units = 27000 Grand Total = 24400 + 27000 = 51400 + trunk infrastructure

(3)

(4)

Public funds Plan fund 12120

3000 15120 15120

Amount in Rs. Pvt. Funds Cross (beneficiaries) Subsidy 1680 4600 (Integrated development) 3000 1680 27000 (In instalments) 28680

7600 7600

Note No: 1. Trunk infrastructure would be laid by Delhi Government or Municipal Corporation of Delhi from plan funds. 1. Rs. 15120 from plan funds would be with a break up of Rs. 5000 as grant from the Government and Rs. 10120 from Project Owning Authority. 3. Delhi Development Authority would provide a cross subsidy of Rs.7600 per unit. 4. The beneficiaries has to pay Rs. 1680 as contribution towards land and Rs. 27000 for the entire cost of dwelling unit. 5. Cost of dwelling units would be paid in installments with a breakup of Rs. 5000 at the start of the construction and the balance in 20 years with a rate of interest of 12%.

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29 Resettlement colonies Infrastructure Facilities

29.0 29.1 29.2 29.3

Background Squatters/Resettlement (JJ) Colonies Developed Prior to 1975 Squatters/Resettlement (JJ) Colonies Developed During 1975-77 Action Taken During Late, 70’s

29.0 Background Squatting on public land is a common phenomenon, specially in the metropolitan cities of India and is maximum in the capital. In Delhi, there were 12749 squatter families in 1951, 22415 in 1956, 42814 in 1961, 77693 in 1966, 1,15,961 in 1971, 1,41,755 in 1973 and 1,50,000 in 1975. Of the squatters, 57368 families were resettled by 1975 in 18 colonies developed by MCD/DDA, details as given in Appendix 29.1. During 1975-77, about 1,48,000 more families were settled, after developing plots in 16 resettlement colonies, details as given in Appendix 29.2. A scheme for the removal of shanty was initiated as early as 1958 on the recommendations of an Advisory Committee appointed for the purpose. A detailed note based on the recommendations of the Advisory Committee was presented to the Cabinet and it was approved in parts, on 26 December, 1959 and 4 November 1960. The scheme was modified and again approved by the Cabinet vide its order No. H-11147(12)/61-H1 dated 12 November, 1962. Since then the scheme has been modified as and when required due to circumstances and demand of the time. Major modifications have been in terms of (i) size of plots; (ii) eligibility of squatters; (iii) extent of infrastructure to be provided; and (iv) cost of a developed plot. The cost of development of plots was increased from time to time. This chapter has been divided into the following three parts: (i) (ii) (iii)

Infrastructure facilities provided in squatters/resettlement colonies developed prior to 1975. Infrastructure facilities provided in squatters/resettlement colonies developed between 1975-77. Action taken during late 70’s.

29.1 Squatters/Resettlement (JJ) Colonies Developed Prior to 1975 Prior to 1975, 18 JJ colonies/resettlement colonies were developed by DDA / MCD. These colonies covered an area of 598.4 hect. and had 49019 plots of 239 R.G. GUPTA -–1995 www.rgplan.org

21 sq.mt. 3845 plots of 67 sq.mt. Besides the plots, 4504 tenements were also constructed in these colonies as per details being given in Appendix 29.1. Some of these colonies did not have adequate provision for sites for various community facilities as per Master Plan standards of that time.

29.2 Squatters/Resettlement (JJ) Colonies Developed during 197577 (i)

Background: As per socio-economic survey, conducted by the Town & Country Planning Organisation; sometime in 1973-74, it was estimated that in the beginning of 1975 there were about 1,50,000 squatter families living in more than 1400 clusters spread out in various parts of Delhi. Most of these clusters existed in parks, playgrounds and open spaces and along railway lines and major transport routes. A number of them were located on the Ridge Area, and along the banks of River Yamuna. As per details given in ‘Environmental Facilities Index Value’ (i.e. after studying the position of water, community latrines, street light, brick pavement and surface drainage), the physical environs of these clusters were very poor. The index values of physical indicators have been given in Chapter 20 (Physical and Socioeconomic Survey). As per these values, 51.5%, settlements accounting for 42.3% of the population had a score of 24 or less out of 100, which indicates a highly deprived nature of physical, social infrastructure and minimum environmental facilities. Little bit facilities existed were also grossly inadequate to serve the needs of the population living there. 5.9% of the population had a score of zero which implics that no facilities or infrastructure existed there. Most of the clusters were situated on public lands and many of DDA’s prestigious schemes, such as River Front Development, Bhikaji Cama Place (R.K. Puram District Centre), Development of Ridge Area, Master Plan Roads along railway tracks, water treatment plants etc., works were getting impeded. Considering the poor, unhygienic and intolerable environments of these clusters, it was decided by the higher authorities to prepare physical layout plans for resettlement of all the squatter families in various parts out 25,000 residential plots in the first phase and 10,000 residential plots in the second phase for the economically weaker section, low income group and middle income group people. Like this, there was a proposal to develop about 185,000 plots, 150,000 plots of 21 sq.mt., 25,000 plots of 36 sq.mt. and 10,000 of 70 sq.mt.

(ii)

Area requirement and landuse break-up at the macro level: An area of about 1000 hect. was needed to resettle 150,000 families at a gross density of approximately 150 plots per hect. or 60 plots per acre. Seventeen resettlement colonies covering a total area of 987.7 hect. were planned, of which one colony, namely – Said-ul-Jaib (19.7 hect.) was dropped due to a stay order on the land. Hence, only 16 colonies covering a total area of 968 hect., consisting 1,48,262 plots, each of 21 sq.mt. could be planned, developed and disposed of . (Details given in Appendix 29.2) 240 R.G. GUPTA -–1995 www.rgplan.org

Of the total gross residential area planned for these colonies, about 53% was earmarked for community facilities such as parks, play-ground, roads and pathways and 7.25% for commercial facilities and the balance for plotted development. (iii)

Criteria to locate new resettlement colonies: At that time, there was hardly any acquired land available within Ring Road and Outer Ring Road of Delhi for the development of resettlement colonies. The only solution was to develop these colonies beyond Outer Ring Road / on the periphery of the city. Even otherwise the location of these colonies on the city fringes was, as per 1970 decision taken by Govt. of India, mainly to discourage the squatters. After studying the land use pattern of Delhi Master Plan of 1962, the resettlement colonies except three, namely – (i) Gokalpuri, (ii) Patparganj Complex, (Khichripur, Kalyanpuri and Himmatpuri), and (iii) Sultanpuri, were planned in residential areas. These three complexes were beyond urban limits of Delhi and with the following considerations: (a) These areas were just touching the 1981 urban limits as per MPD-62. (b) These were near the proposed big industrial centres viz. Rohtak Road Industrial Area, Patparganj Industrial Area and G.T. Karnal Road Industrial Area. Only Gokalpuri, resettlement colony which is a small colony, is not near an industrial area or work place. (c) These areas were anyway getting urbanized by an urban sprawl having hundreds of unauthorized built up, one-room semi-pucca houses. These houses were coming up with unorganized street pattern with few roads, no proper physical infrastructure i.e. water supply, sewerage, electricity, drainage system, meaning thereby that areas were going to be urbanized. The only difference was whether in a planned way or in an unplanned way. Out of the two alternatives, planned way was thought to be better and accordingly action was taken. (d) Before 1975 also, MCD had planned few resettlement colonies outside urban limits. This was to discourage squatters from entering and settling in central areas of Delhi. The name of these colonies are Tigri, Hastal and Nangloi. These were developed by the MCD during 1966-68

(iv)

Planning concept of these 16 colonies: A cluster of 2500 people was taken as the basic planning unit at the lowest level. Each cluster has 500 plots of 21 sq.mt. (3 mt. x 7 mt.) and community facilities. Each cluster is in an area of 2.1 hect. At the second level, two clusters were combined, and at the third level, for clusters. Of the total combined area of 13.2 hect. of four clusters, 32% was marked as plotted area, 13% for metalled road, 15% for pathways, 20% for community facilities, 16% for parks, playgrounds and open spaces and 4% for commercial use. At the fourth level, facilities such as cinema, theatres, fire stations, police stations, colleges, hospitals etc. were provided as per Master Plan standards. Details of planning system has been given in Chapter 34 (Physical Planning of Resettlement Colonies). 241 R.G. GUPTA -–1995 www.rgplan.org

It is further clarified that in resettlement colonies, DDA has provided and laid down better standards for infrastructure and community facilities than those prescribed in schemes formulated by government agencies and the Delhi Master Plan. This is very clear in the paragraphs given below. (v) (a)

Infrastructure and Community facilities: Comparison between infrastructure required for ineligible squatters as per government approved scheme and provided/laid down by DDA: Further details of each resettlement colony and comparison between infrastructure required as per government’s order and provided/laid down by DDA as on March, 1977 are given in Appendix 29.3. It is very clear from the Appendix that the amount of infrastructure provided/constructed in each colony is more than specified standards. Till that date DDA had incurred an expenditure at the rate of Rs. 860 per plot and a further Sl.. No. 1.

Item

2.

Water Supply

One hand pump for 40 families; one water hydrant for 80 families or at an average of one water point for 60 families if both the facilities are combined

One hand pump for 31 families and one water hydrant for 70 families or at an average of one for 52 families if both the facilities are combined.

3.

Latrines

One fro 10 families

One for 7 families excluding temporary ones.

4.

Bath rooms

One for 12 families

This facility was dropped.

5.

Street Lights

Kerosene or electric

6.

Surface drains

Strom water drains

6635 electric light point were provided in these colonies Local drains and trunk drains as persite needs.

7.

Schools and medical facilities including of shopping

As per sites earmarked in the layout plans

Size of plot

As per govt. order for ‘ineligible Squatters’ 21. sq.mt

Provided/laid down by DDA 21 sq.mt.

Sites were earmarked in the layout plans, as per Master Plan standards. Buildings for 10 higher secondary schools, 29 dispensaries, five community halls, 100 fair price shops, were constructed at that time. Other plots were left for future construction of buildings.

amount of Rs. 204 per plot was committed. From the amount spent, 4594 hand pumps and 2038 water hydrants were installed, 4512 temporary latrines and 10307 permanent latrines were constructed and the construction of another 7585 permanent latrines was under progress. A length of 223 km of roads was constructed, 52 tube wells were bored another 11 were under progress, 14 pumps were installed and 6635 electric street light points were provided. Details of infrastructure in individual colonies are given in Appendix 29.4.

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(b) Comparison between infrastructure required as per Govt. scheme for eligible squatters and provided/laid down by the DDA. Sl. No. 1.

Item Size of plot

As per govt.’s order for ‘Eligible Squatters’ 21. sq.mt

Provided/laid down by DDA 21 sq. mt.

2.

Water

One hand pump for 20 families; one water hydrant for 40 families or an average of one for 30 families, if both the facilities are combined

One hand pump or water hydrant for 22 families after combining both the facilities

3.

Latrines

One for 5 families

4.

Bath rooms

One for 6 families

One for 7 families (including temporary seats), 10370 permanent seats and 4512 temporary seats were constructed and 7585 were under progress, leading to a total of 22404 latrines seats. 7256 more seats were required, at that time. This facility was dropped.

5.

Street Lights

Kerosene or electric

6635 electric light points were provided on the periphery of these colonies

6.

Surface drains

Strom water drains

Local and trunk drains were constructed

7.

Schools and medical facilities

As per sites earmarked in the layout plan

Number of sites provided were adequate and were per Master Plan standards.

It is very clear from the comparison that the infrastructure/provision of sites for community facilities as well as environment of the new resettlement colonies was much better than the situation that was in existence in earlier shanty (jhuggi) clusters. (c)

Comparison between infrastructure existing on sites of shanties (jhuggi) clusters (before their clearance) and provided in the newly developed resettlement colonies. Data regarding existing facilities in these settlements has been taken from the surveys conducted by the Town & Country Planning Organisation in 1973. Sl. No. (1)

Infrastructure and Social facilities in existence in settlements before their clearance Water Hydrants 71.8% of the settlements were lacking in water taps, as per a random sample survey, conducted for 103 settlements by TCPO. There were only 140 public hydrants of which 6 were out of order. On an average

Infrastructure and facilities provided in the newly developed resettlement colonies by DDA. One water hydrant for 70 families

243 R.G. GUPTA -–1995 www.rgplan.org

(2)

(3)

(4)

(5)

(6)

one tap was serving 561 persons or 120 families Hand Pumps 58.3% of the settlements did not have any hand pumps at all and in the remaining the position was as under: No. of persons per hand pump 50 & above 51 to 100 101 to 200 201 to 300 301 to 400 401 to 500 501 & above Number of lavatory seats 68.9% of the settlements had no latrines and in the remaining, the position was as under: No. of persons per lavatory seat 14 and below 15 to 29 30 to 44 45 to 59 60 to 74 Above 75 Number of bath rooms 90.3% of the settlements were lacking bath rooms and in the remaining the position was as under: No. of persons per bath room 26 to 50 51 to 75 76 to 100 above 100

One hand pump for 31 families

Percentage of settlement 6.8 11.7 13.6 3.9 1.9 0.9 2.9 One latrines seat for 7 families or 35 persons.

Percentage of settlements 4.9 6.8 4.9 2.9 1.9 9.7 Provision of community baths was dropped since the rear courtyard of the house were having a setback of 1.5 mt. and could be used for this purpose Percentage of settlements 1.9 2.9 1.0 3.9

Street lighting 63.1% of the settlements were having no street light and in the balance position was as under:

6,635 electric light points were provided in all the colonies, specially at the two corners of each pedestrian’s path and on main roads.

Area per electric pole (sq.mt.) less than 600 601 to 1000 1001 to 1400 1401 to 2000 Above 2000 Paved streets 65% of the settlements were having no brick pavements or pucca streets and in the balance position was as under: Percentage of area served by paved streets

Percentage of settlements 10.7 9.7 4.8 3.9 7.8 223 km of roads were constructed at a cost of Rs. 31.7 million and works of Rs. 5.19 million were in hand in March, 1977 Percentage of settlements

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(7)

Up to 25 25 to 50 51 to 75 76 to 100 Storm water drains 68.9% of the settlements were having no drains at all in the balance, the position was as under: Percentage of area served by drains Up to 25 26 to 50 51 to 75 76 to 100

1.0 6.8 11.7 15.5 Surface drains were constructed in all the colonies by spending an expenditure of Rs. 10.4 million and works in hand were Rs.2.94 million, and an additional amount of Rs. 5.36 million was needed to complete the deficiencies. Percentage of settlements 5.8 3.9 8.7 12.6

(d) Comparison between number of sites for community facilities required as per Master Plan standards and provided by DDA; Number of educational and shopping facilities in resettlement colonies has been given in Appendix 29.5. The facilities provided in 16 resettlement colonies include three sites for colleges, three for hospitals, eight for cinemas, three for fire stations, five for police stations, 25 for police posts, 65 for higher secondary schools, 136 for primary schools, 141 for nursery schools, 51 for dispensaries, 33 for community halls/libraries, several sites for religious buildings and milk booths, sites for 11 KV sub-stations (as required by DESU), 8960 for shops measuring about 10 sq.mt., sites for dhobi ghats, few of Industrial Training Institute, and few of Khadi Gramodhyog. A comparison between the number of facility sites required as per the Delhi Master Plan-62 and provided by the DDA is given in Appendix 29.6. The responsibility for construction of buildings on these sites rests with different departments of Government of National Capital Territory of Delhi (GNCTD) and MCD, which should expedite the action to complete buildings on these plots. As an interim measure, DDA has constructed 10 senior secondary school buildings, 29 dispensaries, one medium size hospital, five community halls and 55 TV rooms.

29.3 Action Taken During Late 70’s All plans prepared, and development carried out up to February, 1977 were discussed in various meetings at various levels of the Ministry of Urban Development, DDA and Government of National Capital Territory of Delhi. Time and again, it was stressed that imcomplete development should be completed, and possibilities to provide individual water, sewer and electric connections should be explored. A strong view on increasing the size of a plot from 21 sq.mt. to at least 32 sq.mt. was also advocated, but nothing was finalized. Other important decisions taken during the period were as under: 245 R.G. GUPTA -–1995 www.rgplan.org

(i)

(ii)

(iii)

The Ministry of Urban Development, vide their order dated 15 March, 1979, decided to accord approval for the grant of perpetual lease to the allottees of all the colonies, whether pre-1975 or 1975-77. Though the decision was taken, no modalities were worked out. The result being that neither allottees paid any license fee nor any premium during that period. The then Ministry of Urban Development vide their Order No. OK19011/9/77/DD-IIB, dated 22 December, 1977 and 3 April, 1978, transferred the maintenance of these resettlement colonies to MCD, and the development of new plots, including their allotment to DDA. On 29 September, 1977 Delhi Development Authority requested the Ministry of Works & Housing to increase the ceiling on cost of developed plot from Rs. 1200 to Rs. 1860 and an increase in the size of the plot from 21 sq.mt. to 32 sq.mt.

246 R.G. GUPTA -–1995 www.rgplan.org

Appendix 29.1 Colonies which were Developed for Resettlement of Squatters by DDA/MCD up to 1975

S.No

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18.

Name of resettlement Scheme

Area in Hects.

Tigri Pandu Nagar Madipur Hastal Nangloi Wazirpur Seelampur Seemapuri Sunlight Kalkaji Srinivaspuri Garhi Village Madangir Moti Bagh Naraina Najafgarh Road M.B. Shadara Ranjeet Nagar Total

10.4 18.0 75.6 12.0 38.4 102.8 83.6 19.2 14.0 62.4 6.1 4.0 40.0 5.8 26.0 41.6 34.2 4.0 598.40

No. of plots in Sqm. 21 67 1923 1200 4358 3510 6738 4576 4918 3626 1100 166 404 6354 299 3740 6722 1591 254 1385 49019 3845

No. of tenements 992 1408 384 100 224 496 4504

NOTE : Besides 52864 plots 2354 plots in Najafgarh Area, 160 plots in Hastal, 1336 plots in Nagloi Phase-III, 580 in M.B.Shadhara and 1640 plots in Seelampur were carved out in 1976.

247 R.G. GUPTA -–1995 www.rgplan.org

Appendix 29.2 Resettlement Colonies Developed during 1975-77

S.No

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

13. 14. 15. 16.

Name of the Scheme

Dakshinpuri & Extn. Khanpur Chaukhandi Khyala Complex Gokalpuri Shakarpur Complex Nand Nagri Sultanpuri Mangolpuri Hyderpuri Jahangirpuri Patparganj Complex (Khichripur, Kalyanpuri, Trilokpuri) New Seemapuri Nangloi N.G. Road Seelampur Complex Total

Area under Commercia l facilities in Hects.

12300 1378 1534 3362 24.02 8464 1000 16000 27800 6442 22000 25000

Area under Community faciliites includign parks in Hects. 35.30 4.00 4.82 11.44 9.10 28.51 35.22 83.94 105.54 14.94 75.62 102.00

3166 4472 2300 1642 148262

11.39 4.07 3.10 1.76 530.75

0.87 1.00 0.55 0.20 72.82

Area of the Scheme in Hects. (21 sq.mt. each)

No. of plots

65.37 7.15 6.55 20.00 14.86 54.03 50.58 150.72 177.73 57.87 132.17 168.00

17.74 22.00 13.50 9.80 968.07

7.71 0.31 0.51 1.04 0.75 1.43 2.37 14.32 13.81 2.61 10.35 15.00

248 R.G. GUPTA -–1995 www.rgplan.org

Appendix 29.3 Details of Facilities in New Resettlement Colonies as on 15.3.1977 Sl. No

Name of the Scheme

Hand Hydran

Pumps

ts

Latrines

Temp orary

Roads Kmt. Permanent

Complete d 1.

2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16.

Dakshinip uri & Extension Khanpur Chaukhan di Khyala Complex Gokalpuri Shakarpur Complex Nand Nagri Sultanpuri Mangolpur i Hyderpuri Jahangirp uri Patparganj Complex New Seemapuri Nangloi N.G. Road Seelampur Total

Tubewells

Boring complete d

In progress

Installatio n pumps

No. of sweepers

Total light points

344

449

-

1760

In progres s 264

53 50

45 66

88

144 166

-

3.45 3.7

1

-

-

28 25

38 -

140

38

140

432

-

15.00

3

-

3

65

115

80 281

59 194

140 460

292 1153

-

3.00 7.00

2 5

-

2 3

40 114

225 685

364

-

-

856

208

11.00

4

-

-

152

1157

472 790

200 341

500 1061

1608

2002 1260

15.00 38.52

4 8

5

-

110 343

500 500

214 604

240

40 1050

880

880 1360

5.50 33.18

-

3

3

238

380

887

216

741

2402

966

32.94

13

-

3

288

2340

81

35

122

66

352

1.60

4

-

-

40

85

83 94 57 4594

18 88 49 203 8

100 70 4513

216 296 26 10307

144 149 7585

8.00 4.20 2.10 222.79

3 52

11

14

40 25 16 1724

52 197 81 6635

28.60

5

3

Local wells

200

300

249 R.G. GUPTA -–1995 www.rgplan.org

Appendix No. 29.4 Infrastructure required as per Standards and provided in Resettlement Colonies Sl. No.

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

13. 14. 15. 16.

Name of the Resettlement Scheme

Dakshinipuri & its Exten. Khanpur Chaukhandi Khyala Gokalpuri Shakarpur Nand Nagri Sultanpuri Mangolpuri Hyderpuri Jahangirpuri Patparganj Complex (Khichripur, Trilokpuri, Kalyanpuri) New Seemapuri Nangloi Najafgarh Road Seelampur Total

No. of plots Provided

Hand pump one for 32 families 344

Hydrant one for 70 families

Latrine one for 7 families

12300

Infrastructure reqd. as per standards for ineligible squatters Hydrants Latrine Hand one for One for Pumps 80 10 one for families families 40 Families 307 154 1167

Infrastructure laid down/provided by D.D.A

449

2024

1378 1534 3362 2402 8464 10000 16000 27800 6442 22000 25000

35 38 84 60 212 250 400 695 161 550 625

17 19 42 30 106 125 200 348 80 275 318

138 154 336 240 846 1000 1600 2780 644 2200 2500

53 50 140 80 281 364 472 790 214 604 887

45 66 38 59 194 200 341 240 216

144 *88+166 *140+432 *140+292 *460+1153 1064 *500+2002 *1061+2868 *40+880 *1050+2240 *741+3368

3166

79

39

316

81

35

*122+418

4472 2300

73 57

36 29

292 230

83 94

18 88

*100+366 296

1642 148262

41 3667

20 1834

164 14607

57 4594

49 2038

*70+185 4512+17892

Note: Figures marked as state (*) shows temporary Latrines.

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Appendix 29.5 Number of Educational and Shopping Facilities in Resettlement Colonies SI. No

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

13. 14. 15. 16.

Name of the Resettlement Scheme

Dakshinipuri & its Exten. Khanpur Chaukhandi Khyala Complex Gokalpuri Shakarpur Nand Nagri Sultanpuri Mangolpuri Hyderpuri Jahangirpuri Patparganj Complex (Khichripur, Trilokpuri, Kalyanpuri) New Seemapuri Nangloi N.G. Road Seelampur Total

SCHOOLS

No. of Shops (10 sq.mt. & above)

Hr Secondary 4

Primary

Nursery

12

13

653

2 1 3 5 8 8 3 12 12

1 2 3 2 8 10 16 22 6 21 24

1 1 3 2 9 10 17 22 6 22 25

51 84 217 161 465 412 1570 1075 400 1576 2000

1 3 2 1 65

2 4 2 1 136

2 4 2 1 141

115 38 93 50 8960

.

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Appendix No. 29.6 Master Plan, Zonal Plan, Local Level Community Facilities, Sites Required as per Delhi Master Plan-62

Sl. No.

Standards as in the Master Plan at a gross density of 150 and above 1. 2. 3. FACILITIES AT MASTER PLAN LEVEL: 1. College One college for 150,000 population. 2. Hospital One Hospital for 150,000 population

3.

Description of facilities

One Cinema of 1000 seats for 100,000 population 4. Fire Stn. One Fire stn. In 0.8 hect. within 3 mile distance 5. Police Station 0.8 hect. for 100,000 population 6. Cremation As shown in the grounds/Burial master plan. Few Grounds more sites have also been carved out. FACILITIES AT ZONAL AND LOCAL LEVEL: 1. Hr. Sec. Schools One Hr. Sec. School for 15,000 population (this was further modified to 2 hr. sec. schools for 15000 population 2.

Cinema

Primary Schools

4 Primary School for 15000 population, further

Standards followed in resettlement colonies 4.

Amount of facilities provided

One college for 150,000 population One Hospital for 150,000 population

Some of the resettlement colonies have a provision of college and hospital sites in the adjoining areas, so there was no need of providing any additional number of these facilities therefore, only 3 additional colleges, 3 hospitals were provided in bigger colonies. Delhi Govt. may be requested to construct buildings over there. 8 sites were provided; and 4 to 5 were auctioned.

One Cinema of 1000 seats for 100,000 population One Fire stn. In 0.8 hect. within 3 mile distance 0.8 hect for 100,000 population M.C.D. may be requested to take over possession and develop these. One Hr. Sec. School for 10000 population

Three for 15000 population

5.

M.C.D. may be requested to construct buildings. Some sites were allotted to Police Department

Out of 65 sites proposed, school buildings were constructed by DDA on 10 sites, Delhi Govt. my be requested to take possession of other sites and construct school buildings At that time schools were functioning in tents. M.C.D. were to be

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modified to 3 for 15000 3.

Nursery Schools

8 for 15000

Three for 15000 population

4.

Dispensaries

One for 22000

One for 14000

5.

Community Hall/Library

One for 15000

One for 20000

6.

Religious/buildings

1/2 acre for 15000

Five sites of suitable size for 15000

7.

Electric Sub/Snt.

As asked by D.E.S.U.

8.

Police Post

A plot of 40’x40’ with storage space 1/2 acre for 25000 population

9.

Shopping facilities

10.

Dhobi Ghat

One shop for every 150 persons No specific standards

One shop for every 75 persons Sites have been provided, whenever needed

1/2 acre for 25000 population

requested to construct buildings on sites marked for the purposes. Number of Nursery schools sites were reduced to half as it was expected that less number of children of this section of the society attend nursery schools. More number of sites were provided than given in the Master Plan, as this section of the society needed more medical care and aid. Out of 51 sites, buildings were constructed by DDA on 22 sites and 7 sites were under construction. Community halls/ Barat Ghars have been constructed on 5 sites by D.D.A. Some of the sites were allotted to the Voluntary Registered Association. Other were to be considered for allotment as and when asked for. Sites were handed over to DESU. Police Department may be asked to take possession of the sites and start construction of buildings. 8960 sites

As per demand.

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30 Planning and Integrated Development A Large Complex for One Million Population

30.0 Background 30.1 Dimensions of the Project 30.2 Objectives 30.3 Location of Various Pockets 30.4 Authorities or Departments involved 30.5 Principles of Planning 30.6 Methodology 30.7 Working Out Requirements 30.8 Type of Plans and Approvals Required from Competent Authorities 30.9 Creation of a ‘Planning Team’ 30.10 Financial Planning of the Project 30.11 Phasing of the Project 30.12 Development and Construction of Urban Spaces

30.0 Background In the last 30 years Delhi Development Authority has planned more than 30,000 hect. of land for various landuses and purposes viz., residential, industrial, commercial, public and semi-public and circulation. Small, medium and large colonies varying from areas of a few hect. up to 7000 hect. (Narela), with physical and social infrastructure based on Master Plan and other norms, creating generating directly or indirectly, one million residential urban spaces, 15,000 industrial spaces, and 15,000 commercial spaces and hundreds of plots of public and semi-public buildings, were developed and constructed. Physical plans prepared by Delhi Development Authority are of various types. In many of the designs of group housing pockets, zoning regulations especially to the extent of provision of parking and set backs have not been followed. Adequate parking has not been provided in most of the commercial complexes, namely Nehru Place, Rajindra Place, Laxmi Nagar District Centre, Bhikaji Cama Place (where parking is hardly 50% of the approved norms in the Master Plan). At present the Delhi Development Authority has huge chunks of lands, either already acquired or in the process of acquisition, for the purpose of development of various types of urban spaces, namely – residential, commercial, public and semi-public, recreational and circulation. Of the total area, many pockets would be used for the rehabilitation of slum or shanty 254 R.G. GUPTA -–1995 www.rgplan.org

dwellers. Hence the question arises how to prepare a comprehensive plan so that the integrated development in physical and financial terms can be undertaken. Delhi Development Authority has about 10,000 hects. of land whose cost of internal, peripheral and trunk infrastructure development @ Rs.800 per sq.mt., would be Rs. 80 billion, which is a huge amount. Hence, a scientific system of preparation of physical plan should be evolved before the implementation of the plan. This system has been described in this chapter. The example prescribed is for the development of 1,30,000 residential plots to provide 2,25,000 dwelling units for a population of one million. These plans would be implemented in various pockets in different parts of Delhi. This exercise was carried out in 1988, when a submission was to be made to the Ministry of Urban Development. Hence the physical and financial dimensions are as per 1988 price level. Dimensions of physical and socio-economic infrastructure for a city of one million population has been shown in Map 30.1.

30.1 Dimensions of the Project The Project involves the construction of 50,000 houses of lower specification on plots of 8 sq.mt. development of 50,000 plots of 26 sq.mt. of sites and services with core units, 20,000 plots of 36 sq.mt., 10,000 plots of 48 sq.mt., and construction of 30,000 MIG residential group housing units and 10,000 HIG residential group housing units. The total population of the Complex, spread over at various locations, would be one million. For the time being these locations are taken hypothetical and have no relation with actual planning or implementation activities of Delhi Development Authority. This exercise was presented as an example to be followed by ‘physical planners’ while preparing layout plans of different residential areas. Break-up of the project economic class-wise, after combining all the pockets, is 5505% units for economically weaker section (EWS) of the society, 26.5% units for low income group, 13.3% units for middle income group and 4.7% units for high income group. This is an example of integrated development involving the EWS, LIG, MIG and HIG sections of the society. Other related landuses, namely work-spaces, commercial, public and semi-public buildings were also be a part of the Complex. Table 30.1: Number and size of residential units and population Category Lower EWS Upper EWS LIG LIG MIG HIG Total

Size of (sq.mt.) 18 26 36 48 -

plot

No. of plots 50,000 50,000 20,000 10,000 130,000

No. of DUs per plot 1 1.5 2 -

Total Us 50,000 75,000 40,000 20,000 30,000 10,000 2,25,000

Population (million) 0.225 0.3375 0.18 0.09 0.135 0.045 0.0125

Percentage 22.2 33.3 17.7 8.8 13.3 4.7 100.00

Note: The population has been calculated by multiplying the number of dwelling units by 4.5.

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30.1.2 Components of Comprehensive Planning and Integrated Development (i) (ii)

(iii) (iv) (v) (vi) (vii) (viii) (ix) (x) (xi) (xii)

Residential, commercial, institutional, public and semipublic buildings. Circulation via roads and urban rail (metro) at various levels viz. National Capital Region level; Delhi Metropolitan Area Level; Delhi Urban Area Level; Planning Division, Sector, Community, Neighbourhood and Cluster Level. Mix of income group i.e. EWS, LIG, MIG and HIG. Physical infrastructure, namely water, sewerage, drainage, power and telecommunication services. Social infrastructure for education, health, security, social justice, recreation and shelter. Economic infrastructure, i.e. employment centers and work places in commercial and industrial estates. Landscape plan of open areas including street furniture and signages. Estimates of development and construction, bill of quantities, estimates of building materials and manpower required, weekly and monthly. Project Management: Pert Chart, Critical Path Method (CPM), Linear Programming, Dynamic Programming. Creation of non-govt. organizations and Cooperative House Building Societies. Phasing of the project Coordination, integration, evaluation and monitoring of various departments and subjects concerning with the project.

30.1.3 Financial Dimensions

(i) (ii) (iii)

(iv) (v)

(vi) (vii)

(viii)

Though it is difficult, rather impossible, to quantify financial dimensions of all urban planning components of the project yet to the extent possible, these are listed below along with the source of funds. Trunk physical infrastructure i.e. water, sewerage, drainage, power – Plan funds of Govt. of National Capital Territory of Delhi / government. Telecommunication – Mahanagar Telephone Nigam Limited’s funds Master Plan roads (a) National Highways – Central Sector Funds. (b) Roads with r/w of 30 mt. and above – Plan funds of Govt. of National Capital Territory of Delhi / government. Urban rail (metro) – special funds from Railways, Govt. of National Capital Territory of Delhi and private funds. Development of sites for social infrastructure at Master Plan level i.e. for general hospitals, colleges, large research institutions, police station etc. – Plan funds of Delhi Admn. / government. Development of large recreational areas – by special funds Peripheral physical infrastructure i.e. water, sewerage, drainage and power – by Delhi Development Authority with the help of funds of beneficiaries and cross subsidies. Development of sites for social infrastructure at zonal plan level for senior secondary schools, primary schools, intermediate hospitals, clinics, dispensaries, community halls, police post, post office, telephone office, milk booth, dust bins, dhalao, 256 R.G. GUPTA -–1995 www.rgplan.org

(ix) (x)

(xi)

street furniture by Delhi Development Authority with the help of funds of beneficiaries and cross subsidy. Development of sites for neighbourhood parks, playgrounds and open spaces – by Delhi Development Authority with the help of cross subsidy. Construction of buildings for social infrastructure i.e. of schools, health centres, community halls, library, dispensary – Plan funds of Govt. of National Capital Territory of Delhi (GNCTD) Internal physical infrastructure i.e. water, sewerage, drainage, power – by the concerned development agencies.

30.2 Objectives (i)

To improve the quality of life by providing physical, social and economic infrastructure to one million people to be accommodated in various locations. Once this is done, and perfectly implemented the needs of one million population in terms of biological, physiological and psychological would be taken care of to a great extent. (ii) To stop and control unauthorized construction. Delhi which is considerate to be a beautiful city, has 75% of its population living in sub-standard areas i.e. in shanties (jhuggies), unauthorized colonies, unauthorized regularized colonies, urban villages, rural villages, slum areas and resettlement colonies. The development of residential and other urban spaces for one million population would fulfil their demand and would check unauthorized construction to a great extent. Once developed urban spaces are provided, strict controls should be enforced to check unauthorized construction. (iii) To stop and control environmental pollution i.e. water pollution, air pollution, noise pollution and soil pollution to a great extent. (iv) To make the scheme less costlier by involving beneficiaries and private sector with the help of Non-Govt. Organisations and Co-operative House Building Societies. (v) Ultimately the entire exercise of planning, development and construction of urban spaces would lead to the planned development of Delhi which is the sole objective of the Master Plan. It can be a good example of coordination, integration, evaluation and monitoring of different types of urban spaces by various departments and authorities.

30.3 Location of various Pockets The project for the development of urban spaces for 225,000 residential units for one million population will be located in – (i) Dwarka, Phase-I, (ii) Dwarka, Phase-II, (iii) Narela, (iv) Area north of Road No. 50 (v) Rohini, Phase-IV and (vi) Rohini, Phase-V. These Complexes have been planned and are being 257 R.G. GUPTA -–1995 www.rgplan.org

planned on comprehensive basis, showing various landuses viz. residential, commercial, public and semi-public, circulatory etc. with physical, social and economic infrastructure as per norms given in Delhi Master Plan-2001. Social infrastructure would include sites of schools, health centres, police stations, fire station, community hall, library etc. Each and every pocket would be dealt with separately within the Master Plan framework and landuse and zoning regulations.

30.4 Authorities and Departments Involved 30.4.1 Physical and Other Surveys (i)

(ii)

(iii)

(iv)

Remote Sensing and Aerial Photography – with the help of National Remote Sensing Agency, Hyderabad and Indian Institute of Remote Sensing, Dehradun. Physical Surveys – These surveys would be done departmentally with the help of line maps, aerial photography and Small Format Aerial Photography (SFAP) etc. Traffic and Transportation Surveys- These surveys would be done wither departmentally or with the help of reputed institutions such as Central Road Research Institute (CRRI), RITES, National Transport Planning and Centre (NATPAC), CRAPHTS etc. Soil Surveys – These surveys are required for the purpose of designing individual multi-storeyed buildings and would be done by specialized engineering firms.

30.4.2 Inferences from Literature from Primary Sources (i)

(ii)

Inferences from past studies can be drawn either by departmentally or with the help of School of Planning and Architecture, Town & Country Planning Organisation, Institute of Town Planners, Development Authorities and other private research organizations. Socio-economic Surveys: These surveys can be done departmentally or with the help of research institutions of this discipline. Expenditure on the above two topics should be limited to quarter percent of the estimated cost of the project.

30.4.3 Acquisition of Land and Allotment of Alternate Urban Spaces Acquisition of land for the project and allotment of alternate urban spaces affected in the proposal: This should be dealt with by the Lands and Building Department, Delhi Admn., of course with the help of Delhi Development Authority. 258 R.G. GUPTA -–1995 www.rgplan.org

30.4.4 Departments of Services

(i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix) (x) (xi) (xii) (xiii) (xiv) (xv) (xvi)

Service plans for water, sewerage, drainage, power, tele-communication, roads, urban rails, distributor services, mass transportation, education, health and security would be prepared at macro (trunk), meso (peripheral) and micro (internal) level with the help of following departments, assigning the main exercise (initiation) to be done by the DDA. Water supply and sewerage at trunk level-Delhi Water Supply and Sewage Disposal Undertaking Water supply and sewerage at peripheral and internal level-by Delhi Development Authority. Large storm water drains with capacity of more than 1000 cusecs and flood controls – by Irrigation and Flood Department, GNCTD. Storm water drainage in urban areas – Delhi Water Supply and Sewage Disposal Undertaking. Power – Delhi Electric Supply Undertaking at all the levels, trunk, peripheral and internal. Telephone lines and telephone exchanges – Mahanagar Telephone Nigam Ltd. Education buildings- Directorate of Education and Education Department, Municipal Corporation of Delhi and registered societies. Health buildings – Directorate of Health, GNCTD Police post and police station – Police Department, GNCTD Fire station – Fire Department, Municipal Corporation of Delhi. Mass transportation by bus-Delhi Transport Corporation and State Transport Authority. Civil supplies – Delhi State Civil Supply Corporation Small industrial work spaces – Delhi State Industrial Development Corporation Construction of Master Plan roads – PWD, Delhi Admn. and Municipal Corporation of Delhi Distributor services (milk booths) – by Delhi Milk Scheme and National Dairy Development Board Sweeping and scavenging – Conservancy Department of Municipal Corporation of Delhi.

30.4.5 Department of Physical and Financial Planning – Delhi Development Authority

30.4.6 Allocation of Urban Spaces This would be done by DDA, with the help from non-govt. organizations and Cooperative House Building Societies.

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30.5 Principles of Planning 30.5.1 Policies at national level and regional level with regard to urban land policy, resettlement of shanty (jhuggi) clusters. In/around situ development of shanty/jhuggi clusters and the project of urban rail (metro) have to be studied and policy directions taken. 30.5.2 Landuse and policies of Delhi Master Plan-2001 or structure plan, subdivisional plan or zonal plan, landuse as per general layout plan (if any) of the complex have to be studied and detailed plans to be prepared within their frame work. 30.5.3 Norms for physical, social and economic infrastructure as given in the Master Plan should be studied and applied to the project.

30.5.4 Grouping of Clusters and Planning Units (i)

(ii)

(iii)

(iv)

(v)

The smallest planning unit will have a population of 10,000 broken up into two sub-units each of 5000 persons. This planning unit will have one senior secondary school, two primary schools, four nursery schools, one dispensary, one community hall-cum-library, one neighbourhood park, one local shopping centre and two convenient shopping centres and recreational areas as per norms. Each neighbourhood with a population of 20,000 will have two planning units. It would have the facilities of two planning units, in addition to, one police post, one dispensary, two large parks and additional recreational areas as per norms. Each community of 40,000-50,000 population would be created by combining two neighbourhood and would have facilities of two neighbourhood, in addition to, one community shopping centre, one fire post and one telephone exchange. Each sector with a population between 100,000 to 150,000 would be a combination of two or three communities depending upon the circumstances. Besides facilities in each community, one college, two special senior secondary schools, one with hostel and another without hostel facilities, one fire station and one telephone exchange, would be provided. For two sectors, one district shopping centre and one 500 bedded General hospital would be provided.

30.5.5 Components of Street Furniture It is necessary to provide a complete set of street furniture without which the complex, even after development, remains incomplete. Street furniture includes the following items: 260 R.G. GUPTA -–1995 www.rgplan.org

(i) Electric poles, (ii) Telephone poles, public telephone booths, (iii) Tree plantation along roads, landscaping of roundabouts, channelisers and footpaths along road sides, (iv) Dustbins, dhalaos, garbage depots, (v) Bus queue shelters, bus terminals, (vi) Bus terminals, hoardings, painting of roads, zebra crossing, neon signs, (vii) Street lighting on different roads and special illuminations at different intersections, (viii) Milk bars and milk booths, (ix) Car parking, scooter parking, rickshaw parking, slow vehicle parking, taxi stands including booths and fare boards, (xi) Covering of large storm water drains (nallahs), design of railing along them, (xii) Speed breakers, properly painted and with sign boards, (xiii) Sculpture pieces at suitable locations along with water fountains, water bodies and other attractive features, (xiv) Overhead tanks, underground water tanks, oxidation ponds, (xv) Tree-guards, (xvi) Guide maps at important places, (xvii) Development of parks, playgrounds open spaces along with railings, sitting benches, tree plantation and other landscape features.

30.6 Methodology A Comprehensive and Complete paper planning of any large project involves many stages, listed below: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix) (x) (xi)

(xii)

(xiii)

Different types of surveys as names given in para 30.4.1. Inferences from past studies on these subjects. Acquisition of land alternate allotment of urban spaces to affected parties. Study of physical, social and economic indicators. Preparation of plans of storm water drainage system and flood controls at the macro level. Location of water treatment plant and sewage disposal plant and power generating and distribution stations. Pre-design study. Preparation of layout plan at the macro level showing broad landuses, circulation system and physical, social and economic infrastructure Architectural control drawings of all the facades in case of urban design problems for all the buildings. Details designs of buildings to be constructed by the public body. Type-design of different types of dwelling units with detailed specifications and typical details for distribution to plot holders at nominal cost. Preparation of financial plans, with details of input output analysis, ABC analysis, sources of funds dealing with public, private and cooperative sector. Coordination, integration, evaluation and monitoring of different subjects and organizations/departments. These 13 stages are necessary for all the large projects. 261 R.G. GUPTA -–1995 www.rgplan.org

30.7 Working Out Requirements Requirements have to be worked out for physical, social, economic, circulatory and environmental infrastructure.

30.7.1 Physical Infrastructure For a population of one million, requirements of – (i) physical infrastructure i.e. water, sewerage, storm water drainage, power, tele-communication, scavenging and garbage collection and disposal, (ii) social infrastructure, viz. education, health, security, justice, recreation, shelter, (iii) economic infrastructure, viz. employment centres in commercial, industrial and office complexes, (iv) circulation infrastructure system via roads and rails and, (v) environmental infrastructure i.e. control of water, air and noise pollution and protection of green areas should be worked out. These are the basic requirements on which the entire planning for a population of one million people in terms of different types of houses for various income groups namely-economically weaker section, low, middle and high income group with their biological, physiological and psychological needs would depend. Details of physical infrastructure has been given in Table 30.2.

Table 30.2: Requirements of physical infrastructure Item Water

Sewage disposal

Storm drainage Power

water

Telephone lines

Norms @50 gallons per day per capita for residential purposes and 30 gallons per day per capita for recreational, institutions and work centres 40 gallons per day per capita for residential purposes and 24 gallons per day per capita for other purposes. Cannot be quantified @20 MW per 100,000 population 100 lines population

per

1000

Quantity (i) 50 mgd for residential purposes (ii) Total 80 mgd

Remarks 20 mgd in Phase-I and 30 mgd in Phase-II and then ultimately 80 mgd.

(i) 40 mgd for residential purposes (ii) Total 64 mgd.

It may also be taken in phases with a breakup of 15 mgd. and 25 mgd. and then 24 mgd.

These will be as per site conditions 200 MW

100,000 lines

80 MW in the first phase and 120 MW in the second phase. This can also be provided in two phases

There would be other facilities like milk booth, public telephone booths, fire station, telephone exchange etc. which have not been listed here. These facilities would be as per Delhi Master Plan-2001.

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30.7.2 Social infrastructure

Table 30.3: Name of facility, area and population to be served

(i)

(ii)

(iii)

(iv)

Name

Number

(1) Education Nursery School Primary School Hr. Sec. School Integrated school without hostel facilities Colleges Sub Total Health Dispensary Nursing Homes Intermediate hospitals CategoryA Intermediate hospitals CategoryB General Hospital Sub Total Social Security Police Post Police Station Sub Total Other community facilities Community hall Religious places Sub Total Grand Total

(2)

Area each hect. (3)

400 200 100 10

for Total in hect.

in Population for each

(4)

(5)

0.05 0.4 1.6 2.2

20 80 160 22

2,500 5,000 10,000 1,10,000

6 716

4

24 306

1,50,000

66 20 10 10 2 108

0.1 0.25 2.67 1.00 6

6.6 5.0 26.7 10.0 12.0 60.3

15,000 50,000 1,00,000 1,00,000 4,00,000

20 10 30

0.1 1.15

2.0 11.5 13.5

50,000 1,00,000

66 200 266 1120

0.1 0.04

6.6 8.0 14.6 394.4

15,000 5,000

30.8 Type of Plans and Approval Required from Competent Authorities 30.8.1 Names of Different Plans and Approving Authorities/Departments Table 30.4: Type of plans & approving authority (i)

(ii)

Type of plans Different types of surveys with contours (if required) in the scale of 1:10000, 1:5000, 1:1000, 1:500 and 1:200 based on the requirements. Inference from past studies, results of socioeconomic surveys, traffic and transportation surveys and other surveys.

Approving Authority D.D.A./development authority D.D.A./development authority

263 R.G. GUPTA -–1995 www.rgplan.org

(iii)

(iv)

(v)

(vi)

(vii)

D.D.A/development authority; Delhi Water Supply & Sewage Disposal Undertaking; PWD, DESU and other department of Govt. of National Capital Territory of Delhi (GNCTD) Detailed layout plans showing plotted development, D.D.A/development authority group housing circulation system, detailed physical and the local body. social and economic infrastructure. Detailed design of individual buildings showing all D.D.A/development authority the architectural features, construction details, lay- and the local body. out plan details, plans of all the floors, elevation, section, etc. Landscape plan showing areas of tree plantation, D.D.A/development shrubs, flower beds, sitting benches, hedges, water authority. fountains, water bodies, street poles etc. Detailed plans of services namely water, sewerage D.D.A./development and storm water drainage. authority and Delhi Water Supply and Sewage Disposal Undertaking. Layout plans at the macro level in the scale of 1:10,000 and 1:5,000 showing different land uses, circulation system, trunk infrastructure and trunk social infrastructure.

30.8.2 Process of Approval of Basic Plans at Macro Level Divisional or zonal plans will be prepared as per provisions given in the Master Plan-2001 where all these complexes have been shown for rural use. These plans will be processed under Section 8, Section 10 and Section 11-A of Delhi Development Act, 1957. This process will take at least six months. Details of Section 8 have been given in Chapter 33 (Zonal Plan-Delhi Trans Yamuna Area). Under Section 8 of the Act, location of the land uses and physical and social infrastructure including – (i) public and semi-public buildings, (ii) public works and utilities, (iii) roads, (iv) housing, (v) recreation, (vi) industry, (vii) markets, (viii) schools, (ix) hospital, (x) public and private open spaces, (xi) other categories of public and private houses, (xii) standards of population density and building density, (xiii) areas to be developed or re-developed, (xiv) division of the site into plots etc. are shown. Section 10 of the Act deals with the procedure to be followed in the preparation and approval of plans. The procedure involves preparation of a draft plan which is then published for inviting objections and suggestions from public and govt. bodies and then their processing. After considering all objections and suggestions and having taking a decision, the Authority shall finalise the plan and submit it to the Central Government for final approval.

30.9 Creation of a ‘Planning Team’ This is a huge project, of the size of a metropolitan city with a population of one million. It would be one of the largest project of Delhi for planning, 264 R.G. GUPTA -–1995 www.rgplan.org

development, construction and dispersal of urban spaces. The project involves acquisition of land, protection of land, allotment of alternate urban spaces to the affected parties, preparation of physical and fiscal plans, execution of internal, peripheral and trunk infrastructure, construction of buildings of social infrastructure on the developed sites and development of recreational areas. The total cost of the project is expected to be Rs. 54 billion. Professional fee for comprehensive planning of a project is not less than one percent of the estimated cost of the project. On this pattern, the professional fee for various plans of this project would be Rs. 540 million, a huge amount in itself. To give an example, for the planning of Dwarka in about 2000 hect.. 176 posts were created in Delhi Development Authority, even then help of outside consultants was taken. After taking lot of works from outside consultants the project was completed in different aspects of planning and it took lot of time. In this aspect, there are two systems of planning-(i) planning by the Planning Department of Delhi Development Authority, where for such a large project, hundreds of posts at various levels will have to be created. The creation of a post does not only require a lot of time but requires many other arrangements, e.g. space for sitting, tools and equipments and different types of disciplinary problems, (ii) assigning of the entire job to outside consultants in the market. Outside consultants would be of various disciplines namely-surveys, urban planning, urban design, planning of services, landscape architecture, environmental planning etc. The second system seems to be much better and also less expensive. In this case also, a Core Planning Unit consisting of a Joint Director, (Planning) with one Deputy Director, (Planning) one Assistant Director, (Planning) one Executive Engineer, (Planning) two Assistant Engineers, (Planning) and one Executive Engineer, Physical Surveyors, two Junior Surveyors has to be created. Along with the Unit, all modern equipments, computers, micro-film equipment and projectors should be purchased.

30.10 Financial Planning of the Project 30.10.1 Preparation of a preliminary project report with approximate cost of various components of the project, such as acquisition of land, alternate allotment of urban spaces, laying of internal, peripheral and trunk-physical and socialinfrastructure etc. as details given in para 30.1.3 under the caption ‘Financial Dimensions’. 30.10.2 The total cost of the project has to be broken up into various stages and phases; for example, this project can be phased over the VIIIth and IXth Five Year Plans, i.e. from 1993 to 2003 A.D. for a period of 9 to 10 years. 30.10.3 The expenditure for various activities for different years has to be matched with the receipts and resources whose sources can be as under: (i) Central govt. funds: loans or grant in the shape of seed capital or revolving funds. 265 R.G. GUPTA -–1995 www.rgplan.org

(ii) (iii) (iv) (v) (vi)

Plan funds for different activities via Delhi Admn. in the shape of loans or grant. From govt. organizations such as National Housing Bank, HUDCO, Life Insurance Corporation and General Insurance Corporation etc. Large financial institutions including all scheduled banks. Channelization of private funds with the help of non-govt. organizations and cooperative societies. Direct involvement of private funds.

30.10.4 Input and Output Analysis of Expenditure – Receipts Analysis

30.11 Phasing of the Project The project is a large one in a total area of about 5600 hect. with an estimated population of one million, with 130,000 residential plots or 225,000 dwelling units with complete physical, social, economic and circulation infrastructure. Hence, it is necessary to spread the project over 9 to 10 years, based on following criteria: (i) Financial affordability of the public, private and cooperative sector. (ii) Physical capacity of different organizations for dealing with the project. (iii) Availability of trunk physical infrastructure, namely-water supply, sewage disposal and power by the service departments of Municipal Corporation of Delhi.

30.12 Development and Construction of Urban Spaces The development of the project having a tentative expenditure of Rs. 54 billion with additional cost of construction of urban spaces running into hundreds of billion of rupees, has huge dimensions. For proper implementation modern techniques of development and construction, should be used for this project. The following are some of the modern techniques: (i) (ii) (iii) (iv)

CPM analysis of all the projects should be carried out separately. Simultaneous CPM analysis of all the projects taken together. Continuous monitoring of the project, with the help of modern techniques. Maintaining the entire record of acquisition of land, planning, development, construction and dispersal of urban spaces.

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MAP 30.1: Dimensions of Physical and Socio-Economic Infrastructure for a city of One Million 1.

2.

Housing Break-up into different categories: No. of DUs

Percentage

E.W.S L.I.G. M.I.G. H.I.G.

55.5 26.5 13.3 4.7

125,000 60,000 30,000 10,000

Physical Infrastructure Water Sewage Power Telephone Lines Drainage Gas Lines

3.

Social Infrastructure Education:

Health:

Social Security: Other community facilities 4.

80 mgd. 64 mgd. 200 MW 100,000 lines As per site conditions System has yet to be established in the country

Nursery Schools-400; Primary Schools-200; Sr.Sec. School-100; Integrated Sr. Sec. School-10; Colleges-6; Dispensaries-66; Nursing Homes-20; Integrated Hospital Category-A-10; Integrated Hospital Category-B-10; General Hospital-2; Police Post-20; Police Station-10; Community Halls-66; Religious-200; Places

Economic Infrastructure Districts Shopping Centres Community Shopping Centres Local Shopping Centres Conventional Shopping Centres Industrial Work Spaces

- 20 Nos. - 10 Nos. - 66 Nos. - 200 Nos.

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31 Transit Camps 31.0 31.1 31.2 31.3 31.4 31.5 31.6 31.7

Background History of the Project Results of Surveys Conducted in 1983 and 1985 Salient Features of the Project of ‘Transit Camps’ Physical Dimensions of the Project Financial Dimensions of the Project Drawbacks in the Scheme Project Estimates

31.0 Background This chapter is based on the experiences gained in the Delhi Development Authority in 1984-85 in its efforts to rehabilitate shanty dwellers for transit period in camps after construction of temporary structures in Delhi. This scheme was started in 1984 and ended in 1986. This is the experience of two years. In 1984, the Authority took a decision to construct 100,000 housing units per year in public, cooperative and private sectors. Most of the housing units to be constructed in public sector were of smaller size, of about 18 sq.mts. in different parts of Delhi. The Jhuggi (Shanty) Removal Scheme is being implemented since the early sixties either by the Delhi Development Authority or by the Municipal Corporation of Delhi on behalf of the Government of India and expenditure on it being met out of the funds released from time to time by the Government in the form of ‘Grant-in Aid’. For the resettlement of the post-March, 1977 squatters by taking loan from HUDCO. The DDA was not averse to the development of plots under the ‘Sites and Services’ programme and availing loans from HUDCO for the purpose. The main difficulty was that the squatters were not interested in paying back the loan of the plot. They were neither paying the licence fee nor would they pay the lease premium or licence fee in this connection. The other difficulty under the proposed arrangement was that at the time in the existing scheme a subsidy of Rs. 800 per plot was allowed by the Government which in the case of plots developed under the ‘Sites and Services’ programme by taking loan from HUDCO cannot be applied. This would imply that plots under the new scheme would be costlier and higher cost would undoubtedly be a further burden on the allottees who were from the weaker sections of the society. There cannot be clear-cut distinction between the squatters occupying Government land prior to March 1977 and those after March 1977, so it was practically impossible to make distinction as to who amongst them are occupying public land since before March 1977 and those who occupied later. The encroached land is required to be cleared for development of a project at a particular time, as 268 R.G. GUPTA -–1995 www.rgplan.org

such the entire pocket on which encroachment was there, was to be got cleared. In such a situation, it was not easy to pay back the loans taken from HUDCO as the allottees of the schemes do not pay installments, as was the past experience. At that time, DDA had taken up the work of construction of ‘Transit Camps’ for temporary resettlement of the people living in shanty (Jhuggi) clusters, in accordance with the directions of the then Lt. Governor. It was proposed to shift them from public land to ‘Transit Camps’ and finally to move these people to their own houses for which an extensive scheme of Low Cost Housing was proposed to be taken up, at the rate of about 100,000 dwelling units in a year or so. A typical design of Transit Camp unit of 10 sq.mt. has been shown in Map 31.1.

31.1 History of the Project Due to continued influx of people into the city of Delhi, a large number of shanty (jhuggi) clusters came up on vacant public lands. A number of resettlement colonies were developed from time to time in the peripheral areas of the city to resettle shanty (jhuggi) dwellers. But since instant accommodation cannot be provided by any authority in few months or so and dwellers were to be shifted from the valuable land earmarked for various important projects. Therefore, it was proposed to settle these dwellers temporarily in transit camps. This was only be a temporary phase and finally these people were to be accommodated in newly builtup 18 sq.mt. flats/own houses, for which an extensive programme of low cost housing was proposed to be taken up by the DDA. The estimated influx of population into the city of Delhi was about 200,000 per annum. But because of time and money constraints, the DDA could not construct the required number of transit camps and likewise 18 sq.mt. dwelling units. There was an estimate for the construction of 15,000 transit camps, each measuring 4.0 m. X 2.50 m. Later on, the scheme was modified for the construction of 5,980 transit camps which were constructed in various directions Delhi. The estimated cost of construction of each transit camp, including community facilities and departmental charges, was about Rs. 9,187 excluding the cost of land. The total cost of 5,980 DUs works out to Rs. 93.4 million. The cost of land, was taken as Rs. 160 per sq.mt. on the gross area. Thus the cost of land chargeable to each transit camp was Rs. 6,426 and the total cost of transit camp, including land was about Rs. 9,187 + R.s 6,486 = Rs. 15,613. All the 5,980 units were single storeyed. To keep the cost of construction as low as possible, Asbestos Cement (A.C.) sheet roofing, brick on edge flooring and honeycombed brick work in place of windows were used. Again, to keep the cost low, only the basic necessary amenities viz. one water hydrant for 40 families, one bathroom for 40 families and one W.C. for 20 families were provided. The approach roads to the Transit Camps were metalled with premix carpet or painted top surfaces. For surface drainage, storm water drains with dry brick pitching or rectangular drains depending upon the location with suitable outfall were constructed. In smaller lanes and paths, brick on the edge flooring was laid.

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31.2 Results of Surveys Conducted in 1983 and 1985 Details of these surveys are available in Chapter 20 (Physical and Socioeconomic Surveys), however, outlines are given under: (i) In 1983 (a) Out of the total population, 85.16% were of Hindu community, 12.69% Muslims and 2.9% of other religions. (b) Of the total, 51.95% were Scheduled Caste, 3.37% Scheduled Tribe and the remaining of other castes, meaning thereby that majority of population was of (Scheduled Castes, Scheduled Tribes and Other Backward Classes) (c) 34.4% of the total population was within age group of 0-10 years, 16.9% between 11-20 years, 30.1% in the age group of 21-30, 11.4% are in the age group of 31-40, 4.8% is in the age group of 41-50, 3.2% in the age group of over 51 years. The sex ratio of the shanty (jhuggi) population was 840 females per thousand males. (d) 91.7% of the total population was illiterate at that time. (e) The number of household was almost equal to the number of shanty. (f) 57.8% households were having ration cards whereas 42.20% did not possess any ration card. (g) 95% of the shanty dwellers were low income rural migrants. (h) All the clusters under study were affected by noise pollution. Maximum noise was noticed in the clusters which were located near railway line or within industrial areas followed by along major Master Plan roads. Of the 29 sampled shanty clusters, four fire hazard and only five clusters by dust. (j) 80% of the shanty clusters were accessible by major routes. (k) Of the 29 sampled clusters, eight were located in planned and developed resettlement colonies and only six in industrial and residential areas. (ii)

1985 Surveys: (a) All the shanty clusters were situated on public land. (b) Density of population in these clusters was very high and varied from cluster to cluster. (c) 70% of the population was illiterate. (d) 75% of the total working force was labour class. (e) More than 90% of the jhuggies were used exclusively for residential purpose, followed by commercial, residential-cumcommercial and other uses. (f) Average size of the family was four members. (g) 80% of the migrated population was from U.P., followed by M.P., Bihar, Rajasthan, West Bengal etc. (h) Most of the workers were working within 2 km from the cluster, as such they did not have any requirement of transportation, specially from place to living to the place of working. (i) Most of the clusters were deficit in terms of potable water, sewerage facilities, electricity, etc. (j) These clusters lack social infrastructure, as such they share the physical, social infrastructure facilities of adjoining colonies.

31.3 Salient Features of the Project of ‘Transit Camps’ A new policy formulated in 1984 to rehabilitate shanty dwellers in transit camps. The then Lt. Governor, Delhi announced a policy of construction of transit camps for the rehabilitation of shanty dwellers with the following important features: (a) Transit Camps will be of temporary or semi-permanent nature. (b) Area of each unit shall not be more than 10 sq.mt. (c) Services, namely, water, sewer and 270 R.G. GUPTA -–1995 www.rgplan.org

electricity will be on community basis. (d) Cost of each built up unit will not be more than Rs. 5,000 as envisaged in initial stages, later on it was increased to Rs. 7,500 and ultimately to Rs. 15000 per unit. (e) A shanty dweller will reside only for a period between 6 to 10 months and then will be shifted to a built up small dwelling unit in an area of 18 sq.mt. For this, a scheme of construction of 100,000 dwelling houses was announced on few important occasions. (f) These temporary or semi-permanent structures will be only for few years and ultimately the land used for the scheme will be utilized for the purpose as given in the Master Plan of Delhi, therefore, some sites as per Master Plan of Delhi-62 were recreational (green).

31.4 Physical Dimensions of the Project (i) Number of units planned inititally It was decided to construct about 15000 transit camps with community services on the following locations: Table 31.1: Number of Transit Camps, units proposed for construction at various locations Sl. No. 1. 2. 3. 4. 5. 6. 7. 8.

Name of the Locality Hasthal Kalkaji Extension Lalji Nagar Okhla Phase-II Raghubir Nagar Trans Yamuna Area North Zone Other locations Total

No. of Units 1040 2094 822 500 1564 976 2588 4978 14562

(ii) Norms of provisions of infrastructure: (a) One water hydrant for 40 families. (b) One bathroom for 40 families, (c) One W.C. for 20 families. (d) Approach roads were metalled one except small roads were of brick paved. (e) Street light – as per requirements. (iii) Brief specifications for Transit Camps (a) Foundations: Spread footing with bricks in cement mortar 1:6. (b) Superstructure: Outer walls 23 cm. (9”) thick in cement mortar 1:6, the brick pillars and all the cross and internal 11.5 cm. (4-1/2”) thick with cement mortar 1:4. (c) Doors: 2nd class kail wood shutter fixed in angle iron frame 35X35X5 mm. (d) Roofing: 6 mm thick corrugated Asbestos Cement (A.C.) sheet fixed on angle iron purlins and with wind ties. (e) Flooring: Brick on edge flooring with flush pointing. (f) Finishing: Plastering and whitewashing inside and outside. (g) Development Work-Roads: metalled with premixed top; Paths: brick on edge flooring with a saucer type drain; Water Supply: hand pump and public hydrants and Community Latrine: common toilet with Sulabh Sauchalaya. 271 R.G. GUPTA -–1995 www.rgplan.org

31.5 Financial Dimensions of the Project (i)

Break-up of cost per unit. • Cost of superstructure • Street light per unit • Departmental charges @ 8% Administration charges @ 1%, Interest charges @ 6% for 9 months and maintenance Charges for one year @ 2.5%. • • •

Total cost of the structure Cost of land Total cost of the unit

• • • • • •

Actual no. of units constructed Khichripur Trilokpuri Govindpuri/Kalkaji Hasthal Raghubir Nagar Pandav Nagar

(ii)

Total (iii) (iv)

Cost of the Project Break-up yearwise: 1986-87 1987-88 1988-89

Amount in Rs. 7,125 893 1,169

9,187 6,426 15,613

486 440 2,094 1,040 1564 356 5980 Rs. 93.4 million Rs. In million 30.0 30.0 33.4

31.6 Drawbacks in the Schemes After implementation of the scheme and gathering public opinion, the following points were emerged. (Later on the scheme was abandoned). • Size of the unit as 10 sq.mt. was very small. • Cost of the unit was increased about three times than envisaged earlier. • Services based on community basis was not a practical preposition and later on cost of maintenance of these colonies became very high. • In Delhi nothing is temporary and whatsoever are built remain for decades and forever.

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31.7 Project Estimates Name of work: Construction of Transit Camps 5980 Units Sl. No. 1. 2. 3. 4. 5. 6. 7.

(a) (b) (c)

Description Transit Camp 5980 units Street lighting (by DESU) 5980 Deptt. Charges @ 8% on item No. 1 Admn. charges @ 1% on item no. 1 Interest charges @ 6% for 9 months on all items except No. (2) Add 2.5% maintenance charges for one year on item No. 1 Add cost of land Total

Qty. 5980 5980

Rate Rs.

Amount in Rs.

7,125 893 8%

42,607,500 53,40,140 34,08,600 4,26,075 20,89,898

Cost of each camp (civil works and contingencies excluding cost of land) Cost of each camp including electric cost, deptt. charges, interest charges etc. Cost of land Total cost

10,65,188 3,84,25120 9,33,62,521 say Rs. 93.4 million

Amount in Rs. 7,125 9,187 6,426 22,738

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32 The Quality of Life A New Model 32.0 32.1 32.2 32.3 32.4 32.5 32.6 32.7 32.8

Background General Policy on the Subject of In/Around Situ Development and Construction of Urban Spaces for Shanty (Jhuggi) Clusters Specific Provisions on the Subject in Trans-Yamuna Area Principle of Design of In/Around Situ Development Bombay Model Location of the Particular Complex Design of the Cluster Appropriate Technology of Pre-fab Construction Rehabilitation through Multistoreyed Construction

32.0 Background At present in Delhi there are more than 930 jhuggi clusters with 270,000 squatter families affecting many projects of physical, social and economic infrastructure worth and necessary for implementation. These clusters create water, air, noise and soil pollution, stressing and straining physical, social and economic infrastructure of adjoining localities. The number of jhuggi clusters and families is increasing day by day. The rate of migration in Delhi is 40,000 families squant on public land. From the details given in Chapter 20 – (Physical and Socio-economic surveys), it is seen that their physical, social and economic situation is far from satisfactory. Based on the experiences of the last three decades, a three-pronged strategy was proposed and given below to solve the problems of existing squatters. (i) (ii) (iii)

Resettlement of shanty (jhuggi) dwellers squatting on projects sites which have to be got vacated and projects implemented. Environmental improvement in jhuggi clusters. ‘In/around situ’ development/construction of urban spaces for shanty (jhuggi) families.

32.1 General Policy on the Subject of ‘In/Around Situ Development, Construction of Urban Spaces for Shanty Clusters.’ In the 8th Five Year Plan i.e. 1992-97 of Delhi on the subject of ‘Planning, development and construction of urban spaces by DDA/Government of National Capital Territory of Delhi (GNCTD)’; this three-pronged strategy, was envisaged and 275 R.G. GUPTA -–1995 www.rgplan.org

approved. According to this strategy planning is being done since April 1990. The work on the first two parts i.e. development of plots of sites and services and environmental improvement in jhuggi clusters is being implemented since many years. The first part of the strategy is good but painful and the second does not improve the quality of life. The third strategy of ‘In/around situ’ development, construction of urban spaces is the best one due to the following reasons: (i) It does not disturb the present system and sub-system of shanty families living in clusters. (ii) It does not dislocate their work places. (iii) Traffic and transportation burden is not increased, as places of living and working remain the same, before and after the development. (iv) Per capita expenditure on development of plot and construction of dwelling unit is less because in most of the cases, peripheral physical infrastructure is available on the site and beneficiaries also take part in planning and implementation of urban spaces with their self help. (v) This model is by the people, from the people and for the people. (vi) It would be a permanent settlement with accepted physical, social and economic infrastructure (vii) Part of the existing social infrastructure of adjoining localities can be shared by making two shifts arrangements in schools, dispensaries and in some other institutions. (viii) In this strategy, subject to density limitation some land has to be taken from adjoining areas/uses. Sometimes it involves change to land use and for this appropriate action should be taken. (ix) If process and time for change of land use has to be avoided or full floor space has to be used for a specific project, the ‘Development Control Regulations’ for Greater Bombay – March, 1991 should be applied, so that there is no loss of floor space in any particular use.

32.2 Specific Provisions on the Subject in ‘Trans Yamuna Area’ In Trans Yamuna area, there is no vacant pockets of land where plots of sites and services can be carved out. As such, it is clear that only two pronged strategy, namely; (i) Environmental improvement (ii) In/around situ development, construction of urban spaces for shanty can be adopted. It is clarified that ‘Environment Improvement’ is a temporary measure hardly remains in existence for 4-5 years and does not create any dent in the improvement of quality of life, so more emphasis should be for the second strategy.

32.3 Principles of Design of In/Around Situ Development (i) (ii)

Integration with adjoining areas with a view to share the existing physical, social and economic infrastructure. A fully developed and built up to plinth level, plot of 12.5 sq.mt. on the ground floor and at a later stage another 8-10 sq.mt. can be built on the first floor 276 R.G. GUPTA -–1995 www.rgplan.org

(iii)

(iv) (v)

(vi)

(vii)

(viii)

(ix)

approachable by a ladder from within the room. Type design has been given in Map 32.2. Utilities on Group Basis as given under and to be constructed by Delhi Development Authority has been shown in the cluster design in Map 32.3. One WC for three families. One bathroom for six families. One washing space for six families. One additional water tap of drinking water for 12 families. One dust bin for 24 families. Common private open courtyard @ 7 sq.mt. per family or 42 sq.mt. for six families. Physical infrastructure at the norms: Water supply @ 30 gallons per day per capita. Sewerage @ 24 gallons per day per capita. Drainage @ 2.5 cusecs per hect. Power @ 60 KW per hect. Minimum width of lane is 3 mtr. To be used only by pedestrians. Other roads are of 6 mtr., 9 mtr., and 12 mtr. Access to the cluster would be by 1.5 mtr. wide footpath. The proposal is based on low rise and high density development so that there is more and more involvement of the people living there and scheme is also ecolomised to a great extent against high rise and high density development. This arrangement has been shown in Map 32.1. In this strategy, the desirable densities are Gross density 200 DUs per gross hect. or 1,000 persons per gross hect. Net density 350 DUs per net hect. or 1,750 persons per net hect. Special norms for social infrastructure on reduced scales are proposed (a) Senior secondary school, one for 10,000 – 12,000 population against a standard of 7500 population given in the Delhi Master Plan. The school could have four storeys and a basement. Vocational technical education could be in the basement and ground floor while academic education from first to third floor. There would be two shifts in the school to make it be adequate for the population of 10,000-12,000 with regard to basic and vocational education. (b) Primary school could be one for between 5,000-7,000 population with two shifts in the building.

Like this, all the plots of public and semi-public buildings should be used more intensively and social infrastructure should be proposed after considering the existing available facilities. (x)

(xi)

Housing has been taken as a unit to improve the quality of life. In this complex, not only academic education would be imparted but technical training too. With the help of better health and education, more productions and earnings could be obtained. Economics of development and construction of housing units would be: (a) Development of physical infrastructure including construction of toilet blocks and dwelling units only up to plinth level would be done by the development authority. It would be financed partly from Plan funds of the Government of National Capital Territory of Delhi (GNCTD) and partly from Cross subsidies from other higher profitable uses and commercial units like District Centre and community shopping centres, commercial shopping centre etc. (b)Dwelling units would be constructed by individuals after making co-operative societies 277 R.G. GUPTA -–1995 www.rgplan.org

with the help of non-government oranisations by taking loans from the Government financial institutions on the prevailing rates of interest. The amount of loan would be repaid in 20 years based on their affordability. Duration of payment of loan should be such that payment of instalment should not be more than 15% of the average income of the family. (c) In the case of defaulter for more than six installments continuously, strict provision of getting the housing unit vacated should be followed. (d) Involvement of the community of the concerned society from the very beginning to be there not only upto the completion of development of plot and infrastructure or construction of dwelling unit but also in maintenance/management of urban spaces and imparting formal and informal education and maintenance of public health. In this system, development of the complex would be with public funds while construction of the dwelling units with the funds of beneficiaries.

32.4 Bombay Model It is by increasing proportionate floor area ratio of Facilities-cum-District Centre which is in the adjoining area by compensating losses due to rehabilitation of 2,338 shanty (jhuggi) dwellers; based on provisions given in ‘Development Control Regulations’ for Greater Bombay-25 March, 1991. Salient features of these provisions ‘Development Control Regulations’ are as under: 32.4.1 Additional Floor Space to be Allowed in the Following Categories (i)

(ii)

Road widening and construction of new roads-additional floor space equivalent to the floor space lost by affected portion of the plot and to be added on the remainder of the plot, subject to the condition that no compensation will be asked for by the owner of the plot of the affected part of the plot, is permissible. Low cost Housing Scheme of a government agency i.e. the Maharashtra Housing and Development Authority. If the component of economically weaker section and Low Income Group is at least 60% then additional FAR by 20% over and above the normal FAR is permitted on the entire plot.

32.4.2 Rehabilitation of Slum Dwellers through Owners / Developers / Cooperative House Societies of Slum Dwellers Following are the conditions: (i) FAR shall be restricted to a maximum of 2.5 (ii) Names of eligible slum dwellers on private or on Government land shall be duly certified by the concerned officer. (iii) All eligible slum dwellers residing on the plot to be developed shall have to be accommodated on the same plot as far as possible. (iv) Area required for social infrastructure shall be cleared and made available to the designated authority for this purpose. 278 R.G. GUPTA -–1995 www.rgplan.org

(v)

(vi) (vii)

(viii) (ix) (x)

(xi) (xii) (xiii) (xiv) (xv)

Each slum dweller/project affected family shall be given a tenement of carpet area of 16.75 sq.mt (including toilet but excluding common areas of circulation. The maximum density should not exceed 500 tenements per net hect. on the basis of FAR of one at the rate of 20 sq.mt. gross area per flat. In any scheme of redevelopment, commercial office area, or shop area, for the project of affected/slum dwellers shall not exceed the area which existed prior to the development of the property. The scheme provides 5% of the net plot area (excluding the area for civic amenities from gross plot) for commercial purposes. Design of building for rehabilitation of slum dwellers would be got approved from the competent authority. A multipurpose room shall be allowed of a size up to 12.5 sq.mt. with a minimum width of 2.4 mtr. Cooking space shall be allowed with a minimum size of 2.4 sq.mt. and with a minimum width of 1.2 mtr. A combined toilet shall be permitted for more than one tenement with a minimum area of 1.85 sq. m. and with a minimum width of one mtr. Plinth – 30 cm. External walls – 115 mm. Pathways – 1.5 mtr. up to 20 mtr. in length; 2 mtr. up to 30 mtr. in length; 2.5 mtr. up to 40 mtr. in length; 3 mtr. up to 50 mtr. in length. In case of notified slums on private lands, the Commissioner, Bombay, with the consent of the owner, may invite quotations for redevelopment in terms of surplus/tenements as provided in these Regulations from developers/owners.

In such cases, the owner would expect a return based on the existing balance land potential. This potential would be permitted FSI in that scheme minus the actual FSI consumed in the slum. In the quotations given by the owner developer, it would be presumed that he would have taken into account this aspect. Therefore, while evaluating and comparing the quotations from the owner and other developers, necessary loading should be done for proper evaluation of the bids. In case, however, the consent of the owner is not forthcoming within the stipulated time in accordance with the above conditions, such land can be developed according to the scheme after following acquisition proceedings under the respective Act. 32.4.3 Transfer of Development Rights This is a very important provision and the following are the salient features: (i) If a plot of land is reserved for a public purpose, the owner will be eligible for ‘Development Rights’ to the extent given under, after the said plot is surrendered free of cost to the concerned public authority. (ii) The built-up space for the purpose of Floor Space Index (FSI) credit shall be equal to the gross area of the reserved plot to be surrendered and will proportionately increase or decrease according to the permissible FAR to the Zone. (iii) The permissible FAR shall not increase more than 2.5.

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32.5 Location of the Particular Complex A layout plan of the area bounded by a 45 mtr. Inter State Bus Terminus (ISBT) Road in the South, 24 mtr. wide proposed road in the West (separating facilities-cum-District Centre), 13.5 mtr. wide road in the East and a 24 mtr. wide road and drain in the North has been prepared covering a total area of 12.5 hect. Out of this, 5.6 hect. is already occupied by the jhuggi cluster, three pour flush latrine blocks, some facilities and a large pond. Part of the area of facilities-cum-District Centre is still being encroached upon and if the area is not controlled, the entire area of facility-cum-District Centre may be encroached upon. Taking this point into consideration, change of landuse was proposed for 6.9 hect. from facilities-cumDistrict Centre to residential so that after clubbing with the existing area under shanty cluster stated above, 2,338 plots/dwelling units for shanty dwellers can be developed and constructed in the first Phase and 162 plots in the second Phase, when ‘Pour flush latrine’ complexes would be demolished after laying of conventional water and sewer system for the project.

32.6 Design of the Cluster 32.6.1 Analysis of the Site Shanty cluster along with existing facilities are in 5.6 hect., with more than 2,300 shanty families. This gives a gross density of 411 shanty units per hect. or 2,055 persons per hect. against the Master Plan gross density of 80 DUs per hect. or 400 persons per hect. meaning thereby that the existing density is five times of the permissible in the Master Plan, meaning thereby the situation is such that it is decongesting the area. There is no additional land available in the north, east and south of the existing shanty cluster and the only possibility is to carve out a strip of land of 6.9 hect. from the west which is meant for Facilities-cum-District Centre. After adding this, total area of the project comes to 12.5 hect. 32.6.2 Comparison with the Master Plan Land Uses/Areas If the proposal 12.5 hect. for ‘In/around Situ’ is accepted then available area for Facilities-Cum-Distt. Centre would be only in 22 hect. against a requirement of 43 hect. (including green areas). as given in the Delhi Master Plan-2001 and reproduced below in Table 32.1: Table 32.1: Landuses of the larger complex as per Master Plan of Delhi-2001 (i) (ii)

Use Area in hect. Shahdara (Shanti Park District Centre) 9 Facility Centre No. 11 with a 14.5 Provision of one college, Intermediate Hospital A (2 nos.), Head Post Office, Fire Station, 280 R.G. GUPTA -–1995 www.rgplan.org

(iii) (iv)

Nursing Home (2 nos.), Police Station. Service Centre Distt. Parks, playgrounds, open spaces. Total

1.5 18.0 43.0

Out of 43 hects., only 29 hect. was available in 1990.

32.6.3 Proposed modification in land-use break-up of 29 hect., but ultimately achieving the full Floor Area Ratio (FAR) of all the components: Table 32.2: Landuse of the larger complex as proposed for the scheme

(i) (ii)

(iii) (iv) (v)

Use Area in hect. Shahdara (Shastri Park) District Centre 9.0 Facility Centre (after deleting one college, 7.6 one intermediate hospital A and one intermediate hospital B). Service Centre 1.0 Distt. Park, playground, open spaces. 4.5 Area for ‘In/around Situ’ (to be clubbed with the existing shanties areas) 6.9 Total 29.0

One college, one intermediate hospital ‘A’ and one intermediate hospital ‘B’ would be provided in River Yamuna bed after reclaiming land and channelizing the river. Total area for ‘In/around Situ development’ would be 12.5 hect. including 6.9 hect. given above. 32.6.4 Parameters to Design the Clusters Area of one unit • Multi-purpose room including cooking corner (centre to centre dimensions). • Proportionate area of WC, bathroom and washing space which are on ‘Group Basis’ • Proportionate area of common courtyard • Total area for each unit (ii)

in Sq.mt. 12.5 2.0 7.0 21.5

Physical infrastructure: Services are proposed on group basis i.e. two W.Cs for six families, one bathroom for six families, one washing space for 6 families and one water tap for 12 families. These services have been clubbed to make the services economical. Out of two W.Cs one would be for females and the other for males. Ultimately, physical infrastructure would be provided on individual basis by giving water connection and electric connection to each housing unit. WC’s, bath room and washing space would continue as they are. 281 R.G. GUPTA -–1995 www.rgplan.org

(iii)

Initially the entire structure would be single storey but ultimately at a later stage one additional room of 10 sq.mt. can be added on the first floor for the same family, connection of ground floor and first floor room would be only with the help of a stable safe steel ladder.

32.6.5 Proposed Landuse Break Up of 12.5 Hect. Scheme of ‘In/Around Situ development and construction’. Table 32.3: Proposed land use for In/Around Situ development (i) • • • • •

Land use Residential Area Plots, toilet blocks Common courtyard Public and semi public facilities Roads and lanes Commercial Shopping Centre (formal & informal) Parks and green Total

Area in hect. 5.8 3.3 2.2 0.3 0.9 12.5

%age 46.4 27.4 17.6 2.4 7.2 100.0

32.6.6 Density of the Complex (i) (ii)

200 dwelling units per gross hect. or 1000 persons per gross hect. Net density of the complex (after excluding area of public and semi-public facilities and parks). 350 units per hect. or 1750 persons per hect.

32.6.7 Services of the Complex Plans of water supply, sewage disposal and Storm water drainage have been prepared in a scale of 1:1000 and quantities are as under: Total water quantity 2338x5x30 = 350,000 gallons/day Total sewage disposal 80% of 350,000 = 288,000 gallons/day. Total Power 780 Kilowatts 32.6.8 Estimate has been given in Appendix 32.1

32.7 Appropriate Technology of Prefab Construction (i) (ii) (iii) (iv)

The tunnel technology – Following are the salient features of the system: Construction of walls and slabs in a single pour concrete, with no joint between wall and slabs. Absolutely plaster free and jointless concrete surfaces. Pneumatic vibration system which vibrates the shuttering @ 15000 strokes per minutes. Form units of maximum 2,400 mm width which can be easily transported by standard lorries. 282 R.G. GUPTA -–1995 www.rgplan.org

(v) (vi) (vii) (viii) (ix) (x) (xi) (xii)

Improved aesthetics due to elimination of column and beams projections. Higher percentage of plinth area due to thinner concrete walls of 15 cm. thick. Better rigidity against lateral forces due to wind and earthquake. 80-85% of the structure is monolithic. Foundations are of conventional types like inverted ‘T’ shapes beams. Use of admixtures and plasticisers is essential to attain workability. Curing of concrete by hot air blowers in electric furnaces for smooth and high quality. Repair cost is totally eliminated due to walls and ceiling being of smooth and high quality exposed concrete without any plaster.

32.8 Rehabilitation through Multi-storeyed Construction (i)

By increasing proportionate Floor Area Ratio (FAR) of Facilities-cum-District Centre to compensate losses due to rehabilitation of 2,338 shanty (jhuggis) on the system of ‘In/Around Situ’ development and construction. In this case, FAR would be as under:

Floor area of 293,900 sq.mt. has to be accommodated on a total plot of 35.6 hect. i.e. an average Floor Area Ratio of 83 which is not high but towards lower side.

(ii)

Multi-storey construction: The project of ‘In/Around Situ’ development and construction of urban spaces can be two, three, four or maximum five storeyed. In doing so achieved density would be much more than in single/double storey model. Multistoreyed construction would have the following negative consequences.

Table 32.4: Required floor area of district centre and facility centre in case the proposed project is implemented Name of the project

Area in Hect. as per Master Plan 9 14.5

Required floor area as per Master Plan in sq.mt. 101,250 125,000

(a) (b)

Distt. Centre Facility Centre

(c)

Service Centre Sub Total In/Around situ development

1.5 25.0 12.5

11,250 237,500 56,000

Total

37.5

293,900

(d)

Remarks

2 hect. left for college playground

2400 dwelling units each of 23.5 sq.mt.

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(a)

A gross density of more than 200 D.U. per hect. would be too high to provide physical, social and economic infrastructure. (b) Entire construction has to be with public funds and it would be difficult to channelize private funds. (c) Idea of self-help and self-involvement would be defeated. (d) Structures would be in R.C.C. framework and local materials or skills cannot be used. (e) Time taken in construction of multistorey dwelling units would be much more than of single storey construction. (f) Better open areas can be created in multistoried construction.

284 R.G. GUPTA -–1995 www.rgplan.org

Appendix 32.1 Estimates of the project of In/Around Situ construction/site upgradation programme at Seelampur S.No. 1. 2. 3. 4. 5.

6. 7. 8.

9. 10. 11.

Item Site development Cost of brick-edging in 387 courtyards and passages. Construction cost of superstructure of 2338 rooms Construction cost of foundation and plinth of 2,338 rooms Constn. cost of toilet blocks including tap between two toilet blocks. Construction cost of dhalao Construction cost of dustbins Total cost excluding the construction cost of superstructure of rooms (at sr. no. 3) Add 15% department charges Add 2.5% Maintenance charge for two years Total cost of development per D.U. =

No.

Unit rate in Rs.

Amount in Rs.

387

1,549.64

11,851,438.00 599,708.74

2,338

13,497.00

31,555,986.00

2,338

1,993.82

4,661,551.10

391

17,333.00

6,777,203.00

2 LS 264 LS

80,000.00 5,000.00

160,000.00 1,320,000.00 25,369,900.00

3,805,485.00 729,385.00 29,904,770.00 12,790.75

29,904,770 2338

Therefore, the position is – 1.

2.

3.

Total cost of development including construction of toilet blocks and units up to plinth level per dwelling unit Total cost of construction per D.U. This amount would be returned in a period of 15 years with a rate of interest of 9% at a monthly instalment of Rs. 126.00 Total cost of development and construction per unit.

12,791.00

13,497.00

26288.00

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33 Zonal Plan Delhi Trans-Yamuna Area

33.1 33.2

Preparation of Zonal Plans in General Dimensions of Issues and Solutions of Trans-Yamuna Area

33.1 Preparation of Zonal Plans in General (i)

Delhi is divided into 15 planning zones and many sub-zones, plans of which are prepared under Section 8 of the Delhi Development Act, 1957. Details of Section 8 and various court decisions are given in Appendix 33.1, and extracts given under:

‘A’ zonal plan will show locations and extent of land uses, public and semipublic buildings, utilities and services, roads, housing, recreation, industries, business, markets, schools, hospitals, public and private open spaces, standard of population density, alignment of buildings, system of maintenance of various components of development etc.’ Some of the important paragraphs of the court’s decision have been reproduced under: (a) A Zonal Development Plan should consist of everything in detail including the use of land, use of building … and different utilities services. (a) The Supreme Court dismissed the appeal of MCD that decision can be taken only based on zonal development plan which shows every area in detail and also the use of land and building. (b) In another case, title as P.S. Gill versus UOI, it was held that even the acquisition of land for planned development in Delhi must conform to the Master Plan and Zonal Development Plans. This can be interpreted that first a zonal plan should be prepared and then layout plan can be prepared. Preparation of zonal plans (now called sub-zonal plans) was started in the early sixties. Initially, the entire job was done by the Town and Country Planning Organisation, Government of India and then in the late seventees it was transferred to the Delhi Development Authority. Up to March 1992, i.e. in the last 30 years, plans of various sub-zones were prepared and processed under various stages. The 289 R.G. GUPTA -–1995 www.rgplan.org

position on 31 March 1992 was that plans of 56 sub-zones were approved by the Central Government, 23 submitted to the Government/referred back, 11 approved by the Authority/Screening Board/being processed for submission to the Government, 36 belonged to special areas, 10 to railways/defence area and four could not be taken up due to major changes in land use. (ii)

Inadequately and incompleteness of zonal plans prepared so far: (a) So far none of the zonal plans prepared, finalized and approval has shown provision of physical infrastructure i.e water lines, sewer lines, storm water drains, power lines etc. Though computer-based software is available, yet so far no expertise has been developed in the field. The result is that none of the zonal plans is complete in respect of – (i) physical infrastructure; (ii) social infrastructure; (iii) economic infrastructure; (iv) circulation; (v) land owernship and (vi) broad economics. (b) Some of the sub-zonal plans are in the scale of 1:6000 or 1” = 500’. These plans are readable and inferences can be drawn.

Many sub-zonal plans are in the scale of 1:10,000 and are not good for any purpose, as these are not readable, non-conclusive and specific properties cannot be identified in the plan, examples are – D 17, 18, 19, F-2 & 3; F-10 and 16. Like this, most of the zonal plans are not readable as their scale is very small. It is strongly recommended that sub-zonal plan should not be in the scale less than 1:5000. (c) All sub-zonal plans prepared so far are based on base maps prepared on the basis of aerial surveys of sixties or seventies. In this dynamic age, site conditions and land use patterns change after every five years. As such, new sub-zonal plans should be based on the 1990s base maps and not of 70s or 80s. For example, in Trans-Yamuna area none of the draft zonal plans tallies with the site conditions even to the extent of 10% of the existing situation. (iii)

Provisions as given in MPD-2001: Zonal (Divisional) Plan The National Capital Territory of Delhi is divided into 15 zones (divisions).

The approximate area in each zone (division) is given in Table 33.1 and shown in Map 33.1. Table 33.1: 15 Zones of Delhi and area of each zone

A. B. C. E. F. G. H. J. K.

Name of the Zone Old City City Extension (Karol Bagh) Civil Lines Trans Yamuna South Delhi I West Delhi I North West Delhi I South Delhi II West Delhi II

Area in Hect. 1159 2304 6855 8797 11958 11865 5677 15178 12056

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L. M. N. O. P.

West Delhi III North West Delhi II North West Delhi III River Yamuna North Delhi Total

22979 8213 15851 6081 15707 148639

A zone could be divided into sub-zones by the Authority. The Zonal (divisional) plans shall details out the policies of the Master Plan, and act as link between the layout plan and the Master Plan. The development schemes, layout plans indicating use premises shall conform to the Master Plan/Zonal (divisional) plans. These plans for zones (divisions) A to H shall be published as soon as may be, after the Master Plan for Delhi (Perspective-2001) is notified within a maximum period of three years, and would have the same status as the Master Plan for Delhi. The zonal (divisional) plans for Zone J to P shall be prepared as per the development needs. The zonal (divisional) plans of the area shall be prepared under Section-8 and processed under Section-10 and simultaneously the modifications of land use shall be processed under Section-11 (A) of the Delhi Development Act. Already approved sub-zonal (earlier named zonal) plans in conformity with the Master Plan shall continue to be operative. In the absence of zonal plan of any areas, the development shall be in accordance with the Master Plan. (iv) Social infrastructure and broad facilities to be shown in the new Zonal Plan as given in MPD-2001. Neighbourhood play area, intermediate hospital A, intermediate hospital B, Polyclinic, nursing home, integrated school with hostel facilities, integrated school without hostel facilities, school for handicapped, college, police station, LPG godown, SKO/LDO station electric sub-station, community centre with service centre, organized informal sector eating places, district sport centre, petrol pump, bus terminal, green park, general hospital, telephone exchange, telegraph office, head post office and administrative office, fire station, electric sub-station-220 KV, petrol pump with service facilities, district centre, bus terminal, bus depot, technical education centre-A, technical education centre-B, police battalion and district office, district jail, homeguard district level, socio-cultural, local wholesale market, divisional sport centre, etc. (v) Ten important factors on which zonal plans should be based: (Proposal) (a) Base maps in the scale of (1) 1:1000 and 1:5000; (b) Land ownership map and land policy (1) Existing (2) Proposed; (c) Relationship of physical, social and economic infrastructure with (1) Delhi Urban Area; (2) National Capital of Delhi; (3) Delhi Metropolitan Area; (4) National Capital Region; (d) Land use at meso level and location of important economic activities; (1) Existing (2) Proposed; (e) Plans of physical in-control water, air, noise, and soil pollution; (g) Plans for development of sub-standard areas to bring them at par with standard planned areas; (h) Plans of traffic and transportation, inter-zonal and intra-zonal (1) Existing (2) Proposed; (i) Plans of social and economic infrastructure; (1) Existing (2) Proposed; (j) Broad economics on development and construction of urban spaces 291 R.G. GUPTA -–1995 www.rgplan.org

(vi) General view about the Zonal Plans: So far, nowhere in the country, zonal plan on this system has been prepared, as such they are not complete, and comprehensive and do not serve any purpose of preparation of detailed plans of urban spaces, their development and construction. Zonal plans in the Delhi Development Authority are being prepared since three decades, but so far there is not a single zonal plan showing total development of physical infrastructure, social infrastructure, economic infrastructure, circulation and environmental infrastructure. Enactment of MPD-2001 has created more confusion rather than solving its some of the points. Basis on which zonal plans are pending since 7 to 8 years are on the plea that now zonal (divisional) plans would be prepared based on new concept of MPD-2001. Main points are given below. (a) For this, it is stated that there cannot be any change in the concept of preparation of zonal plans, till Delhi Development Act is modified. Plans are prepared under Section-8 of Delhi Development Act, which is very comprehensive, as such, the same system should continue. This confusion that new concept would come into action has wasted 8 years. (b) Earlier also, some sub zonal plans were prepared separately i.e. one for one sub zone and in many cases on one sheet more than one sub-zones; for example-plans of D-17, 18,19,20; F-2 and 3 i.e. six sub zones were in one sheet. This sub zonal plan is one of the most confusing one and do not interpret any correct thing, and on this basis, DDA have lost many court cases. (c) So far, zonal plans have been prepared in the scale of 1:6000 or 1:10,000. New plan should be prepared in the scale of 1:5000 (metric scale). In this scale, most of the information can be read, because individuals would like to know whether their properties are affected in any of the proposals or in circulation system, then only one can put objections/suggestions. (d) Assuming a normal sheet of 100 cm. x 120 cm., an area of about 180 hect. in the scale of 1:5000 can be covered. If we see area of each zone (planning division) as shown in Table 33.1 and Map 33.1, each requires many sheets, meaning thereby that zonal plans of one zone would be prepared in many sheets i.e. on the old system after integrating with adjoining areas. Boundary of sub-divisions of a zone can be on the basis of old system or based on physical features as done earlier. (e) In case of Walled City and Slum Areas, these plans have to be in the scale of 1:2000 or 1:1000, so position of each and every property is clear. (vii) Proposals for preparation of Zonal Plans: (a) Base maps of the entire NCTD should be got prepared with the help of National Remote Sensing Agency (NRSA), Hyderabad or some other private company and on suitable computer system; (b) Service Planning Unit of Engineering Cell should be associated with the preparation of plans of all the zones. (c) Input of financial planning should also be added while making plans of all the zones. It is made clear that no zonal plan can be prepared, may be by engaging all the planners of Delhi till action is taken on the following points: • Base maps which would take at least one year after the decision is taken. This is the most important point and since last four years, no attention has been paid, the result being that no concrete action on preparation of zonal plans can be started. 292 R.G. GUPTA -–1995 www.rgplan.org

• • •

To introduce discipline of utilities and services in the preparation of zonal plans. On this subject, computer system with software should be used. To prepare Traffic and Transportation plans of each zone. For this study of one example of sub zone G-9 was taken and complete. This may be used as prototype study. To work out economy based on input and output analysis; details on – (i)sources of funds i.e. public, cooperative and private; (ii) cross-subsidies from different land uses to various income groups; (iii) phasing of financial development etc. should be made available.

33.2 Dimensions, Issues and Solutions of Trans-Yamuna Area For the preparation of zonal plan, the following four components should be studied and action taken. (i) Physical Dimensions of Trans Yamuna Area The National Capital Territory of Delhi is divided into two distinct parts, one in the cast of river Yamuna and the other in the west. The area of the portion in the east of river Yamuna, called Trans-Yamuna Area, is in 8797 hect., surrounded by U.P. State on three sides with Loni in the north, extensions of Ghaziabad in the east, and Noida in the south. This large complex largely has substandard areas, except new developments in 20% of the area with residential complexes of cooperative house building societies plus colonies developed by the DDA. Sooner or later, this entire complex of 88 sq.km. should be planned, coordinated, integrated, evaluated and monitored by one single authority; of course, development, redevelopment and construction of urban spaces can be by many authorities, organizations and departments. Population of the Trans ‘Yamuna area was 438,000 in 1971, 964,000 in 1981, 2.1 million in 1991, expected to be 2.7 million in 2001 and 3.0 million in 2010 A.D. As per the Master Plan of Delhi-62, the entire area was divided into 16 planning zones (sub zones), leaving out areas in the north of Warirabad Road and in the south of National Highway No. 24. In MPD-2001, these two areas were added up and three more planning zones (sub zones) were created, making a total of 19 subzones, namely – E-1, E-2, E-3, E-4…. Up to E-19. (ii)

Decisions about comprehensive planning

The area has many complications in terms of inadequate physical, social and economic infrastructure. The Government in early 1978 decided ‘to set up a Planning Group’ for Comprehensive Planning and Development of the TransYamuna Area, but so far no success has been achieved. If this had been done, then lot of progress in the Trans-Yamuna Area would have been taken place. Following were the terms of references of the government in 1978: • To study the present status (1978) of development in the area. • To suggest proposed lines of development in the various sectors in accordance with the Delhi Master Plan-62’s recommendations and other 293 R.G. GUPTA -–1995 www.rgplan.org

• • • • (iii)

Government orders and also the existing development that has already taken place. To recommend priority action for development in phases. To indicate capital budget estimates for the purpose of implementation of the development plans. To suggest suitable organizational machinery for implementation of the development plan. To consider all matters ancillary to the above terms of reference. Creation of a separate Board for Trans Yamuna Area with suitable structure and functions:

A separate Board may be created with total functions of physical, financial and legal planning of the entire Trans-Yamuna Area in 88 sq.km., for all the subjects, namely, water supply, sewage disposal, storm water drainage, power, telecommunication, roads, urban rail, gas supply, residential colonies, industrial colonies, convenient shopping centres, local shopping centres, community shopping centres, district centres, sub-central business district, environmental improvement in slum areas, environmental improvement in shanty/jhuggi clusters, in/around situ development in shanty clusters, sites and services, night shelters, community hall/libraries, buildings of education, health, social security, and social justice, cooperative group housing societies, large gardens, sports complex, location of physical infrastructure, at all the levels, namely, trunk, peripheral and internal. In other words the Board should have the functions of planning, development, construction of urban spaces directly or indirectly and at the top of it, coordination, integration, evaluation and monitoring of all the subjects and departments. Accordingly, structure of the Board should be worked out and decided. The Board should have legal powers for different activities. (iv) Plans of various components, namely, (a) Land use at meso level; (b) plans of physical infrastructure; (c) Plans to stop and control pollution; (d) Plans of traffic and transportation, and (e) Plans of social infrastructure would be prepared based on various details. The names of the 22 sectors of planning in the Trans-Yamuna Area are given under: 1. Residential Plotted Development 2. Plotted Co-operative House Building Societies 3. Resettlement Colonies 4. Group Housing by the Delhi Development Authority 5. Rehabilitation Colonies 6. Residential units by Organisations/Departments other than the DDA 7. Large residential complexes in Trans-Yamuna Area 8. Group Housing Co-operative Societies 9. Unauthorised Regularised Colonies 10. Unauthorised Colonies 11. Urban and Rural Villages 12. Plotted Industrial Schemes 13. Non-conforming industrial Units 14. Socio-cultural Institutional Complexes 15. Social Infrastructure (Facility Centre and Service Centre) 16. Wholesale Markets 17. Commercial Complexes 18. Recreational Complexes 19. Physical Infrastructure – Water; Sewage disposal; Power; Storm water drainage; Gas supply; Telephone system; Scavenging and sanitation; Fire services; 20. 294 R.G. GUPTA -–1995 www.rgplan.org

Traffic and Transportation 21. Metropolitan Passenger Railway Terminal 22. Projects concerning the Slum Wing, DDA/Board. These 22 sectors have been outlined in 22 parts and would be useful while making zonal plan of the area. Preparation of zonal plan can be started only after getting base map in a particular scale as details given in Chapter 22 (Base Maps Preparation). 33.2.1 Residential Plotted Development (i)

(ii)

(iii)

Six types of residential plotted development are there in Trans-Yamuna Area: (a) Residential plotted development done by the Delhi Improvement Trust. (b) Residential plotted development done by the Ministry of Rehabilitation. (c) Colonies developed by private colonizers, namely, DLF, etc. (d) Residential plotted development done by the Delhi Development Authority. (e) 43 plotted co-operative house building societies. (f) 7 large resettlement colonies. DDA developed in late 60s one colony, namely, Vivek Vihar in an area of 105 hect. and in 70s, Yamuna Vihar in 80 hect. These two colonies have been developed and there is no further scope of any additions or deletion, except minor modifications. Action on following points should be taken:

These colonies should be saved from encroaches and unauthoised construction. Maintenance of urban spaces i.e. (a) facades of the building; (b) physical infrastructure and (c) street furniture should be well done, otherwise the colonies may turn down to slum conditions. For the maintenance of urban spaces, NonGovernment Organisations (NGOs) should be formed and involved. 33.2.2 Plotted Co-operations House Building Societies (i)

(ii)

In early ‘70s, Delhi Administration/Delhi Development Authority allotted 434 hect. of land to 43 Co-operative House Building Societies. Internal development of all these colonies was done by the societies themselves and peripheral development by Delhi Development Authority. Action on the points should be taken: (a) Peripheral infrastructure should be completed by the DDA, and for this cost of actual expenditure should be charged from the beneficiaries. At present, the Delhi Development Authority is charging hardly 30% of the total expenditure. (b) Many sites of social infrastructure are lying vacant and also being encroached upon. Concerned departments of MCD and Delhi Govt. should construct buildings over there. If funds are not available for the construction of permanent buildings, then concerned departments should start functioning in tents. Some of the sites can be allotted to the registered co-operative societies as per rules and regulations. (c) There is provision of many community shopping centres, local shopping centres and convenient shopping centres. Hardly 40% have been planned and built upon by the DDA. It is stressed that all the centres should be taken up for proper planning, development, construction and disposal. While planning the centres, due care should be taken to provide adequate parking, which so far has not been done. 295 R.G. GUPTA -–1995 www.rgplan.org

33.2.3 Resettlement Colonies (i)

There are 7 large resettlement colonies namely: (a) Nand Nagri-I &II, including Sunder Nagri in 50.58 hect.; (b) Gokalpuri in 14.86 hect.; (c) Old and new Seemapuri in 36.94 hect.; (d) Marginal Bundh Shahdara in 34.2 hect.; (e) Seelampur Old & New in 83.6 hect.; (g) Trilokpuri, Kalyanpuri, Khichripur and Himmatpuri in 168 hect. and (g) the Kondli-Gharoli Complex in 41.0hect.

In 1975-76, in these colonies, physical infrastructure was laid at the rate of one hand pump for 31 families, one water hydrant for 70 families or at an average of one water point for 22 families, one W.C. seat for 7 families. Later on, the number of water points and W.C. seats was increased. Plots for social infrastructure were provided at the rate of one college for 150,000 population, one hospital for 150,000 population, one cinema hall with 1,000 seating capacity for 100,000 population, one fire station for 100,000 population, one senior secondary school for 10,000 population; one primary school for 5,000 population, one nursery school for 10,000 population; one dispensary for 14,000 population; one community hall and library for 20,000 population; one religious site for 3,000 population; one police post for 25,000 population, one shop for 10 persons, etc. Some of the sites have been built upon and some have been encroached upon and some are still lying vacant. (ii)

Action on the points should be taken: (a) Laying of internal and peripheral physical infrastructure i.e. water lines, sewer lines, sewer lines and electric lines should be completed by the Municipal Corporation of Delhi at the earliest. This work is being done with the Plan Funds of the Government of National Capital Territory of Delhi (GNCTD) (b) Sites of social infrastructure which are encroached upon should be got vacated and used for the facilities; and likewise vacant sites too.

33.2.4 Group Housing by the Delhi Development Authority (i)

(ii)

During the last 18 years, the DDA constructed/is constructing 52,834 dwelling units in 21 colonies with a break-up of 1,476 in Dilshad Garden, 300 in Himmatpuri; 130 in Kalyandpuri; 5886 in Nand Nagri; 416 in new Seemapuri; 316 in Vivek Vihar; 11098 in Mayur Vihar; 926 in Gazipur; 110 in Shahdara; 256 in Zaffrabad; 88 in Nirman Vihar; 114 in Shakarpur; 607 in Gharoli; 488 in Mansarovar Park; 2702 in East-of-Loni Road; 640 in Chilla; 46 in Bhatnagar Society; 1252 in Jhilmil; 1360 in Madnavali Fazalpur; 840 in West of Loni Road and 5300 in Kondli. Points for consideration/necessary actions are (a) Practically there is a little scope for taking up construction of new group housing, as the entire area of Trans-Yamuna Area is already built upon; (b) Whatsoever group housing have been constructed, should be handed over to Municipal Corporation of Delhi (if not already done) for the maintenance of services viz. physical, social and economic; (c) Construction of compound walls and fencing between group housing pockets and surrounding areas including of villages should be discouraged; (d) maintenance of external facades and street furniture. 296 R.G. GUPTA -–1995 www.rgplan.org

33.2.5 Rehabilitation Colonies In the Trans-Yamuna Area, there are some rehabilitation colonies like Geeta Colony, Krishna Nagar, Navin Shahdara, etc. In Geeta Colony, many plots were transferred by the Ministry of Rehabilitation to the DDA as part of a package deal on payment of Rs. 300 million for all the left out pockets/plots of rehabilitation colonies of Delhi for the purpose of planning, development, construction and disposal of urban spaces. Action is being taken to plan, develop and/or construct urban spaces. This should be expedited and completed in time. 33.2.6 Residential Units by Other Organisations/Government Departments Other than the DDA Residential units have been constructed from time to time by other organizations/government departments other than the DDA. These organizations are – (i) the Police department; (ii) educational institutions; (iii) New Delhi Municipal Committee (NDMC); (iv) Public Works Department (PWD); (v) Municipal Corporation of Delhi (MCD); Colonies like Dilshad Garden, Jyoti Nagar and Vishwas Nagar have been developed by private colonizers. Requirements of housing; needs of various departments of Government of National Capital Territory of Delhi (GNCTD). Municipal Corporation of Delhi and their Services Department should be worked out after discussing the matter with them, and then housing pockets should be earmarked. It is clarified that there is limited scope of allotment of residential land to any of the government departments, or cooperative society due to non-availability of land in this part of Delhi i.e. in Trans Yamuna Area.

33.2.7 Large Residential Complexes in the Trans-Yamuna Area (i)

Area in the north of Wazirabad Road; (a) A report and plan on the development of a large residential complex of 1460 hect. was prepared in 1985, but no further action was taken, the result being that most of the areas now have been encroached upon and filled up by unauthorized construction/colonies. In the Complex, there are 10 villages, 11 unauthorized colonies, one 100 mgd. treatment plant and one resettlement colony. It is clarified that the plan was not implemented. However the proposed land use of the Complex was as in Table 33.2: Table 33.2: Landuse break-up of north of Wazirabad Complex Land use

• • •

Area in hect. Residential including village, 679.5 resettlement colony, Plotted development and group housing 57.45 Work spaces 65.39 Government Offices

%age 46.5

3.9 4.5

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• • •

Public and semi-public facilities Recreational Circulation Total

123.03 463.19 71.64 1460.25

8.5 31.7 4.9 100.00

(b)

Points for consideration and necessary action: Whatsoever pockets are left and not encroached upon, should be planned, developed, constructed and used for social and economic infrastructure. (ii) 658 hect. in the south of Hindon Cut: The Complex was planned, largely developed and constructed upon. There are three villages, namely- Dallupura, Gharoli and Kondli, one dairy farm and one sewage treatment plant in 62 hect. It has two main features-(i) 126 hect. of land to 50 group housing societies and (ii) 12,000 plots of 26 sq.mt. The proposed landuse of the area is as in Table 33.3: Table 33.3: Landuse break-up of south of Hindon Cut Complex Land use Residential Commercial Part of Integrated Freight Complex Public and semi-public facilities Recreational Circulation Total

Area in hect. 322.0 24.5 80.0 122.5 50.5 58.5 658.0

%age 48.9 3.7 12.2 18.6 7.7 8.9 100.00

Though lot of work has already been done, the following action is yet to be undertaken: • Construction of 45 mt. wide road parallel to Hindon Cut. • Grade separator of 45 mt. wide road with NH-24 at the boundary of Delhi, UP, and other grade separators specially a bridge on Hindon Cut and Gazipur Drain. • Planning, development and construction of convenient shopping centres, local shopping centres, community shopping centres and one facility centre. • Planning, development and construction of an integrated freight complex cumwholesale markets. • Allotment of sites of social infrastructure to government semi-government and registered societies. 33.2.8 Group Housing Co-operative Societies (i)

Pockets of residential lands were identified, planned and allotted to 217 group housing co-operative societies with a break-up of – four in Geeta Colony; six in CBD Shahdara; 118 in Mandawali Fazalpur; 16 in Mayur Vihar Phase-I; 22 in Mayur Vihar Phase-II and 51 in Dallupura. Plans of these complexes were approved by the Delhi Urban Arts Commission and then pockets were handed 298 R.G. GUPTA -–1995 www.rgplan.org

(ii)

over to co-operative group housing societies. In most of the cases, flats have also been built upon. Further action is required: (a) Landscape plans of these complexes should be prepared and sent to the Delhi Urban Art Commission (DUAC) for approval, as it was one of the conditions of approval of layout plans at the time when plans were approved; (b) Plans of sites of social infrastructure should be prepared, finalized and buildings constructed by concerned departments of the Government of National Capital Territory of Delhi (GNCTD) the Municipal Corporation of Delhi (MCD), registered societies, etc,; (c) There are some sites earmarked for convenient shopping centres and local shopping centres. Plans of these centres should be prepared, executed, developed and constructed and then built-up units should be disposed off.

33.2.9 Unauthorized Regularized Colonies (i)

(a)

(b) (c)

(d)

In this part of Delhi, there are 87 unauthorized regularized colonies which were transferred to the Municipal Corporation of Delhi (MCD) in 1987. Location of these colonies are – (a) three in east of Loni Road; (b) six in Bhajanpura Complex; (c) three in Mayur Vihar Complex; (d) 11 in Brahampuri Complex; (e) six in Zaffrabad Complex; (f) nine in Usmanpur Complex; (g) 11 in Shakarpur Complex; (h) 21 in Laxmi Nagar Complex; (i) three in Mauzpur Part-II Complex and (j) 14 in Patparganj Complex. The following action is required: Pockets earmarked for social infrastructure should be acquired by putting Section-4,6 and 17 simultaneously, taking possession, protecting and using them. Collection of premium from the residents whose structures were regularized on government land should be made as per formula of the government. Collection of development charges from beneficiaries and for this, if necessary, modifications in the Delhi Development Act as well as in the Municipal Corporation Act should be brought out. Development of all these colonies should be undertaken, but only with the funds to be collected from beneficiaries, with the help of cooperative societies and non-government organizations.

33.2.10 Unauthorized Colonies In the Trans-Yamuna Area, there are many unauthorized colonies which have so far not been considered for regularization as they are not covered under the latest government orders dated February 1977. These colonies are mostly in the north of Wazirabad Road and left out pockets either for social infrastructure or otherwise, in different parts of Trans-Yamuna Area. So far, there is no quantification of the problem of unauthorized construction/colonies and further action for regularization of these colonies would be undertaken after the policy is formulated and approved.

299 R.G. GUPTA -–1995 www.rgplan.org

33.2.11 Urban and Rural Villages There are 41 villages with a break-up of 14 in the north of Wazirabad Road, 10 between Wazirabad Road and G. T. Shahdara Road, 10 between G.T. Shahdara Road and National Highway No. 24, and seven in the south of NH-24. Out of 41 villages, as per 1971 census earlier 17 were urban and 24 rural, but now most of these villages have urban character. As such, 24 villages should be notified under Section-517 (a) of the DMC Act. Plans of all these villages should be prepared and development should be undertaken as per policies and guidelines. Details of urban villages of Delhi has been given in Chapter 35 (Housing in Urban Villages). Some important points have also been given under: (i) (ii) (iii)

Physical surveys of all the 41 villages should be conducted showing the physical features. Physical and financial plans of all these villages should be prepared and got approved. Development works in these villages should be completed. Along with development, adequate number of community halls/libraries and Barat Ghars should be constructed to facilitate the public living there.

33.2.12 Plotted Industrial Scehemes In the late ‘60s, the Delhi Development Authority developed as industrial estate namely, Jhilmil, in an area of 109 hect. for light and service type of industries. The industrial estate is functioning since the last 20-25 years. Another industrial estate of 100 hect. at Patparganj was being planned and developed by the Directorate of Industries, Government of National Capital Territory of Delhi (GNCTD). The estate is under development and it is expected that by the 8th Five Year Plan, some of the industrial urban spaces would function. An another area of 80 hect. in the Kondli Complex was reserved for industrial use but now it is being developed for a large terminal integrated freight complex-cum-wholesale market.

33.2.13 Non-conforming Industrial Units The problem of shifting of non-conforming industrial units in Trans-Yamuna Area is under consideration in the Delhi Development Authority since the early ‘60s. The last decision on the subject took place in the Ministry in 1974 to shift all such non-conforming industrial units, whose details were prepared by the Delhi Development Authority. After 1974, so substantial action was taken. Many of the non-conforming industrial units are large and their shifting within Trans-Yamuna Area or National Capital Territory of Delhi is not feasible. So these units should be shifted to Noida or greater Noida or in industrial areas developed by the Ghaziabad Development Authority or anywhere in the National Capital Region. If nothing is possible, then these should be closed down.

300 R.G. GUPTA -–1995 www.rgplan.org

33.2.14 Socio-Cultural Institutional Complexes The Trans-Yamuna Area is devoid of social and cultural facilities. So far only four institutional areas have been planned and developed in a total area of 14.7 hect. with 59 plots. For a projected population of 2.7 million, few more institutional areas should be planned and developed. Names of institutional complexes which have been planned are as under: If nothing is possible, then these should be closed down. (i) (ii) (iii) (iv)

Vishwas Nagar in 4.7 hect. with 28 plots. Karkardooma in 16 hect. with 54 plots. South of Vikas Marg Extension in 6 hect. with 8 plots Near Khureji has in 1.5 hect. with 12 plots.

33.2.15 Social Infrastructure (Facility Centres and Service Centres) This is a very important component in the entire planning process/urban development; as provisions and making available of social infrastructure improve the quality of life. Trans Yamuna Area which is in 88 sq.km is very much deficit in terms of public and semi-public use/social and cultural institutions. It occupies an area of 594 hect. (6.76%) for all types of social infrastructure concerning to education, health, security etc. In the proposal, it is tried to increase this percentage from 6.76% to 10% i.e. by 3.24% by taking an area partly from river Yamuna bed, partly using vacant pockets. The proposal has been explained in the following parts: (i) (ii) (iii) (i)

Requirement of social infrastructure as per MPD 2001 for ultimate population 2.7 million (Appendix 33.2). List of facility centres and service centres as proposed in MPD 2001 (Appendix No. 33.3) Final list of facilities/service centres (Appendix 33.4) Requirement of Social Infrastructure as per Master Plan 2001 Norms (Appendix 33.2) For a total population of 2.7 million there is a requirement of 11 general hospitals, 27 intermediate hospitals (Category A), 27 intermediate hospitals (Category B), 27 poly-clinic with some observation beds, 60 nursing homes, child welfare and Maternity centres, 180 dispensaries, 1080 nursery schools, 540 primary schools, 360 senior secondary schools, 27 integrated schools without hostel facilities, 27 integrated schools with hostel facilities, 60 schools for handicapped, 22 colleges, one university campus, three technical education centres (A), three technical centre (B), seven telephone exchanges, five telegraph offices, 180 post offices, 11 head post offices with delivery office, five head post office and administrative office, 30 police stations, 54 police post, one police line, one district jail, 67 gas godowns, 540 committee rooms, 180 community hall and libraries, 27 recreational clubs, 27 music, dance and drama centres, 27 meditation and spiritual centre, three large socio-cultural centre. Like this, there is a need of 3662 facilities in 1994 – 441* = 1543 hect. (441* hect. is for such facilities like engineering college, 301 R.G. GUPTA -–1995 www.rgplan.org

medical college, civil defence and home guards etc., which are deleted as these are not required separately for T.Y.A) (ii)

List of facility centres and service centres in as proposed MPD 2001 (Appendix 33.3): 19 facilities centres in 183.4 hect. and 11 service centres in 84.18 hect. are proposed in the master plan. Many of the sites are encroached one as such, in the last six months, DDA did a comprehensive exercise to locate, plan and develop new facility and service centres, as details given in the next para.

(iii)

Final list of facilities/service centres (Appendix 33.4): 26 facilities/service centres have been identified to provide Intermediate hospital, Category-A (3), intermediate hospital, category-B (6), polyclinics (4), nursing homes (9), dispensaries (9), primary schools (14), middle schools (3), senior secondary schools (7), college (3), head post office and telegraph (9), police stations (9), police post (4), fire stations (5), gas godown (7), SKO Depot (2), telephone exchanges (6), RLU (2), bus terminuses (9), petrol pumps (11), electric substations (11), convenient shopping centres (3), local shopping centre (1), religious buildings (4), women hostel (3), men hostel (1), hotel (1) and some other facilities. Plans of most of these centres including in 40 hect. have been prepared and approved. Some of the complexes have been demarcated on site and plots have been allotted.

(iv)

Master Plan of facilities namely: (a) education (b) health (c) social security (d) fire stations (e) gas godowns and (f) telephone exchanges. (a) Education: Higher Level Educational Facilities; Trans Yamuna Area is very much deficit in educational facilities. It has two colleges against a requirement of 22, and one medical college. Names of these colleges are Shyam Lal College in Zone-E-3, Vivekanand Mahila College in Zone E-7 and University College of Medical Sciences in Zone E-16. In 1992, lands to two colleges namely-Ambedkar College in Zone E-15 and Delhi Administration College in Zone E-21 were allotted. Four College sites are being carved out, two in facility centre Geeta Colony (Zone E-8), one in Shastri Park (Zone E-2), and one in Mandavali Fazalpur in Zone E-13.

8-10 college sites would be carved out in River Yamuna bed. Middle Level Educational Facilities: There are 340 schools under control of Government of National Capital Territory of Delhi (GNCTD) with a break-up of 132 senior secondary schools, 55 secondary schools and 153 middle schools. These include schools for boys, girls, co-education and schools run by Government of National Capital Territory of Delhi (GNCTD) aided and unaided. (b) Health: Hospitals; Trans Yamuna Area though very much deficit in the health facilities specially hospitals even then it has three specialized hospitals namely-mental hospital in zone E-16, leprosy hospital in Zone E-16 and small T.B. hospital in Zone E-20. 302 R.G. GUPTA -–1995 www.rgplan.org

There is one general hospital in E-16, one intermediate hospital category A of ESI in Zone E-7 and one other intermediate hospital called Sanjay Gandhi hospital in Zone E-19. Recently, an intermediate hospital of category B called Deepak Memorial hospital has been constructed in Zone E-11. Two large size general hospitals would be located in River Yamuna bed. Intermediate Category and Other Hospitals: It is tried to provide maximum number of health facilities to 2.7 million population. Many allotments have been made and others are in the process of planning/development/allotment/construction. Names are one in Shastri Park district centre (Zone E-2); two in Geeta Colony facility centres (Zone E-8); one large hospital near mother dairy (Zone E-13); one small hospital in Zone E-13; one small hospital in facility centre north of NH-24 (Zone E13); one small hospital in facility centre near C.B.D. (Zone E-9); one Cancer hospital in Zone E-21; one small hospital in facility centre Zone E-21; one intermediate category hospital in Patparganj facility centre near Chand Cinema in Zone E-19; one small hospital in Zone E-20; two small hospitals in Tahirpur (Zone E-6); two intermediate hospitals in facility centre (Zone E-15). (c) Social Security: Police facilities of the higher order are available only to a limited extent, one proposed police line in the north of Wazirabad Road (Zone E-18); one central large police line in zone E-1, one Central Reserve Police Force in Zone E-21 and one District Jail in the north of Wazirabad Road in Zone E-18. Policy Stations: Existing stations are available in Naveen Shahdara (Zone E-3), Mansarovar Park (Zone E-5), Seemapuri (Zone E-6), Nand Nagri (Zone E-16), Seelampuri (Zone E-2), Bhajan Pura (Zone E-14), Gokalpuri a small police station (Zone E-17), a small police station in Welcome Colony (Zone E-3), Vivek Vihar (Zone E-7), Geeta Colony (Zone E-8), Gandhi Nagar (Zone E-1), Shakarpur (Zone E-12), Preet Vihar (Rasid Market) (Zone E-8), Trilokpuri near lake (Zone E-19), Krishna Nagar (Zone E-1), Kalyanpuri (Zone E-19). Other sites are in CBD Shahdara facility centre, crossing of Wazirabad Road and Loni Road facility centre, Dilshad Garden facility centre, north of Wazirabad Road and west of marginal bund facility centre, Yamuna Vihar community shopping centre, Patparganj facility-cum-commercial centre (Zone E-2), Vasundhara Enclave facility centre (Zone E-21). Few other police stations are in the process of planning. Police Posts: There are 14 police posts in various locations and names are Gamri, Guru Teg Bahadur Enclave (Zone E-16), Sunder Nagar (Zone E-16), Harsh Vihar near Mandoli (Zone E-18), Jyoti Nagar (Zone E-5), Farsh Bazar (Zone E-4), Mandavali Fazalpur (Zone E-13), two in Mayur Vihar (Zone E-19), New Ashok Nagar (Zone E-21), Trilokpuri (Zone E-19), Old Seelampur (Zone E-2), Karkardooma facility centre (Zone E-11). (d) Fire Stations: There are three existing fire stations, on G.T. Shahdara Road near Shyam Lal College (Zone E-3), Geeta Colony (Zone E-8) and Laxmi Nagar district centre (Zone E-12). Four more sites have been recently approved, one on NH-24 (Zone E-13), one in the facility centre at the crossing on Wazirabad Road and Loni Road (Zone E-15), one in facility centre at the 303 R.G. GUPTA -–1995 www.rgplan.org

crossing on Wazirabad Road and bund road (Zone E-17) and one near Chand Cinema (Zone E-19). Six sites are in the process of approval to make total number of 13 sites for a total projected population of 27 lakhs. These six sites are in Mayur Vihar (Zone E20), Vasundhara Enclave (Zone E-21), Shasti Park (Zone E-2), Tahirpur (Zone E-6), and two other sites are being located. (e) Gas Godowns: There are 32 existing gas godown sites each of 20 mtr. X 26 mtr. in different parts of Trans Yamuna Area. Location of these godowns are away from residential population. Locations are Gokalpuri (Zone E-17), at the crossing of Wazirabad Road and Road No. 67 (Zone E-15), three sites in Shasti Park (Zone E-2), three on G.T. Shahdara Road (Zone E-1), one in Jhilmil (Zone E-7), four in front of Surajmal Park (Zone E-11), four in Laxmi Nagar along River Yamuna bund (Zone E-12), three in Geeta Colony (Zone E-8), one in Shakarpur near marginal bund (Zone E-12), four in Karkardooma (Zone E-11), three in Trilokpuri (Zone E-20), 3 in Kalyanpuri (Zone E-19), one in Khichripur (Zone E-19). Fifteen sites have been recently approved. Their locations are three in the facility centre in the north of Wazirabad Road and marginal bund (Zone E-17), 2 in Gokalpuri service centre (Zone E-17), one at the crossing of Wazirabad road and drain No. 1 (Zone E-15), two on Road No. 56 (Zone E-11), four in Kondli Gharoli Complex (Zone E-21), two in Tahirpur (Zone E-16), one in service centre near G.T.B. Hospital (Zone E-16). Twenty sites would be located to make a total of 67 sites for a population of 27 lakhs as per norms given in MPD-2001. (f) Telephone System: Total required lines for this part of Delhi would be 270,000 against present availability of about 40,000. For laying 200,000 more telephone lines, there are only two existing telephone exchanges one in the north of G.T. Shahdara Road in Zone E-6 and another in Laxmi Nagar district centre in Zone E-12. Six sites have already been approved; one in the facility centre north of Wazirabad road and west of marginal bund (Zone E-17), one in facility centre near jail (Zone E-18), one in facility centre at the crossing of Loni Road and Wazirabad Road (Zone E-15), one in CBD facility centre (Zone E-9), one in Geeta Colony (Zone E-8), one in Chand Cinema Patparganj (Zone E-19). Six more sites would be earmarked to make of total of 14 sites required for a population of 27 lakhs. These would be located in Mayur Vihar, Vasundhara Enclave, Shastri Park, and some other locations.

33.2.16

Wholesale Markets

In the 1980’s, the Delhi Agricultural Marketing Board prepared a comprehensive report including of Trans-Yamuna Area for planning, development and construction of wholesale markets upto the end of the century. Proposals in the comprehensive report is as under: 304 R.G. GUPTA -–1995 www.rgplan.org

Fruit and Vegetable Markets Loni Road Gazipur CBD Shahdara Shastri Park Grain Markets Gazipur North of Wazirabad Road Fodder Market – Gazipur Fish and Poultry Market – Gazipur Total

Area in Hect.

Cost of Development Rs. Miilion

6 20 4 4 20 20 4 6

12 60 12 12 60 60 12 80

84

308

It was also proposed to shift – (i) the existing fruit and vegetable market from Bhola Nath Nagar; (ii) existing fruit and vegetable maket from Jheel Khuranja; and (iii) the Grain Market from Shahdara Town to developed wholesale markets. Now the position is changed and a large wholesale market would be developed in the north and south of National Highway No. 24 near Gazipur. Now sites at – (i) Loni Road; (ii) CBD Shahdara; (iii) Shastri Park; (iv) North of Wazirabad Road are not available and only site of 180 hect. is available for Integrated Freight Complex cumwholesale markets. 33.2.17

Commercial Complexes

In Trans-Yamuna Area, there are only few organized commercial complexes and markets, otherwise majority of shops are unauthorized and unintended, in unorganized and unplanned markets; except in 1980s, when the DDA planned and developed some new commercial centres like Preet Vihar Community Shopping Centre. The following is the position of various commercial centres: (i) Sub Central Business District: Planning of the same is going on since one decade and now it is at the verge of finalization of planning. (ii)

District Centres; (a) Laxmi Nagar (b) Shastri Park, (c) Zaffrabad (d) Dilshad Garden (e) Mayur Vihar.

Out of five District Centres to be planned, developed and constructed in TransYamuna Area, work is going on only for the development of a Laxmi Nagar District Centre. On others, practically there is little progress. Lands of Loni Road, Zaffrabad and Dislshad Garden District Centres are already encroached upon and likewise, if timely action is not taken, other District Centres may also be encroached upon. Laxmi Nagar District Centre, planning of which is done by the DDA is also not as per planning norms and parking provisions. This District Centre, if developed fully, will create traffic and transportation problems, so even at this stage, modifications in the plans should be made. (iii) Community Shopping Centres (a) Nand Nagri-two in nos. (b) Dilshad Garden (c) Yamunapuri (d) Karkardooma (e) Yojna Vihar (f) Mayur Vihar Phase-I 305 R.G. GUPTA -–1995 www.rgplan.org

(g)Preet Vihar (h) Mandavali Fazalpur (i) Kondli Gharoli (j) Dallupurak (k) Loni Road (l) Vivek Vihar (m) Societies area (Plotted and group housing) (n) Facilities-cum-Community Centre at Patparganj (Chand Cinema). So far, only on Community Shopping Centre at Preet Vihar has been developed. Two others, one at Nand Nagri and the second at Trilokpuri are being planned by the Slum Wing, DDA. These two Community Shopping Centres are planned based on parking provisions as per Master Plan of Delhi-2001. Planning of other Community Shopping Centre has to be expedited and assured that these are as per latest parking norms, because in few commercial centres in Trans-Yamuna Area prescribed parking norms have not been followed. (iv) Local Shopping Centres and Convenient Shopping Centres: As per planning norms, i.e. one local shopping centre for 15,000 population and one convenient shopping centre for 5,000 population are required and for a total population of 2.7 million, there should have been about 180 local shopping centres and 540 convenient shopping centres. 60% demand of the shopping activities at these two levels is fulfilled by existing in old markets and newly planned colonies, so plans for 40% i.e. 72 local shopping centres and 216 convenient shopping centres should be prepared and implemented. Planning of all commercial areas i.e. Sub-Central Business District, District Centres, Sub-District Centres, Community Shopping Centres and other commercial centres should be expedited. Project reports of each project should be prepared in a comprehensive way giving details of physical planning, financial planning and its coordination, integration, evaluation with the DDA and with other government departments. 33.2.18

Recreational Complexes

Trans Yamuna Area with a projected population of 2.7 million in 88 sq.km is very much deficient in this use not only within National Capital Territory of Delhi but in adjoining large sub-standard areas of Loni etc. As per MPD-2001, 15-20% of the total city area should be for recreational use. In this case, there should have been minimum 15% of 88 sq.km i.e. 1320 hect. but this Zone has only green areas in 5.3% of the total area. It is strongly recommended that 785.4 hect. would be earmarked, planned, developed in river Yamuna bed because there is no other solution. This area would be earmarked between eastern water coast of river Yamuna and left marginal bund, at two places, one between Indraprastha barrage and Nizamuddin bridge and the second in the north of old road-cum-railway bridge. Names of recreational projects which are in the process of development, needs proper planning and development has been given under: •

Yamuna Sports Complex



Bidiwala Bagh on Loni Road



Near Shastri Park District Centre



Near Leprosy Hospital 306 R.G. GUPTA -–1995 www.rgplan.org



Navin Shahdara Lake



Sanjay Lake/Sir Sobha Singh Park



Tree Plantation along Gazipur Drain



Green strip along Noida boundary



Green areas along National Highway No. 24/Gazipur



Children park at Vivek Vihar



Children park in Cooperative Societies Area



Children park at Sanjay Lake



Other Sports Complexes in few colonies



Yoga and Nature Cure Centre at 2-3 places

In river Yamuna, recreational use would be planned and developed in an area of 785.4 hect. to provide vast green spaces, water sports, golf course, tourist cottages, camping sites with public conveniences, small shopping piazza, pleasure parks for different age groups, children parks, auditorium, restaurants/café, amusement/antique hall, sports centres, boat clubs with paddle boats, facilities of swimming with dress changing facilities, gymnastic, skating, rest rooms etc. Parking facilities for different types of vehicles; dispensary; bird sanctuary; race course; science park with reception office, public conveniences, stores, exhibit development, solar energy corner, other service models; amusement park, aquarium with fishing ponds; fun island; children’s airport with facilities of helicopter; mini-forests; green preservations along bundhs; horse riding/training centre and temple complexes etc. 33.2.19

Physical Infrastructure

(i) Requirements of services for ultimate population of 2.7 million by the end of the century, in Trans-Yamun Area, requirements of physical infrastructure would be as under: (a) Water @ 80 gallons per day per capita – 216 mgd. (b) Sewage disposal @ 64 gallons per day per capita-172.8 mgd. (c) Power @ 20 MW per lakh population-540 MW (d) Storm water drainage – as per site conditions. (e) Gas supply @ 5 kg. per head per month-162,000 ton per year. (f) Telephones @ one connection per 10 persons – 240,000 lines. (g) Scavenging & sanitation (garbage disposal) @ 600 gms. per day per head-525,600 tons per year. (h) Fire services @ 2 units 100,000 population – 54 units. (ii) Brief description of infrastructure requirements: (a) Water: The entire Trans-Yamuna Area can be divided into the following four parts with outline proposals as – Area in the north of Wazirabad Road-details are being worked out. Between Wazirabad Road and National Highway No. 24-eight overhead tanks and five underground tanks have been constructed/being constructed-between NH-24 and Hindon Cut-one overhead tank and five underground tanks are being constructed-between Hindon Cut and Noida-details are being worked out. 307 R.G. GUPTA -–1995 www.rgplan.org

(b) Sewage Disposal: Ultimate sewage disposal for Trans-Yamuna Area would be 172.8 mgd. Ultimate capacity of Kondli Treatment Plant would be 100 mgd. and an additional sewage treatment plant of about 80 mgd. is required in the north of Wazirabad Road. About 9 hect. is being handed over in Facility Centre No. 8 which is surrounded by Loni Road, Wazirabad Road and Road along drain no. 1 to DWS & SDU for the construction of small sewage Treatment Plant. (c) Power: No separate details for Trans-Yamuna Area are available, but for Delhi, as per projections made by the 13th Power Survey Committee of the Central Electricity Authority, the maximum demand will reach to 2389 MW by the end of 8th Five Year Plan. Power requirements of Delh are met from I.P Station, Badarpur Thermal Power Station, Rajghat Power House, Barasuile Hydro-electric Project of NTPC, Singrauli Super Power Thermal Project of NTPC, ANTA and AURIYA Gas Turbines of NTPC and northern regional grid. It is proposed to bridge the gap of power from the following sources: 3x26.75 MW Waste Heat Recovery Units are proposed to be installed at the existing gas turbine site in the combined cycle mode. 400 KV ring is being established around Delhi which will bring bulk power to Delhi from the centrally sponsored schemes that are coming up in the northern region. It is proposed to install a 900 MW combined cycle project near Bawana at the 400 KV Sub-Station site. The project feasibility report for this work has been prepared by the Central Electricity Authority who are acting as Consultants to DESU. (d) The most important point is that a detailed comprehensive physical and financial plan of water supply, sewage disposal and power supply for TYA, giving details at macro, meso and micro level should be prepared, finalized and approved by the competent authority. (e) Storm Water Drainage: Master Plan of Storm Water Drainage as prepared by Irrigation and Flood Deptt. Government of National Capital Territory of Delhi (GNCTD) 1973-75 is available showing details of the then existing and proposed drains. This plan was based on 1981 population projections and as such does not hold good today. It has to be recast based on population project of TYA for 2001 i.e. 2.7 million. Following are the salient features of drainage system constructed in TYA. There are following three main trunk drains constructed and maintained by I & F, Delhi Government – Drain No. 1-starting from north of Wazirabad Road parallel to eastern Yamuna canal, Road No. 65, 57 and then falling in Drain No. 2. Drain No. 2; - starts from G.T. Shahdara Road, flows parallel to Road No. 56 up to NH-24 and then it becomes Gazipur Drain; Shahdara Link Drain-starts from south of new rail lines and flows parallel to bund road. Intermediate Drains-these drains should eb marked on the plan and get implemented. It is necessary to prepare a comprehensive plan showing trunk drains, intermediate drains and internal drains of various colonies. (f) Gas Supply: So far, no thought has been given on the subject.

308 R.G. GUPTA -–1995 www.rgplan.org

(g) Telephone System: Total required lines for this part of Delhi would be 270,000 against present availability of about 40,000. For laying 230,000 more telephone lines, at least 12 more telephone exchanges each of 20,000 lines are required. For this, adequately attention should be given. (h) Scavenging and Sanitation: Details should be worked out and implemented. (i) Fire Services: For Trans-Yamuna Area, 54 units are required. Fire Department , MCD has asked 17 new units to be constructed in 8th Five Year Plan period (1992-97). 33.2.20

(i)

(ii)

(iii)

(iv)

(v) (vi)

Traffic and Transportation

Names of projects which should be taken over. These have been divided into-(i) bridge over river Yamuna; (ii) completion of Ring Road of TransYamuna Area; (iii) Grade separators on Ring Road on Trans-Yamuna Area; (iv) other important roads and grade separators; (v) express and exclusive cycle track; (vi) Mass Rapid Transit System; (vii) Other important components. Bridges over river Yamuna: (a) Parallel bridge over river Yamuna along Wazirabad. (b) Parallel Bridge on I.T.O. along to I.P. Barrage. (c) Parallel bridge on river Yamuna along Nizammudin bridge (d) two bridges for MRTS system (e) Two Pontoon Bridges. Completion of ring road of Trans-Yamuna Area: (a) Widening and improvement of Wazirabad Road. (b) Construction of Road No. 62 near U.P. border. (c) Construction of Road No. 70 near Seemapuri. (d) Widening and strengthening of bund road from NH-24 to Wazirabad Road. Grade separators on Ring Road: (a) At the crossing of bund road and Wazirabad Road. (b) At the crossing of Road No. 66 (along drain No. 1) and Wazirabad Road. (c) At the crossing of Road No. 62 and Wazirabad Road. (d) At the crossing of G.T. Shahdara Road with Road No. 70 and Road No. 56. (e) At the crossing of Road No. 56 and NH-24. (f) At the crossing of bund road and NH-24. Other important roads and grade separators: (a) Widening of Loni Road. (b) Grade separator with Road No. 58 and 64 with G.T. Shahdara Road. (c) Grade separator at Vikas Marg, disused canal and road from Patparganj industrial area to Bhola Nath Nagar. (d) Construction of 45 mt. wide road from CRPF establishment in Kondli Gharoli to NH-24 and fly-over with NH-24 and to join Mohan Nagar Road. There would be some other important roads also. Construction of express and exclusive cycle tracks Planning of Mass Rapid Transit System in Trans-Yamuna Area: RITES have prepared a proposal which is not so much suitable for TransYamuna Area. The proposal should be revised based on the following points: (a) Trans-Yamuna Area is not an independent entity and has to be linked with NOIDA, Greater NOIDA, Loni, Sahibabad and other parts of Delhi. (b) TransYamuna Area has the highest density to traffic movement, so there should also be an independent MRTS system for Trans-Yamuna Area itself, serving four million population. (c) There should be proper connection of TransYamuna Area with other parts of Delhi with the help of Mass Rapid Transit System. 309 R.G. GUPTA -–1995 www.rgplan.org

(vii)

Other important components: (a) Pedestrian sub-ways. (b) Pedestrian paths along roads. (c) Truck terminals specially to remove congestion from G.T. Shahdara Road near U.P. Border. (d) Construction of Inter State Bus Terminus. (e) Development of general parking sites. (f) Replacement of diesel buses by Electric Trolley Bus. (g) Bus queue shelters, bus terminals and bus depots. (h) Shifting of affected petrol pumps and allotment of alternate sites. (i) Tree plantation along major roads. (j) Signages along roads and intersections. (k) Construction of new passenger railway terminals, outlines given in para 32.2.21. (l) Construction of service garages for different modes of vehicles.

33.2.21 (i)

(ii)

(iii)

(iv)

Metropolitan Passenger Railway Terminal

Location and extent of area: The proposed complex would be bounded by Road No. 56 (along U.P. border), Road No. 57 (on the southern side of the complex), industrial estate developed by Delhi Govt./DSIDC in the South and boundaries of Anand Vihar Jagriti Enclave, Arya Nagar, Dayanand Vihar, Karkardooma Institutional Area and Sewage Pumping Station in the North. Total area of the complex would be 88 hect. (220 acres) with a break up of 35 hect. in the north of the existing railway line and 53 hect. in the south of the existing railway line. Proposed landuse break-up of the complex: (a) Remunerative Uses: Metropolitan Passenger Rail Terminal = 60 hect. Inter State Bus Terminus = 15 hect. D.T.C. Terminal = 6 hect. Connected commercial activities and other infrastructure = 7 hect. Total = 88 hect. (b) Non-Remunerative uses: 40% area of the total complex would be under non-remunerative uses namely; circulation, parking, green area etc. with a break up of Circulation 10 hect., Park and openspaces 8 hect., Parking 17 hect. Components of the Project: (a) Metropolitan Passenger Rail Terminal with operational area, platforms, utility and services for the passengers, railway stations for regional and local traffic, Rail Mail Services (RMS), 11 mtr. wide moving walkways below the railway tracks to connect two sides of the passenger terminal. (b) Inter State Bus Terminus for inter-city traffic for buses operating to U.P., Haryana and Rajasthan. (c) D.T.C. Terminal for Intra Delhi City traffic and Intra Trans Yamuna Area traffic with NOIDA, Greater NOIDA, Sahibabad, Loni etc. (d) Connected commercial activities and other type of social and economic infrastructure with shops, restaurants, dhabas, book stalls, medical store, cloak room, one or two Star Hotel and one Economy Class Hotel. (e) Non-remunerative uses namely-parking for different modes of vehicles, circulation system within the complex and on the periphery and green areas. This works out to the extent of about 40% of the total complex (88 hect.). This area should be shared proportionately by Metropolitan Passenger Rail Terminal, Inter State Bus Terminus, D.T.C. and Connected commercial activities and other infrastructure. General Principles (applicable to all the 5 components): (a)Comprehensive (i) Different types of plans. (ii) Segregation of traffic in terms of (a) Pedestrians and cyclists from light vehicles and heavy vehicles. 310 R.G. GUPTA -–1995 www.rgplan.org

(b) Light vehicles from heavy vehicles. (c) Incoming traffic to the terminals and outgoing traffic and (d) Local rail and bus traffic with the regional traffic. (iii) Traffic on the periphery should be dealt with carefully by construction grade separators, one on Road No. 56 and the second on Road No. 57. (iv) The entire complex of 88 hect. should be sealed and enclosed by constructing an aesthetically good 2.2 mtr. high compound wall to segregate the proposed complex from the adjoining colonies. (v) A large area should be used as a green park for landscape purposes with street furniture. (vi) Development of the complex would be in phases. (v) The four components namely-Metropolitan Passenger Rail Terminal, ISBT, DTC and Commercial Complex would be integrated horizontally and vertically with the help of moving walkways, escalators and other modern means. (vi) Financial Planning: Planning of the entire complex would be done by DDA and for this, proportionate professional fee should be paid by four concerned agencies namely: (i) Railways (ii) Transport Development Department Delhi Admn. (iii) DTC and (iv) DDA. Cost of development of non-remunerative uses namely: (i) Circulation System (ii) Parks and (iii) Parking would be shared in the proportion of 68%, 17%, 6% and 9% by Railways, ISBT, DTC and DDA respectively. Cost of construction of any building would be dealt with independently. (c) Management Planning: (i) Coolie system should be dispensed with and in place of this, trolley system as on airports should be introduced. (ii) There should be close circuit TV address system alongwith information booths. (vii) Metropolitan Passenger Railway Terminal (a) Land requirements for operational and other purposes would be worked out by railways taking a time horizon of 50 years. (b) Suitable approaches from Road No. 56 and 57 may be with the help of grade separators. (c) Adequate parking for different modes of vehicles. (d) Incoming traffic to the railway passenger terminal would be at a different level than outgoing traffic from the terminal. Likewise, heavy traffic coming to RMS should be separated. (e) Design of the railway station should not be as usual of stereo type but for this, a national competition should be invited. (f) Number of vehicles required for regional passenger traffic and local commuter traffic should be worked out separately. In New Delhi Railway Station Planning in an area of 22% was earmarked for the purpose of parking of different types of vehicles. (viii) ISBT & DTC Terminals (a) There should be a study with regard to number of buses to be operated from this ISBT in 5,10,15 and 20 years. (b) Existing ground level should be used for construction of lower floor of terminal uses for departing or alighting of buses. (c) Boarding and alighting buses should be completely segregated. (d) There should be different compartments for buses of three States namely: U.P., Haryana and Rajasthan. (e) Adequate facilities concerning to public conveniences and other facilities like ticketing, restaurants, dhabas, shops for eatables should be provided. (f) There should be adequate provision for parking of idle buses. (g) All the shortcomings of present Kashmere Gate ISBT though most modern as shown in Photograph 33.1, should be studied and tried to be avoided at the new ISBT. (h) Cost of maintenance and 311 R.G. GUPTA -–1995 www.rgplan.org

(ix)

(x)

management of ISBT and DTC Terminal should be charged from beneficiaries. (i) ISBT and DTC Terminal should be linked properly with the railway station. (j) A study should be conducted about inter-manangement of all the five ISBTs of Delhi. (k) At the exit point, there should not be any queuing up of departing buses. Connected Commercial Activities and Other Type of Infrastructure. This would be designed with Zoning Regulations of 25% ground coverage, 100 FAR and Parking @ 1.33 Car Spaces per 100 sq.m. Principles applicable to non-remunerative uses Non-remunerative uses would be in about 40% of the total area i.e. in 35 hect. with a break-up of 10 hect. for circulation, 8 hect. for park and 17 hect. for parking. Cost of land and development of this 35 hect. would be shared proportionately by (i) Metropolitan Passenger Rail Terminal (ii) ISBT (iii) DTC and (iv) Connected commercial activities and other infrastructure. Sharing of the expenditure of cost of land and department would be in the ratio of 68% by Metropolitan Passenger Rail Terminal, 17% by ISBT, 6% by DTC and 9% by DDA.

33.2.22

Projects Concerning to Slum Wing, DDA

(i) Environmental improvement in Slum Designated Areas including of old Shahdara Area. (ii) Environmental Improvement in Shanty Clusters. (iii) Development of plots of sites and services and their disposal. (iv) In/around situ development and construction of urban spaces for shanties clusters. (v) Night Shelters. (vi) Community Halls and Libraries. (vii) 5,000 small shops. (viii) Local Shopping Centres and community shopping centres in resettlement colonies. (ix) Formulation of NGO’s and cooperative societies.

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Appendix 33.1 Details of Section 8 of Delhi Development Act 1957 and Various Court Decisions (1)

Simultaneously with the preparation of the Master Plan or as soon as may be thereafter, the Authority shall proceed with the preparation of a zonal development plan for each of the zones into which Delhi may be divided. (2) A zonal development plan may: (a) contain a site-plan and use-plan for the development of the zone and show the approximate locations and extents of land-uses proposed in the zone for such things as public buildings and other public works and utilities, roads, housing, recreation, industry, business, markets, schools, hospitals and public and private open spaces and other categories of public and private uses: (b) specify the standards of population density and building density; (c) show every area in the zone which may, in the opinion of the Authority, be required or declared for development or redevelopment; and (d) In particular, contain provisions regarding all or any of the following matters, namely: (i) the division of any site into plots for the erection of buildings; (ii) the allotment or reservation of land for roads, open spaces, gardens, recreation grounds, schools, markets and other public purposes; (iii) the development of any area into a township or colony and the restrictions and conditions subject to which such development may be undertakne or carried out; (iv) the erection of buildings on any site and the restrictions and conditions in regard to the open spaces to be maintained in or around buildings and height and character of buildings; (v) the alignment of buildings on any site; (vi) the architectural features of the elevation or frontage of any building to be erected on any site; (vii) the number of residential buildings which may be erected on any plot or size; (viii) the amenities to be provided in relation to any site or buildings on such site whether before or after the erection of buildings and the person or authority by whom or at whose expense such amenities are to be provided; (ix) the prohibitions or restrictions regarding erection of shops, workshops, warehouses or factories or buildings of a specified architectural feature or buildings designed for particular purposes in the locality; (x) the maintenance of walls, fences, hedges or any other structural or architectural construction and the height at which they shall be maintained; (xi) the restrictions regarding the use of any site for purposes other than erection of buildings; and (xii) any other matter which is necessary for the proper development of the zone or any area thereof according to plan and for preventing buildings being erected haphazardly in such zone or area. Synopsis of Important Cases of the Courts (a) Zonal Development Plan, (b) Difference between Master Plan and Zonal Development Plan. (a) Zonal Development Plans: Zonal development plans are the off-springs of the Master Plan. These plans should consist of everything in detail including the use of land, use of building, areas allocated for roads, streets, parks and other different utility services. These shall 314 R.G. GUPTA -–1995 www.rgplan.org

consist of a clear site plan, use plan showing the approximate locations and extents of land use including the proposed zones. It shall specify standards of population density vis-à-vis building density. It shall also show the area declared to be development or re-development. In a case titled Municipal Corporation of Delhi Vs. Kishan Das19 the Supreme Court dismissed the appeal of the Municipal Corporation stating that there is no specific land use which has been mentioned in the plan and hence the respondent cannot be restrained from not using the land for indefinite period, in the absence of the zonal development plan. It is therefore, clear from the said opinion that it is the zonal development plan which shows every area in detail and also the use of land and building. The facts in the case of the above said decision were that the Commissioner of Municipal Corporation of Delhi issued a notice to the respondent stating that the building owned by him posed a danger to the residents of the area and that necessary repairs may be carried out immediately after obtaining sanction. The respondent thereupon submitted plans to MCD but the Commissioner refused the sanction on the ground that the land belonging to respondent would be covered by a road proposed in the Master Plan prepared by DDA. The respondent filed a writ in the High Court praying for a direction to MCD to accord sanction of his plans. The High Court allowed the petition holding that the Commissioner could decline the sanction only if there was a contravention of Section 336(2) or Section 340 of Delhi Municipal Corporation Act and in this case there was no such contravention. In appeal to the Supreme Court the appellant Corporation contended that the Commissioner under Section 336(2) (a) is entitled to refuse sanction of a building or work if the buiding or work or the use of the site for building or work contravened ‘any other law’. That the Master Plan prepared had come into force under the Delhi Development Act and that as the proposed construction would not be in conformity with the Master Plan, it would contravene Section 14 of the DDA Act. It was held that ‘the provisions of Section 7 of DDA Act clearly indicate-and that is borne out of the various matters mentioned in the Master Plan that the Master Plan will only give very broad outline of Delhi as it will look in future. That there is an obligation on the Authority to prepare a zonal development plan simultaneously with the preparation of the Master Plan or as soon as may be thereafter, no such zonal development plan has been prepared. That assumes considerable importance in this case because, it is the zonal development plan under Section 8 (2) (a) which will show the approximate allocations and extents of land use proposed in a zone for roads. Further, under sub-clause (ii) of clause (d) of sub-section (2) of Section 8, the said zonal development plan will also contain provision regarding the allotment or reservation of land for roads. It is only when such allotment or reservation of land for roads is made it will be possible to know clearly as to which part of a person’s land and what portion thereof is allotted or reserved for a road. If such an indication is available by the zonal development plan then Section 14 will naturally stand attracted, because any user of a land or building otherwise than in conformity with the zonal development plan will be hit by that Section. In the absence of any indication in the Master Plan in this case that any part of the land of respondent will be covered by portion of a road, it is not possible to accept the contention of the learned Solicitor General that there will be any violation of Section 14 of DDA Act if 19

Source: 1. (1969) DLT 442. (SC) = A 1969 SC 386.

315 R.G. GUPTA -–1995 www.rgplan.org

the respondents are permitted to use the land as asked for by them…..So far as we can see it is certainly in the scheme of DDA Act that the moment the Master Plan has come into operation and if it contains a proposal regarding the width that a road should have, all use of land adjoining that road is prohibited for any different thing. Similarly, if the zonal development plan provides for a particular use of any land or building in that zone, it cannot be put to a different use. If neither of the plans provided for particular use of any land or building in the area or zone, Section 14 will have no application whatsoever’. The appeal of the Municipal Corporation has been thus dismissed by the Hon’ble Supreme Court. In another case titled as P.S. Gill Vs. UOI20 it was held that even the acquisition of land for planned development in Delhi must conform to the Master Plan and zonal development plans. Development contrary to the plan is unauthorized. In Golcha Theatres Vs. DDA21 case it was held that acquisition of land for public purpose, namely, the planned development of Delhi, must conform to the approved master plan and zonal development plans. The facts of this case are that the petitioners purchased a property in Karol Bagh in the year 1962 for constructing a cinema hall on the said site. For this the permission was sought from DDA as well as from MCD. The Authorities did not approve the plan on the pretest that the petitioner should await for zonal development plan for the said area. The zonal development plan in Karol Bagh area came into existence on 10 July, 1965. The petitioners did not file any objections to the said plan. Their plot was demarcated for commercial use only. A part of the plot was later on notified by the Administrator of Delhi under Section 4 of the Land Acquisition Act. The notification under Section 6 of Land Acquisition Act was said to be that the area is required for bus-station and parking facilities in the said area. The question involved in this case was: can the petitioner’s piece of land be acquired for bus-station and parking facilities? It is an admitted case of the respondent that the land is required for bus-station and for parking facilities. It has to be then seen that whether such provision was made in the zonal development plan. After going through the zonal development plan, Avadh Behari (J) who decided the case had observed that the plan does not show the piece of land owned by the petitioners to be utilized for bus-station or parking facilities. Hence the acquisition of the piece of land of the petitioners was held illegal. He relied upon that the observations made in the case of P.S. Gill Vs. UOI wherein it was observed ‘that the Master Plan is the basic pattern of framework and the zonal plans are to be prepared within this framework. The zonal plans are no doubt subordinate to the Master Plan but they are the real executants of the plan. The Master Plan is general in character. It outlines trends and tendencies but never in any instance gets down to brass tracks. The zonal plan is the local plan. It administers the land and its development in the zone functioning as it does under the aegis of the master plan. The plans are thus the ‘touch stones’ for planned development of Delhi for which the land has to be acquired by the Government.

20 21

ILR (1979) I Delhi 601. ** 1983 RLR 179.

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Appendix 33.2: Requirements of Social Infrastructure as per MPD-2001 for Ultimate Population of 2.7 lakh million Name of Facility (i) (a)

(b)

(c)

(d)

(e)

(f)

(ii) (a)

(b)

(c)

Health: General hospital One hospital for 250,000 population Capacity Area Intermediate hospital (category-A) One hospital for 100,000 population Capacity Area Intermediate hospital (category-B) One hospital for 100,000 population Capacity Area Polyclinic with some Intensive Care Units. One Polyclinic for 100,000 Population. Capacity Area Nursing Home, Child Welfare and Maternity Centre One for 45,000 population Capacity Area Dispensary One for 15,000 population Area Education: Up to Senior Secondary Level: Pre-primary, nursery school One for 2500 population Area per school Primary school (class I to V) One for 5,000 population Strength of the school 500 students Area per school Senior Secondary School (VI to XII) One for 7,500 population Strength of the school 1000 students Area per school

No.

Area hect.

500 beds 6.00 hect.

11

66

27

99.9

1.00 hect.

27

27

25 to 30 beds 0.20 to 0.30 ha.

27

8.1

25 to 30 beds 0.20 to 0.30 ha.

60

18

0.08 to 0.12 ha

180

21.6

0.08 hect.

1080

86.4

0.40 hect.

540

216

1.60 hect.

360

576

200 beds 3.70 hect. 80 beds

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(d)

(e)

(f)

(iii) (a)

(b) (c)

(iv) (a)

(b)

(v) (a)

(b)

(vi) (a)

Integrated school without hostel facility (Class I to XII) One for 90,000 to 1,00,000 population Strength of the school 1500 students Area per School Integrated school with hostel facility One for 90,000 to 1,00,000 population Strength of the school 1000 students Area per school School for handicapped One for 45,000 population Strength of the school 400 students Area per school Higher Education –General: College One for 125,000 population Strength of the College (1000 to 1500) students Area per college University campus Area New University One in the urban extension Area Technical Education: Technical Education Centre (A) one such centre provided for every 1 million population to include one Industrial Training Institute and one Polytechnic Area per centre Technical Centre (B) One provided for 1 million population to include one ITI, one Technical Centre and one Coaching Centre Area per centre Professional Education: New Engineering Colleges Two nos to be provided in urban extension. Strength of the College (1500 to 1700) students Area per college New Medical College Two sites each of 15 hect. in Urban Extension. This includes space for specialized general hospital Communication: Telephone Exchange of the

3.50 hect.

*27

94.5*

3.90 hect.

*27

108.81*

0.50 hect.

60

30.0

4 hect.

22

88.00

10 hect.

1

10.00

60 hect.

*1

60*

4 hect.

3

12

4.00 hect.

3

12

60.00 hect.

*2

120*

*2

30*

318 R.G. GUPTA -–1995 www.rgplan.org

(b)

(c)

(vii) (a) (b)

(viii) (a)

(b)

(c)

(ix) (a)

(b)

(c)

(d)

Capacity of 40,000 lines: One for 4 million population @ 10 telephone lines per 100 population Area Administrative Office floor area Telephone Exchange to be provided at the city level preferably one in North and other in the South in urban Extension. Area Depot-cum-workshop: For maintenance and repair of about 800 vehicles to be provided at the city level in an industrial area. Area Department Telegraph Office: Booking counter One for 100,000 population Booking and delivery office one for 0.5 million population Floor area Postal Facilities: Post office counter without delivery office: One for 10,000 to 15,000 population Floor area Head post office with delivery office. 1 for 250,000 population Area Head post office and Administrative Office. One for 500,000 population Area Security: Police Station One for 90,000 population Area inclusive of essential residential accommodation Police Post One for 4000-5000 population (not served by a Police Station) Area inclusive of essential residential accommodation District Office for Police Battalion One for 1 million population Area Police Line One each for North, South, West and East Delhi Area

0.80 hect. 9210 sq.mt.

6

10.32

4hect.

*2

8*

1.00 hect.

*2

2*

27

1700 sq.mt.

5

.85

60 to 85 sq.mt.

180

1.5

600 sq.mt.

11

66

2500 sq.mt

5

1.20

1.15 hect.

30

34.5

0.16 hect.

54

8.64

4.80 hect.

*3

14.4*

4.00 to 6.00 hect.

1

6.00

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(e)

(f)

(x)

(xi) (a)

(b)

(c)

(d)

(e)

(f)

District Jail: One for 1 million population in Urban Extension Area Civil Defence and Home Guards: One for 1 million population in Urban Extension Area Distributive ServicesL Standards for LPG godowns area given as under: One Gas Godown for 40,000 population Capacity 500 cylinders for 8000 kg. of LPG. Area

Socio-cultural Facilities Community room One for 5,000 population Area Community hall and library one for 15,000 population Area Recreational Club One for 100,000 population Area Music, dance and drama centre One for 100,000 population Area Meditation and Spiritual Centre one for 100,000 population Area Socio-Cultural Centre One for 1 million population Area Total

10.00 hect.

3

30.00

2.00 hect.

*2

4*

660 sq.mt.

540

35.64

2000 sq.mt.

180

36.00

10,000 sq.mt. Dance and drama centre: 10,000 sq.m.

27

27.00

27

27.00

5,000 sq.m.

27

13.5

15 hect.

3 3662 *442

45.00 1994.00

520 sq.mt. (20m x 26m) inclusive of chowkidar hut.

These norms are as per MPD-2001 and have to be followed by all the Departments of Govt. of National Capital Territory of Delhi MCD, and DDA.

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Appendix 33.3: List of Facility Centres and Service Centres as proposed in MPD2001 A. 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19.

Facility Centres FC 8 – West of Loni Road FC 9 – South of Wazirabad Road and East of Loni Road. FC – 10 Tahirpur FC – 11 – Near Shastri Park Distt. Centre FC-12 – Gandhi Nagar FC-13-CBD Shahdara FC-14-Vivek Vihar FC-15 – Yojna Vihar FC-16 – Anand Vihar FC-17 – Vishwas Nagar FC-18 – Karkardooma FC-19 – Geeta Colony FC-20 – Geeta Colony FC-21 – Geeta Colony FC-22 – Mandavali Fazalpur FC-23 – Near Mother Dairy FC-24 – Kalyanpuri FC-25 – Kondli FC-26 – Dallupura Total

B.

Service Centres

1. 2. 3. 4. 5. 6. 7. 8. 9. 10.

Near Shastri Park Distt. Centre South of Road No. 68 near Jyoti Nagar Tahirpur Village Kardampuri Near Yamuna Sports Complex Karkardooma Institutional Area Automobile Centre Near Dallupura Distt. Centre Jhilmil Industrial Area Patparganj Industrial Area

Area in Hect. 16 2.2 13.5 14.5 16 23.55 2.10 3.00 11.5 6.75 20.00 12.5 1.6 1.00 5.25 3.75 8.5 14.4 7.3 183.4

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Appendix 33.4: Final List of Facilities/Service Centres Social infrastructure i.e. Facility Centre and Service Centres includes college, senior secondary school, primary school, general, hospital, intermediate hospital Category ‘A’, intermediate hospital Category ‘B’, poly-clinic, nursing home, dispensary, police station, police post, head post office, telegraph office, telephone exchange, sociocultural centre, fire station, poly-technique, industrial training institute, religious building, petrol pumps, LPG gas godowns, car garages, scooter garages, repair shops etc. As per MPD-2001, there is a provision of 19 facility centres in a total area of 183.4 hect. and 9 service centres in a total area of 31.1 hect. If these facility centres and service centres are planned, developed and constructed upon then there would be a big relief to the population of Trans Yamuna area. Some of these sites are encroached upon even then it has been tried to create some new sites so that adequate social infrastructure for the present 20 lakh population can be planned, developed and constructed. Details of provisions of facility centres and service centres have been given under in a tabular statement: Name of Facility Centre/Service Centre F.C.8 (at the Wazirabad Rd. and Loni Rd.)

Area in Hect. 42

2.

F.C. at Geeta Colony

40

3.

Facility Centre CumCommercial Centre in Patparganj

13

1.

Name of Facilities One fire station, one police station, one head post office, one telephone exchange, one polyclinic, three nursing homes, electric sub-station, socio-cultural centre, Planitarium, gymnasium, meditation centre, swimming pool, bus terminal, two petrol pumps, three temples, intermediate hospital Category ‘A’, intermediate hospital Category ‘B’, degree college, large green areas, a small shopping centre. Three women hostels, one men hostel, one college, one hotel, guest houses, commercial offices, informal eating places, cultural centre, recreational centre, meditation/spiritual centre, one 300 beds hospital, one 200 beded hospital, nursing homes, polyclinic, bus terminal, police post, telephone exchange, sub-station. One college, one polyclinic, two Nursing homes, two dispensaries one telephone exchange, one head post office, one fire station, one police station, two guest houses, maintenance office of the M.C.D, petrol pumps, electric sub-station, public conveniences, technical training centre, women hostel, music dance and drama centre, weekly market, open air theatre, exhibition hall and display of local products, small meditation centre, community hall, barat ghar and library, cultural theatre with auditorium, shops of different categories, commercial office and Ram

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4.

Facility Centre Tahirpur/ Dilshad Garden

19

5.

Facility Centre Mandavali Fazalpur

19.8

6.

Shastri Park Facility Centre Facility Centre in the north of CBD Shahdara

12

8.

Facilities/Service Centre in the north of Wazirabad Road and West of Bund Road

9

9.

6.1

10.

Facility Centre in Village Mondoli Manloi Near Jail F.C. in the West of CBD

11.

F.C. near Mother Dairy

6.34

12.

F.C. in Mandavali Fazalpur

3.5

13.

F.C. in Dilshad Garden

3.15

14.

F.C. near G.T.B. Hospital

3.3

15.

Educational F.C. Near Shyam Lal College

2.92

16.

F.C. at Brahampuri

2.8

7.

21.7

6

Lila Ground. One women hostel, one fire station, one police station, one cultural centre, one sports complex, one technical school one post and telegraph office, one pathological lab, intermediate hospital Category ‘B’, trauma centre, swimming pool and lake. Two senior secondary schools, five primary schools, one small hospital, one police station, one plot for DSIDC office, one plot for DDA office, one plot for Delhi Admn. office, one large community shopping centre with facilities of shops, commercial offices, electric sub-station, milk booth, public conveniences, community hall, library etc. This is being planned by Chief Architect. One university centre, one socio-cultural complex, one telephone exchange, one DTC terminal and one Surajmal Park. One fire station, few workshops, one police station, one electric sub-station, few gas godowns/SKO/LDO, one telephone exchange, one plot for other community facilities, shops for spare parts and one petrol pump. One police line, one telephone exchange, one DTC terminal and one dispensary One fire station, one police station, one hospital, few shops, some commercial offices, one MCD building, one DDA office building and electric sub-station. One Sr. Sec. School, two middle schools, one post office, one public library, health centre one community hall, one police station and one large size hospital. One small hospital, one post office, one primary school, one convenient shopping centre, one dispensary, one community hall, one electric sub-station and one local shopping centre. One senior secondary school, two primary schools, one bus terminal, one police station and one RLU (small telephone exchange) One small hospital, one polyclinic, one nursing home, one dispensary, one bus terminal, one post office, one petrol pump, one police post and one electric sub-station. One senior secondary school, three primary schools, one electric sub-station, one community hall, one dispensary and polt for other community facilities. One community hall-cum-library, one small shopping centre, one pumping station, one

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17.

Service Centre at Gokalpuri

2.4

18.

Service Centre in the south of H-24 in Mayur Vihar, Ph-II

5.4

19.

F.C. in the west of Loni road near U.P. Border F.C. in the west of road linking Wazirabad Road and Village Mandoli F.C. at the crossing of Loni Road and Wazirabad F.C. at Kondli Gharoli

2

20.

21.

22. 23.

24. 25.

26.

Facility-Cum-Service Centre in the north of NH 24 Service Centre in the east of Road No. 56 Facility Centre in the south of Kondli-Gharoli Colony Facility-cum-Shopping Centre in Vasundara Enclave

1.6

1.6

electric sub-station, one post office, one police post, one middle school, one primary school, one dispensary and one religious building. One police post, four gas godowns, one electric sub-station, one primary school and one service centre for different types of repair shops. Two petrol pumps, three motor garages, three scootr garages, two shops of building materials, one electric sub-station, one post office, one dispensary and one large DTC terminal. One senior secondary school and one primary school One senior secondary school

0.86

One police station, one post office, one community hall-cum-library, one dispensary and one nursing home Four gas godowns, one kerosene oil depot and one petrol pump. Two petrol pumps, one nursing home, few shops and offices, car/scooter garages etc. and other repair shops. Plans were approved from Screening Committee

4.0

Plans have yet to be started

11.2

Plans have yet to be started

1.0 1.66

Number of facilities-Intermediate hospital, category-A (3),intermediate hospital, category-B (6), polyclinics (4), nursing homes (9), dispensaries (9), primary schools (14), middle schools (3), senior secondary schools (7), college (3), head post office and telegraph (9), police stations (9), police posts (4), fire stations (5), gas godown (7), SKO Depot (2), telephone exchanges (6), RLU (2), bus terminuses (9), petrol pumps (11), electric sub-stations (11), convenient shopping centres (3), local shopping centre (1), religious buildings (4), community halls, barat ghars (9), sports complex (1), socio-cultural complexes (4), women hostel (3), men hostel (1), hostel (1) and some other facilities would be provided in few other centres.

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PART FIVE HOUSING IN SUB-STANDARD AREAS OF DELHI

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34 Physical Planning of Resettlement Colonies 34.0 34.1

Background Some Typical Examples of Physical Planning

34.0 Background As details given in Chapter 29 on the caption of ‘Planning and Resettlement colonies up to 1980s in Delhi (based on 1976 data) the scheme of shanties (jhuggies and jhompries) was initiated in 1958 on the recommendation of an Advisory Committee for Delhi. Initially the scheme was approved on 26 December 1959 and 4 January 1960 and then modified and again approved by the Cabinet on 12 November 1962. Under the scheme plans of many colonies were prepared, approved, implemented, urban spaces constructed and are inhabited by 2.4 million people. From time to time, plans of large number of colonies were prepared and are grouped into the following four parts, names given in Appendix 34.1, and their location along with approximate location of shanty clusters in Map 34.1. (i) Colonies developed prior to 1974; 18 colonies in 598.4 hect. with 52,864 plots. (ii) Colonies developed during 1975-77; 16 large colonies in 968.07 hect. with 148262 plots. (iii) Colonies developed in 1980’s; nine colonies in 34.96 hect. with 14,915 plots. In total, up to 1980s, these colonies were in 1601.43 hect. with 204,911 plots of 21 sq.mt., 7285 plots of 26 sq.mt., 3845 plots of 67 sq.mt. i.e. a total of 216041 plots. (iv)

Colonies planned in 1990s: up to 1980s, most of the plans were prepared by putting plots back to back i.e.only one side open on three other sides houses. Since the last five years, there is a strong feeling that planning in resettlement colonies should change from ‘back to back’ to ‘cluster group’ planning which has special features of – (a) ventilation of least from two sides; less chances of encroachment on outside of the plot; (c) common private open space and (d) group and neighbourhood feeling. Under this philosophy, all the future resettlement colonies are being planned in Delhi Development Authority/Municipal Corporation of Delhi.

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This Chapter consists of typical examples of different types of planning and under this 11 practical examples have been given. One of the largest programme of resettlement colonies, in 1975-77 was of very large magnitude in a total area of 968.07 hect. with 1,48,262 plots of 21 sq.mt. were developed. In this set of colonies, sites of social infrastructure were provided as per Delhi Master Plan norms with 30% reduction in sizes; modification; for example senior secondary school for 10,000 population in place of 7,500. Physical infrastructure was provided on community basis but now, it is being changed on individual basis. These colonies are perfect as per planning principles and planning norms.This was the biggest development works of sites and services in any part of the world in a period of two years. Now all these colonies are fully inhabited and more than one million people live here. In the third phase, a set of colonies were planned and developed after 1980. In this period there was a lot of thinking and discussion specially with regard to the following points: (1) Size of plot, (2) Cost of development per plot, (3) Location of a colony, (4) System of physical infrastructure, (5) Norms of social infrastructure, (6) Maintenance of colonies. During this period these colonies namely, Sultanpuri extension with 1535 plots, each of 21 sq.mt. Kondli phase-I with 2150 plots each of 21 sq,mt. and Kondli phase-II with 3600 plots each of 26 sq.mt.were planned and developed. Since 1988, colonies were planned with the following parameters. (i) Size of plots viz: 12.5, 15.0, 18.0, and 21 sq.mt. (ii) Physical infrastructure Group Basis. (iii) Social infrastructure on reduced norms than in Delhi Master Plan-2001. (iv) Maintenance of services by Municipal Corporation of Delhi. (v) Layout Plans on ‘cluster group basis’. (vi) A three pronged strategy as details given in Chapter 32 (The Quality of Life).

34.1 (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix) (x) (xi)

Some Typical Examples of Physical Planning Typical layout plan of 500 plots followed in many resettlement colonies planned in 1975-77. Patparganj complex (Khichripur, Kalyanpuri, Trilokpuri and Himmatpuri). Khayala colony Sultanpuri colony Shakarpur colony Nand Nagri colony Gokalpuri colony Jahangiripuri colony Bhoomiheen camp planning as an example of ‘Insitu development’ Ekta Vihar complex, an example of ‘Insitu development’ Small housing units for resettlement, in Kondli Gharoli Complex’

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34.1.1 Typical Layout Plan of 500 Plots Followed in Many Resettlement Colonies Planned and Developed in 1975-77 A cluster of 500 plots each only with one family with 2500 population was taken as a basic planning unit at the lowest level. Each cluster has 500 plots of 21 sq.mt.(3 mt.X 7 mt.) with social infrastructure, namely one tot-lot, one nursery school, one religious site, area for community latrines and 4 to 6 shops. Each cluster is in an area of 21 hect. bounded by 9.0 mt. or 13.5 mt. or 18.0 road on all the sides, and 5..0 mt. pedestrian paths inside the cluster. In this way vehicular traffic was permitted on the periphery with no entry inside the cluster except during emergency. Dimensions i.e. length and width of the cluster are such that one has to walk a distance not more than 150 mt.as shown in Map 34.2. At the second level two clusters were combined with a total population of 500 and for this additional facilities of one primary school, one convenient shopping centre and proportionate lower level facilities were provided. At the third level four clusters with 10,000 population were combined and for this additional facilities of one senior secondary school, one local shopping centre and proportionate lower level facilities were provided. Area of these four clusters is 13.2 hect. with a break-up of 13% for circulation (trafficable roads), 15% for pedestrian paths, 20% for public and semi-public, 16% for parks playground and open spaces, 4% for commercial use and the balance for plotted development. At the fourth level, which is at the top in the hierarchy at the community level has a population between 40,000 to 50,000 with one community shopping centre and other lower order facilities. Society at the city level have all other facilities to bring proper order with the help of social system and social structure. These facilities are one cinema, one fire station, one police station, one hospital, one college, large public library and one large citygreen with parks playground and open spaces. Norms followed for Social Infrastructure Senior secondary school with two shifts for Primary school with two shifts for Nursery school each for Community hall cum library each for Dispensary each for Police posts each for Religious building each for Shop each for

34.1.2 Patparganj Complex (Khichirpur, Himmatpuri)- (Map 34.3)

1000 population 5000 population 2500 population 20000 population 15000 population 25000 population 5000 population 60 population

Kakyanpuri,

Trilokpuri,

and

This is one of the largest complex in a total area of 675 hects, approved by DDA in 1976. The complex has 25000 plots of 21 sq.mt. for economically weaker section of the society, besides other development of flats constructed by DDA, staff housing by Delhi Govt., urban villages, unauthorized regularized colonies and complexes developed by cooperative societies. 330 R.G. GUPTA -–1995 www.rgplan.org

Followings are the salient features of the complex. (i)

(ii)

(iii)

(iv) (v)

This is an integrated one with different types of residential use for various income groups with a breakup of 59.2% Economically Weaker Society (EWS), 11.8% Lower Income Group (LIG), 18% Middle Income Group (MIG), and 11% High Income Group(HIG). Commercial use was provided in full hierarchy with one district centre, one large facilities cum community shopping centre, nine local shopping centres 32 convenient shopping centres and 2000 small shops each of 10 sq.mt. were also provided. In the complex sites of social infrastructure were provided to the full extent with one college, senior secondary schools, primary schools, nursery schools; intermediate hospital, dispensaries, police station, police posts, many community halls and libraries. There are 29 blocks each surrounded by 9 mt./13.5 mt./18 mt./24 mt. or 30 mt. roads; but within blocks, only 5 mt. wide foot paths are there. Physical infrastructure has been provided on community basis.

34.1.3 Khyala Resettlement Colony: (Map 34.4) This colony was developed in a total area of 19.78 hects. with district and zonal green in 1.92 hect., thus leaving an area of 17.86 hects. for resettlement colony. In this colony 3362 plots each of 21 sq.mt. were developed with a provision of two sites for primary schools, five sites for nursery schools, 1.2 hect. for convenient shopping centres, local shopping centres and other community facilities, 1.28 hect. for parks, playground, open spaces and 1.4 hect. for circulation system. Density achieved in this colony is @188 plots per hect. This resettlement colony is surrounded by unauthorized colonies on all sides. Due to odd shape of the site, formation of typical blocks, each of 500 plots was not feasible, as such, the plan was changed to suit the size and shape of the site. However, hierarchy in open spaces and circulation system was followed. All the sites for social infrastructure were as per norms adopted in the planning of resettlement colonies. In the last 10 years, it has been seen that most of the plots of 21 sq.mt. abutting on 18 and 24 mt. wide roads have been converted into commercial use and the sites which were marked for commercial use have so far not been fully developed in a systematical way, but are misused. 34.1.4 Sultanpuri Resettlement Colony: (Map 34.5) This is a very large colony in 252.76 hect. with 59.39 hect. kept with other distinct uses, namely, 27 hects. for future development, 5.38 hect. for community shopping centre, 3.5 hect. for a general hospital, 13.46 hect. for group housing and 10.32 hect. for zonal green. The colony was developed in an area of 193.37 hects. with the following land use break-up: 331 R.G. GUPTA -–1995 www.rgplan.org

34.1: Land use break-up of Sultanpuri Resettlement Colony Use Plotted development Schools Commercial Circulation, parks and other community facilities Total

Area in Hect. 45.37 25.73 4.58 117.48 193.16

%age of the total area 23.5 13.3 2.4 60.8 100.0

The colony is self-contained one, with 22,000 plots, with the same number of families and 1,10,000 population with complete economic and social infrastructure. The colony has six sites for senior secondary schools in 12.47 hects., 13 sites for primary school in 9.3 hects., 38 sites for nursery school in 3.96 hects., six sites for local shopping centres in 3 hects., and 44 sites for convenient shopping centres in 1.58 hect. The circulation system has been provided in a hierarchy of roads of 30 mt., 24 mt.,18 mt., 13.5 mt., 9 mt., 7 mt., and 5 mt. Now the colony has become just like a small city in itself and needs the following additions in the physical, social, and economic infrastructure. (i) Physical Infrastructure i.e. water, sewerage and power on individual basis- the work is already in progress. (ii) Social Infrastructure especially hospital, community hall, libraries etc. should be constructed. (iii) Economic Infrastructure i.e. one community shopping centre and few local shopping centres which have so far not been developed, should be developed to generate employment for the people living in the area. (iv) Maintenance of the colony is poor and needs upgradation in respect of scavenging system. 34.1.5 Shakarpur Colony (Map 34.6) The colony is also a large one but not as Mangolpuri or Sultanpuri, with 8464 plots of 21 sq.mt. The colony is in a total area of 54.83 hects. with four phases. The colony was designed for a population of 45,000 with a provision of two senior secondary schools in 3.2 hect., eight primary schools in 3.42 hects. 11 nursery schools in 1.08 hects., local shopping centres in 3.14 hects., and convenient shopping centres in 0.36 hects. The colony has other facilities and parks, playground, open spaces in a total area of 12.3 hect. Density of the complex is 165 plots per hect. or 66 plots per acre. The residential plotted development is only in 32.4%, as lot of green has been provided below the existing high tension lines. In the design, no cluster green has been provided and this gives a feeling of congestion. A green belt has been provided along the major roads abutting the colony. 332 R.G. GUPTA -–1995 www.rgplan.org

34.1.6 Nand Nagri Colony (Map 34.7) Nand Nagri resettlement colony is in two phases, Phase-I is a bigger one, in a total area of 50.58 hect. and is bounded by Wazirabad Road in the north, 30 mt. wide road in the east and south and boundary of unauthorized colonies on the fourth side. In 1976, when the plan was prepared the colony was having 10,000 plots, each of 21 sq. mt., besides spaces for physical, social and economic infrastructure. 35.22 hect. was proposed under community facilities including parks and under this, five plots for senior secondary schools, 10 plots for primary schools and 10 plots for nursery schools, besides some plots for dispensary, post office and other social infrastructure were provided. A large plot of about 2 hect. was proposed for community shopping centre, besides 10 small plots for convenient shopping centres and two for local shopping centres. Salient features of the layout plan are as under: (i) Plot of community shopping centre with facilities of cinema, large shops, commercial offices, fire station, post office, community hall, dispensary, petrol filling station, taxi stand, parking for different modes of vehicles, small hotel, shops for informal sector have been provided. (ii) Large institutional plots i.e. for senior secondary schools, DTC depot, Industrial Training Institute (IIT), and large green area has been provided along 60 mt. wide main Wazirabad Road. (iii) Other plots of social infrastructure, i.e. for primary schools, nursery schools, tot-lots were uniformally distributed in the entire Complex (iv) For pedestrians east-west and north-south green spaces were provided. (v) To keep the environment of the colony in proper order, no small plots were provided on 30 mt. wide and above roads. At present the environment of the colony is not good, as hundreds of shanties have come up in different parts of the colony. (vi) Parks, playground, open spaces at community level, neighbouhood level and local level have been properly distributed for different age groups, i.e. tot-lots within cluster of plots, zonal green on the periphery of the blocks and community green for movements of pedestrians in different directions 34.1.7 Gokalpuri Resettlement Colony (Map 34.8) Comparatively this is a small colony in 14.86 hect. with 2402 plots each of 21 sq.mt. for a population of 10,000 in the north of Wazirabad Road and west of old eastern Yamuna Canal. The colony has been planned with a green buffer between the main Wazirabad Road and boundary of the colony, so that the colony is not extended and encroached upon r/w of the road. 9.1 hect. has been provided for community facilities and park with a break-up of two primary schools and three nursery schools, 0.75 hect. has been provided for commercial use with one local shopping centre and three convenient shopping centres, with 161 shop plots each of 10 sq.mt. 333 R.G. GUPTA -–1995 www.rgplan.org

(i) (ii)

Salient features of the layout plan are as under: The plan is very simple with uniformally distributed social infrastructure facilities. There is a green buffer between the roads and the colony to protect the environment and a pleasant look from the road of the colony and vice-versa. There is an ample green uniformally distributed and if maintained properly, it will improve the quality of life of different sections of the society.

34.1.8 Jahangirpuri Colony (Map 34.9) This is one of the largest colony in a gross area of 400 hect., but with a provision of lot of city level facilities for education, health and commercial. The gross area for resettlement colony is 196 hects. in 2 phases with the following break-up; Phase-I of 167 hect. & Phase-II of 29.49 hect. The Phase-I has Plotted development including small tot-lots, parks, playground and open spaces in 57.6 hects. Group housing – 21 hects. Area under educational and health facilities 45.2 hects. Area under circulation system – 28.2 hects. Area under commercial use – 9 hects. Parks, playground and open spaces – 16 hects. The phase-II has 12.6 hects. under plotted development 3.12 hects. under two senior secondary schools, 4.07 hect. under five primary schools, 1.37 hects. under convenient and local shopping centres, 0.77 hect. under other facilities and 7.56 hects. under circulation system and tot-lots. Two phases were planned for a population of 125,000 of Economically Weaker Section with 25050 plots of 21 sq.mt. with a density of 203 plots per hect. In group housing flats were constructed for the rehabilitation of slum dwellers.

34.1.9 Study of Bhoomiheen Camp Planning as an Example of ‘Institu Development’: (Maps 34.10 and 34.11)

(i) (ii) (iii) (iv) (v) (vi) (vii) (viii)

The camp is situated in a highly accessible area in South Delhi, amongst middle and high class of people in colonies namely, Gobindpuri, Alaknanda, Greater Kailash Part-II, Tara Apartments, Kalkaji Apartments and Tuglakabad extension regularized colonies. It has mixed population of Bangladesh, Bihar, Rajasthan, Uttar Pradesh and Madhya Pradesh. The cluster was surveyed in 1989 and got the following results: Area – 2.8 hects Population-9200 persons No. of hoseholds-2000 No. of plots-1157 Net residential density person per hect-3285 Average monthly household income in rupees -720 Ratio of built-up to open spaces-55.45 Average occupancy rate, persons per room-3.8 334 R.G. GUPTA -–1995 www.rgplan.org

(ix)

(x)

Average existing plot size with following break-up in sq.mt. – 16.8 Less than 5 6.52% 5-15 51.16% 15-25 31.25% 25 and more 11.07% The cluster practically had no physical and social infrastructure.

Four alter models were prepared: Model No. 1: All the households were to be accommodated on the same site, by constructing two storeyed structures with the following results: (i) Ground coverage 40-45% (ii) Average built-up area in sq.mt. 12.12 (iii) Density range in DU’s per hect. 650-700 Model No. 2: 70% of the households were to be accommodated on the same site, by constructing single storey buildings. Results are as under: (i) Ground coverage 60% (ii) Net density in DU’s per hect. 500 Model No. 3: 40% of the households were to be accommodated on the same site, by constructing single stroeyed buildings. The results are as under: (i) Ground coverage 60% (ii) Density in terms of DU’s per hect. 250-265 Model No. 4: 80-90% of the households were to be accommodated on the same site, by constructing three storeyed buildings. The results are as under: (i) Ground coverage less than 40 (ii) FAR 100 (iii) Density in DU’s per hect. 600-625 (iv) Plot size distribution: 12 sq.mt. 70% 24 sq.mt. 30% Selection of the Model: None of the model is perfect and each has merits and demerits. Four models can accommodate 2000, 1390, 744 and 1720 dwelling units respectively. Note: These models have been worked out by School of Planning and Architecture in collaboration with Indian Institute of Technology (IIT) Delhi, United Nations Children’s Fund (UNICEF) and Slum Wing/DDA. This has been used by the author as Advisor (Planning and Implementation), Slum Wing/Board. None of the model was implemented. 34.2.10

Ekta Vihar Complex, an example of ‘Insitu Development’

Location and site conditions: There is a small pocket of 1.31 hects., bounded by roads on two sides, storm water drain on the third side and Central Reserve Police Force (CRPF) on the fourth side, 0.25 km. from Sangam cinema in Rama Krishna Puram (R.K. Puram) area. 335 R.G. GUPTA -–1995 www.rgplan.org

Proposed dimension of the scheme: (a) Dimension of one dwelling unit: Size of plot in sq. mt. 3.0 x 4.17 = 12.5 sq.mt. Carpet area of one DU’s in sq.mt. 10.27 (b) No. of plots and density of the scheme Total no. of plots 471 Density DU’s per hect. 386 Density DU’s per acre 154 (c) Facilities provided: One small development centre (Vikas Kendra) One pour flush latrine block (Sulabh Sauchalaya) Pedestrian circulation system Grouping of 5-8 dwelling units, with a common private open space (d) A hierarchy of open spaces: in the form of public semi-public and private (iv) • •

• •

Other salient features: Physical infrastructure has been provided on much reduced Master Plan norms and on community basis. Social infrastructure provided is practically neglible, except one small development centre (Bal Vikas Kendra), on the plea that these facilities are available in adjoining areas. Construction of individual dwelling units were left to the individuals with the help of non-government organizations (NGOs) and cooperative societies. Land is of the government and for calculation purposes it has been taken free. Development including the physical infrastructure has been done with Plan Fund.

34.1.11Small Housing Units for Resettlement of Economically Weaker Section or Poor People in Kondli Gharoli Complex DDA in 1984 approved a large scheme for the planning, development and construction of residential uses along with facilities in a total area of 658 hect. called Dallupura-Kondli-Gharoli Complex. In this chapter details have been given of construction of 11,000 units of small sizes, i.e. of 13.5 sq.mt., 18 sq.mt. and 25 sq.mt. The Complex is bounded by 30 mt. wide roads on the east and west and 24 mt. wide road on the north and south. Construction of 11,000 dwelling units has been divided into five sectors, B,C,D,F & G; the other two sectors i.e. A and E have been used for large size of houses, not described here.

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Table 34.2: Proposed land use break-up of Dallupura – Kondli Gharoli (large complex) 1. 2. 3. 4. 5. 6.

(ii)

Use Residential Commercial Industrial Public and semi-public facilities Recreation Circulation Total

Area in Hect. 321.88 24.60 80.00 122.44 50.58 58.50 657.92

%age of total area 48.9 3.8 12.1 18.6 7.7 8.9 100.0

Concept of the Layout Plan of the Large Complex: (a) For economical and effective circulation system, the pedestrian and vehicular traffic has been duly segregated by providing a flowing continuous green which is linked up with most of the higher and lower order community facilities, along with pedestrian pathways. (b) Adequate areas for parking of vehicles have been provided around the clusters. (c) Small tot-lot open spaces are also provided in each cluster which are linked up with bigger open spaces and facilities. (d) Orientation of most of the clusters has been kept taking into consideration the climatological features i.e. sun, wind and rain. (e) Adequate community facilities and open spaces have been provided in the layout as per Delhi Master Plan standards. (f) Total population of the Complex works out to around 65,000 persons, besides population of village Gharoli and rehabilitation area. (g) In rehabilitation area, alternate plots or flats will be allotted to those whose structures will be demolished to implement the scheme in the Complex of 658 hect. (h) The gross density of the Complex is 180 DU’s per hect., while the net density is around 250 DU’s per hect.

(iii)

Urban Design Concept: The layout plan of the Complex is the outcome of the grouping of building blocks with a hierarchical system of roads, open spaces and lower/higher order community facilities. Along all the major spines there is a balanced variation of land uses so that the street space does not become monotonous. At the cluster level, and also at other levels it is seen that and aesthetically pleasing layouts with moderate infrastructure and economical house designs are proposed with proper landscaping and to the extent possible by using locally available materials and construction techniques for cost reduction. Sector have been implemented, partly and fully. (iv) Sector/schemewise details of the planning has been given below: (a) Sector A: This was meant for upper MIG, so details have not been given here. (b) Sector B: (Map 34.12): The area of this sector is 15.85 hect. with 4000 dwelling units of lower LIG (Urban Housing B) category each with a plinth area of 18 sq.mt. in a cost ceiling limit of Rs. 20,000 per DU at that time. Nearly, 1600 DU’s were to be constructed in two storeyed blocks and the balance in three storeyed blocks. The population of this sector was to be around 18,000 persons for which 337 R.G. GUPTA -–1995 www.rgplan.org

one higher secondary-cum-primary, one primary school, one Local Shopping Centre, and sites for other essential community facilities were provided. One higher secondary school site was provided in the adjoining area in Sector F. Apart from this, sites for small corner shops were also be provided. All the higher and lower order community facilities will be approachable by a continuous green belt flowing through the area. The pedestrian and the vehicular traffic have been segregated for the safety of the residents. The gross density of this sector works out to 252 DUs per hect. with 23.85 percentage of area under circulation, and net density has been given in Map 34.13. (c) Sector C: (Map 34.14): The area of this sector is about 15 hect. which covers a large chunk of the area presently, partly encroached upon by squatters and also by unauthorized extension of village Gharoli. 4000 DU’s of lower Middle Income Group category (MIG-I) with a plinth area of about 25 sq.mt. per DU and costing Rs. 30,000 each were to be constructed in four storeyed blocks. The population of this sector was around 18,000 persons. Two higher secondary schools, three primary schools, one Local Shopping Centre and sites for other essential community services including corner shops were proposed. The facilities area approachable by a continuous flowing green belt proposed within the site. The gross density of the sector was to be 266 DUs per hect. with a net density of 300 DUs per hect. Detailed design of 25 sq.mt. plot has been shown in Map 34.15. (d) Sector D: (Map 34.16): The area of this sector is 11.20 hect. 1890 DUs of Economically Weaker Section (EWS), category with a plinth area of 13.5 sq.mt. per DU each costing Rs. 12,000 were to be constructed in single storey. Six dwelling units were clustered around a small community open space of about 5.5 mt. x 5.5 mt. in which a community hand pump and a water supply stand post was proposed. The population of this sector would have been 9,000 persons, for which one higher secondary school, two primary schools, two shopping centres and sites for other essential community facilities including corner shops were proposed. There are three existing high tension lines passing through this area. The area under the high tension line has been taken partially under the flowing green belt and partially under the community facilities. The proposed gross density of this sector was 170 DUs per hect. with 25.83%of area under circulation. Net density would have been 300 DUs per hect. In this sector gross density is low due to existence of three high tension lines and single storey construction. (e) Sector E: The area of this sector is about 11.7hect. Nearly 2000 DUs of EWS category with a plinth area of 13.5 sq.mt. per DU, each costing around Rs. 12000 would have been constructed in single storeyed blocks. The population of this sector would have been 10,000 persons for which one higher secondary school, one primary school, two shopping centres and sites for other essential facilities including corner shops were proposed therein. There is a primary school site in the adjoining Sector D site which can accommodate additional 338 R.G. GUPTA -–1995 www.rgplan.org

children of this sector. All these facilities were to be approachable through a continuous flowing green belt which was kept absolutely free from vehicular traffic, thereby ensuring the safety of the residents of the area. Gross density was proposed as 170 DUs per hect. while the net density is 300 DUs per hect. This low density was due to single storey construction. (f) Sector F: The area of this sector is about 12 hect. and would have been utilized for rehabilitation of the persons whose structures would have been demolished in the implementation of the scheme, which has not been implemented fully. (g) Sector G: In this sector, parks, playgrounds and higher order community facilities were proposed to be provided for the people of the complex. This would also act as a buffer between the proposed housing blocks and the Kondli Sewage Treatment Plant, Higher order facilities, police station, fire station, telephone exchange, and a small hospital etc. were also proposed in this sector. (h) Details of Urban Housing: Urban Housing A: (Map 34.17) Plinth Area Plot area Accommodation

13.5 sq.mt. 20 sq.mt. One room of 2.47 mt. x 4.21 mt. and One W.C. of 0.90 mt. x 1.00 mt.

Salient Features: Six dwelling Units were grouped around a community courtyard of 5.17 mt. x 5.44 mt. with a community hand pump/water supply stand post. Built in storage space in the form of a 600 cm wide slab was provided in the room above the door level. There is a scope to add another room above by placing a ladder at any place convenient to the individual. All the six W.Cs in the cluster are connected to a common septic tank and soak pit on the Sulabh Sauchalay a concept. The detailed specifications are as under: Specifications: Foundations

:

Super Structure Lintels Roof

: : :

Height Roof level No. of floors Plaster Floor Finish Doors

: : : : : :

Brick work in cement mortar 1:8 (on lime concrete bed of 150 mm thickness) Brick work in cement mortar 1:8 Stone slab lintels of 5 cm thickness Precast RCC slabs 1.0 m d x 0.5 m. laid on RCC joints as per details Lintel level 2000 mm 2800 mm 2 Nos. (one at initial stage) Cement mortar 1:8 on external and internal walls Brick on edge floor Angle Iron Frame with countrywood shutter. Frameless A.C. Shutter in Wooden Style 339 R.G. GUPTA -–1995 www.rgplan.org

Windows Plumbing Electrification

: : :

Cement Jali A.C. pipes for ventilation Exposed wiring on countrywood battens.

Salient Features Three types designs were proposed in this category. The accommodation given is basically the same in all the three designs except the balcony which has not been given in two other designs where houses are proposed in row housing along 5 mt. access roads. The dwelling units are proposed in two and three storeys. Four DU’s on each floor area served by a single open to sky staircase. Wet core areas i.e. cooking space, bath and W.C. of four dwelling units are clubbed together with single stack, plumbing to economise on the length and cost of services. Maximum number of common walls are taken without sacrificing the ventilation. Detailed specifications: Foundation

:

Brick work in cement mortar 1:8 (on lime concrete bed of 150 mm thickness) up to plinth level (+450 mm).

Roof Height No. of floors Plaster Flooring Doors Windows

: : : : : : :

Sanitary

:

Water Supply

:

Electrification

:

R.C.C. 1:2:4 roof slab 2800 mm floor to floor Two of three approachable by open to sky stair-case Cement mortar 1:8 plaster on inside and outside walls Cement concrete floor with neat cement finish. Countrywood batten door shutters in angle iron frames Terracotta or cement Jalis in W.C. and steel frame windows in room and cooking space. Glazed Indian type W.C. pan connected to common septic tank for four W.C’s on Sulabh Sauchalaya concept. Single stack plumbing for each toilet A.C. (asbestors cement) pipes for plumbing. Two tapes – one in toilet and one in cooking space with PVC pipes for water supply. Exposed wiring on wooden batten. One light point and one fan point in the room and one common light point for toilet and cooking space

Appendix 34.1: 340 R.G. GUPTA -–1995 www.rgplan.org

Area Statement of Resettlement Colonies Developed up to 1980s S. No.

Name of resettlement scheme

Area in Hects.

No. of plots 21 sq.mt.

67 sq.mt.

1923 1200 4358 3510 6738 4576 4918 3626 1100 6354 3740 6722 254 49019

166 404 299 1591 1358 3845

Grand Total

Phase – I – Up to 1974 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18.

Tigri Pandu Nagar Madipur Hastsal Nangloi Wazirpur Seelampur Seemapuri Sunlight Kalkaji Srinivaspuri Garhi Village Madangir Moti Bagh Naraina Najafgarh Road M.B. Shahdara Ranjeet Nagar Total

10.4 18.0 75.6 12.0 38.4 02.8 83.6 19.2 14.0 62.4 6.0 4.0 40.0 9.8 26.0 41.6 34.2 4.0 598.40

1923 1200 4358 3510 6738 4576 4918 3626 1266 404 6354 299 3740 8313 1639 52864

Phase – II – Colonies planned and developed during 1975-80 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12.

13. 14. 15. 16.

Dakshinpuri and Extn. Khanpur Chaukhandi Khyala Complex Gokalpuri Shakarpur Complex Nand Nagri Sultanpuri Mangolpuri Hyderpuri Jagangirpuri Patparganj Complex (Khichripur Kalyanpuri Trilokpuri) New Seemapuri Nangloi N.G. Road Seelampur Complex Total

65.37 7.15 6.55 20.00 14.86 54.03 50.58 150.72 177.73 57.87 132.17 168.00

12300 1378 1534 3362 2402 8464 10000 16000 27800 6442 22000 25000

-

-

17.74 22.00 13.50 9.80 968.07

3166 4472 2300 1642 148262

-

148262

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Phase – III – Colonies planned and developed during 1981-86

1.

Dakshinpuri

2. 3. 4. 5. 6. 7. 8. 9.

Nand Nagari Sultanpuri Mangolpuri Manglapuri Tigri Extension Jawalapuri Kondli Phase – I Kondli Phase – II Total Grand Total

Area in Hect. 1481 1700 1535 (26 sq.mt.) 232 1000 2041 1176 2150 3600 (26 sq.mt.) 14915

No. of Plots

14915 216041

Appendix 34.2:

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Total Picture of Resettlement Colonies in Three Phases i.e. – (i) up to 1974; (ii) 1975-80; and (iii) 1980-86

Phase

I (Up to 1974) II (1975-1980) III (1981-1986)

No. of Resettleme nt colonies developed 18

Area (in Hect.)

No. of plots (21 sq.mt.)

No. of plots (26 sq.mt.)

No. of plots (67 sq.mt.)

Total

598.40

49019

-

3845

52864

16

968.07

148262

-

-

148262

9

34.96

7630

7285

-

14915

43

1601.43

204911

7285

3845

216041

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35 Housing in Urban Villages

35.0 35.1 35.2 35.3 35.4 35.5

Background Classification of Urban Villages Land Use Surveys of Urban Villages Socio-economic Conditions of Urban Villages (1985) Development and Construction of Urban Villages The System of Financial Development of Urban Villages

35.0 Background The entire civilization was in rural settlements before the development process started on earth. Slowly needs and requirements of human beings increased and rural settlements started acquiring urban character and industrialization. Most of the rural settlements in Delhi have already changed and merged into urban areas with changed characterstics in terms of permanent houses, permanent roads, availability of physical and social infrastructure etc. Such changed villages are called urban villages while the others remain the rural villages. Since more than one decade, urban villages are becoming slum pockets which has necessitated the development in terms of laying of physical infrastructure, construction of roads and making available public and semi-public buildings and parks, etc. Similarly, it is also necessary to formulate strategy for the development of different types of villages. Names of these along villages with population and families as per 1981 census have been given in Appendix 35.1 and location in Map 35.1. In Delhi, legally, any rural settlements ceases to exist and get converted into urban as soon as it is declared under Clause (a) of Section 507 of the Delhi Municipal Corporation Act 1957. Under this Section, so far 106 settlements have been declared as urban villages. If five nazul villages viz. Arakpur Bagh Mochi, Todapur, Dasghada, Nangli Razapur, Jhilmil Tahirpur are also added to this list, the total number of urban villages will be 111. Nazul villages are those which are on govt. land.

35.1 Classification of Urban Villages Urban villages can be classified in many ways based on various criteria, given under:

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351.1 Possible Classifications: Villages in Delhi can be Classified into the following 10 Categories (i) Land Ownership; (ii) Land use as given in the Delhi Master Plan; (iii) Land use as existing on the site; (iv) Within urban limits of Delhi or outside; (v) Urban or rural; (vi) Authority’s jurisdiction-wise i.e. Delhi Development Authority (DDA), Municipal Corporation of Delhi (MCD) and Cantt. Board; (vii) Planning Zonewise viz., A (Walled City and adjoining areas), B (Karol Bagh and Naraina etc.), C (Civil Lines Area), D (New Delhi Area), E (Trans-Yamuna Area), F (South Delhi), G (West Delhi) and H (North-West Delhi); (viii) Population wise i.e. up to 500, 501-1000, 1001-2000, 2001-5000, 5001-10000 and more than 10000 etc. (ix) Age-wise and (x) Character-wise. All the above classifications are useful and can be used while formulating policies and strategies for urban villages. 35.1.2 Urban Villages of Delhi can also be classified in the following 10 Categories (i)

Villages on Government Land: (7 in nos.) Das Garha, Todapur, Sarai Kale Kahan, Nanglhi Raza, Mehram Nagar, Bagh Mochi, and Jharera.

(ii)

Villages in Trans Yamuna Area; (23 in nos.) Hasanpur, Mandavali-Fazalpur, Shakarpur Khas, Seelumpur, Usmanpur, Mauzpur, Gamri, Karkardooma, Jhilmil, Naya Gaon, Khureji Khas, Garhi, Chauhan Banger, Babarpur, Gonda, Chilla, Patparganj, Kotla, Khichripur, Shahadra, Kaithwara and Kondli.

(iii)

Surrounded by DDA development scheme: (46 in nos.) Sheikh Sarai, Wazirpur, Tatarpur, Asalatpur, Possangipur, Nangli Jalib, Jwala Heri, Nangaloi-Syed, Garhi Piran, Madipur, Munirka, Vasant Gaon, Pitampura, Shalimar, Khyala, Haiderpur, Shahipur, Bodella, Zamroodpur, Begampur, Ber Sarai, Katwaria Sarai, Tikhand, Tamoor Nagar, Khizrabad, Kilokari, Pipalthala, Bharola, Naraina, Shahpur Jat, Mohammadpur, Kishan Garh, Masoodpur, Samepur, Madanpur Khadar, Madangir, Keshopur, Shakarpur(West), Hamayunpur, Garhi Jharia Maria, Nangal Raya, Okhla, Joga Bai, Mahipalpur and Basai Darapur, connected with the schemes prepared by the Delhi Development Authority (DDA) and their plans cannot be dealt with insolation and have to be integrated with the surrounded areas.

(iv)

Independent Villages with reference to DDA’s development Schemes: (28 in nos.). These villages cannot be integrated with any of the DDA’s schemes of urban development. Names of these villages are Masjid Moth, Hauz Khas, Kalu Sarai, Hari Nagar Ashram, Azapur, Rampura, Mahipalpur, Dhakha, Malikpur Chawni, Rajpur Chawni, Shadipur, Tihar, 362 R.G. GUPTA -–1995 www.rgplan.org

Chaukhandi, Chirag Delhi, Jia Sarai, Kotla Mubarakpur, Mehrauli, Lado Sarai, Adhichini, Tughlakabad, Jasola, Badarpur, Dheerpur, Yusuf Sarai, Hauz Rani, Sadhora Kalan, Hastsal and Behlolpur Khadar. These villages are to be dealt with independently. (v)

Villages with excess industrial growth: Basai Darapur, Basti Shalimar Bagh, Haiderpur, Garhi Peeran, Dhirpur, Wazirpur, Khayala and Rampura. Brief of their industrial activities has been given under: As per surveys of 1984-85, total population of these villages was 55,798. There were 3120 small and big industrial units operating in these villages. From the survey analysis following factors were found responsible for excessive industrial growth in these villages: (a) Suitable locations of the villages along main transport routes’ (b) Availability of cheap, skilled and semi-skilled labour; (c) Availability of raw material in Delhi; (d) Availability of cheap rented accommodation in and around villages; (e) Proximity to the thickly populated areas; (f) Securing of municipal licenses etc. easily. The strategy for development of one such village i.e. Peeran Garhi has been spelt out in para 35.4 (iv) of the chapter. Development plan of village Peeran Garhi is shown in Map 35.2. (vi)

Villages with excess commercial growth: There are eight villages falling in this category:

Name of the Village Pitampura Munirka Khanpur Wazirpur Jwalaheri Possangipur Masjid Moth Pipal Thala and Bharola

Name of the market Shiva Market Kartar Market Market along Mehrauli Badarpur Road and Deoli Road Unauthorised market adjacent to Deep Cinema Market opposite DDA Local Shopping Centre site A new market has come up around the village Lila Singh Market Market adjacent to new Fruit & Vegetable market on G.T.Karnal Road

With the acquisition of agricultural land, villages started searching the alternative means of livelihood for their survival. Those who possessed large plots constructed informal markets unauthorizedly and let these out for very high rentals. This also happened partly due to the shortage of organized markets in the developed colonies of the DDA, especially for building materials and eatables. The process continued for all the times resulting big or small unauthorized markets have been responsible in sabotaging many of the commercial shopping centres of DDA. Jwalaheri, Wazirpur, Munirka and Khanpur are the typical examples of this phemomenon. Following are the factors which have been responsible for development of unauthorized markets around villages. 363 R.G. GUPTA -–1995 www.rgplan.org

(a) Within the release of building activity in a number of residential schemes of the DDA, the demand for building arose. Building material being available in the remote areas, proved to be very costly. Hence the private entrepreneurs developed shops for building materials like bricks, steel, sand, timber, sanitary goods, cement etc. near the construction sites in developed colonies. (b) Acute shortage of planned and developed commercial markets compelled the residents of colonies to construct temporary shops for fruits, vegetables, eatables, general merchandise, grocery and pan bidi, cigarettes, etc. (c) Construction of temporary unauthorized shops does not involve much finances. Piece-meal development within and outside urban villages also encouraged informal shopping activity. Strategy for development and improvement of such type of unauthorized markets is as under: (a) Open areas to the extent available, (b) Development of parking sites for different modes of vehicles (if available). (c) Construction of public convenience at suitable points. (d) Loading and unloading facilities for goods. (e) Adequate arrangements for solid and liquid waste disposal. (vii)

Villages with substaintial Scheduled Caste and Scheduled Tribes population: There are only three villages in this category viz., Arakpur Bagh Mochi, Masihgarh and Karkardooma having a total population of 2846 as per 1981 census. These villages should be developed like others except that there should be more educational and health facilities. (viii) Very small villages: (1981 census) There are only three very small villages viz. Kachipur (population 200), Hasanpur (population 177) and Kotla (population 321). These villages are so small that it is worth considering their shifting to suitable sites. (ix) Villages suited on rocky land: (6 in nos.) Six villages viz. Basant Gaon (population 2573), Dasgarha (population 2240), Kishan garh (population 1231), Masoodpur (populayion 1389), Tekhand (population 1650) and Tughlakabad (3688) are situated on Aravali ranges which form part of the southern ridge. Growth of these villages should be restricted to the extent possible, so that the ridge is disturbed to the least. (x) Villages with suitable development: Most of the urban villages in Delhi are changing their character and becoming industrial and commercial slums. Still, there are some good villages, as they have adequate and suitable development. In this category there are Shahpur Jat, Haus Khas, Katwaria Sarai, Hamayunpur and some other villages.

35.2

Landuse Survey of Urban Villages

Landuse survey analysis of 46 villages (details given in Appendix 35.2), was done with regard to- (i) Area of the village as per approved plan, in hect.; (ii) area under residential use; (iii) area under open spaces and parks; (iv) shopping; (v) other community facilities and (vi) circulation, was done in 1985 based on various plans approved by the Delhi Development Authority up to that time and got the following results: 364 R.G. GUPTA -–1995 www.rgplan.org

(a) Residential use varies from 39% to 73% of the total planned area. (b) Schools and educational facilities vary from 0 to 23%. (c) Circulation from 8% to 37%. There is so much variation in different land uses that no inferences can be drawn. This is due to amalgamation of villages into adjoining areas. Whatsoever the approved plans are, should be implemented so that villagers get full physical and social infrastructure either within the boundary of the approved plan or in the adjoining areas. In most of the villages, area for residential uses, flats for affected families were also shown, but slowly this has been consumed either in unauthorized construction or by using for some type of housing by the DDA.

35.3 Socio-Economic Conditions of Urban Villages (1985) The Socio-Economic Planning Unit of the Delhi Development Authority conducted socio-economic surveys of selected 52 urban villages, out of total 111. In 1985, these villages were having a population of 1,39,103 consisting of 15974 persons belonging to scheduled castes and scheduled tribes. These 52 villages are of different sizes with a break up of 14 villages each of less than 1000 population, 17 villages having a population between 1000-2000, and 21 villages with population more than 2000. Names of these 52 villages are given in Appendix 35.3. The survey is with regard to number of properties, number of households, population of Scheduled Castes/Scheduled Tribes, population of the village, total area of the village in hect., availability of physical infrastructure in terms of water, sewerage, power, storm water drains, latrine blocks, dust-bins, roads and streets (metalled, brick paved and temporary); in terms of avalaibility of social infrastructure i.e. primary schools, higher secondary schools, parks, community halls and dispensaries. Results are as under: (i) There are 20538 properties/structures in these 52 villages. (ii) There are 22138 households having a total population of 1,39,103 out of which 15,974 persons i.e. 11.48% belong to Scheduled Caste and Scheduled Tribes. (iii) Area of these 52 villages in 551.5 hect. with an average of 10.6 hect. per village. (iv) Position of utilities and services: (a) Tap water supply is available in 84.6% of villages, (b) Sewage disposal facility is available in 78.9% of villages. (c) Electricity is available in all the villages. (d) Position of sanitation and hygiene was as under: Public lavatories exist in 33 villages and in four these were under construction. About 63.4% of the villages have the facility of public toilets. It has also been experienced that maintenance of public toilets had been a big problem. So in future, the system of ‘pour flush latrines’ should be followed. (v) Position with regard to social infrastructure, public and semi-public facilities was as under: (a) 60 primary schools in 49 villages. (b) nine middle schools in seven villages. (c) 15 higher secondary schools in 15 villages. (d) It shows that primary schools are available in almost all the villages. However, for middle and higher secondary education, the villagers have to depend upon adjoining colonies. It is observed that most of the school building are smaller in size and have sub-standard environment. (e) There are 62 chopals, barat ghars or 365 R.G. GUPTA -–1995 www.rgplan.org

community halls in 41 villages. 80% of the villages have the facility of chopal/community halls/barat ghars. (f) Only 27% of the villages have medical facilities. In 12 villages, there are 14 dispensaries. (g) Position of parks, playgrounds and open spaces was as under: Out of 52 villages, there are parks in 31 villages. According to surveys only 60% of the villages have parks, playgrounds and open spaces and the balance 40% lack in this type of facility. As per the plans prepared in the early 1960’s, sizable plots of lands were proposed for parks and playgrounds on the periphery of each village. Now, in many cases, these spaces have been used for group housing purposes. In brief, most of the villages have facilities of portable water, sewage disposal and electricity, chopals/community hall/barat ghar. However, villages are deficient in terms of medical facilities, public lavatories, hygienic conditions and maintenance of services.

(vi)

35.4 Development and Construction of Urban Villages (i) General: Development of any area including leveling, dressing, laying of internal, peripheral and trunk infrastructure, namely –water lines, sewer lines, electric lines and storm water drains, construction of roads, development of sites for parks, playgrounds, open spaces and for public and semi-public buildings for health, education, social security, social justice, employment, housing, shopping centres, facilities etc. For the development of any urban village, it is attempted to follow the Master Plan standards with regard to utilities, services, public and semi-public facilities. However, in most of the cases, it is not possible to earmark sites for various community facilities as per standards, and as such the norms for the provision of community facilities have been reduced and brought to the standards approved and adopted in the case of unauthorized regularized colonies as per details given in Appendix 38.1. Provision of potable water has been made at the rate of 50 gallons per day per capita and discharge the sewage at the rate of 40 gallons per day per capita. It was not possible to adopt road widths as per norms laid down in the Master Plan, as such, in most of the cases, existing road widths have been followed with a condition that no road or street would be less than 5 mtr. R/W. (ii)

The following are the three methods for the planning and development of urban villages: (a) Curative Method; (b) Preventive Method; (c) Development Method. The entire system of physical planning and development is similar to the treatment of a human body. In curative method, the disease has to be cured, may be by the method of surgery as in medicine. In preventive method, due care and sufficient measures should be taken to prevent disease, and in the development method, develop the system to such an extent that the body gains resistance to face the attacks of germs, bacteria and climate. Application of these three methods in planning of urban villages has been given under: 366 R.G. GUPTA -–1995 www.rgplan.org

(a) Curative method: Comprehensive survey of the area should be conducted for this method of planning and pockets which are beyond repairs should be earmarked. Improvements and development be carried out after demolishing structures and vacant pockets should be used for community facilities to the extent possible. This method is difficult to implement as a lot of the resistance is faced from the public residing in the area. (b) Preventive Method: For the preventive method of development, zoning regulations, building bye-laws, Land Acquisition Act, Urban and Land Ceiling and Regulations Act, P.P. Act, charging of heavy damages, unauthorized constructions as a cognizable offence, collection of development charges as arrears of land revenue, Municipal Act, etc. should be applied to stop illegal and unauthorized construction. (c) Development Method: For Development Method, supply of residential, commercial and community facility spaces should match the demand from time to time for different sections of the society. Proposals in the ‘Project Report’ are largely based on the second and third method. (iii)

(a)

Strategies for Development of Typical Urban Villages: Based on the experiences of the last three decades, strategies for the development of typical villages have been formulated. The following pertinent and important questions arise while formulation of strategies. Whether an urban village should be developed first and then the adjoining areas or vice-versa. (b) Whether the village should be developed simultaneously along with the beneficiaries or the Government or both. (d) Whether the development should be carried out by the method of positive development or only regulatory controls should be applied. (e) Whether planning should commence from the top i.e. the growth centre or as the bottom, i.e. the basic villages or simultaneously at both the levels. (f) Whether development of all the villages should be taken up simultaneously or only some villages should be developed at a particular stage considering the

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limitations of financial resources. (g) Whether urban villages should be developed by public agencies or private sector should also be encouraged for the development process for urban villages. (iv)

The example of Garhi Peeran: This is a highly industrialized village having a very less residential component, located in an area of 19.25 hect. with 2000 population 332 out of the 458 structures in this village are used for manufacturing industry. Following can be the alternative strategies for the development of this village” (a) Shift all the 332 industrial units and restore the character of the village as existed in the early seventies. (b) Develop the entire village as a planned industrial estate. (c) Let the village continue on existing pattern as an unplanned one, and allow the industries to expand based on economic forces. All the three strategies have merits and demerits. The last strategy is the worst and should not be adopted. From the planning point of view, a strategy should be evolved by combining the merits of a and b , as given under: (i) All the household and other light industries up to four workers and one H.P. electric load should be permitted in the village. List has been given in Appendix 35.5. (ii) Noxious, hazardous and obnoxious industries should be shifted in Delhi Metropolitan Area or National Capital Region’s towns/cities. A list of industries not permitted in urban and rural villages in Delhi has been given in Appendix 35.6. (iii) Remaining industries as names given in Appendix 35.7, not falling in the above two categories should be rehabilitated after developing a pocket of about 2-3 hect. on the periphery or at a suitable location to accommodate all such units.

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35.5 The System of Financial Development of Urban Villages Based on the 1983 schedule of rates, estimates of development of 53 villages, names and details given in Appendix 35.4 were calculated based on the rates as given in Table 35.1:

Table 35.1: Rates of development per sq.mt. of various items applicable in 1983

Item (i) Water supply (ii) Sewerage (iii) Roads and Lanes (iv) Storm water drains (v) Parks playgrounds (vi) Lavatory blocks (vii) Urinals (viii) Dustbins (ix) Miscellaneous Total

Rs. per Sq.mt 5.8 9.7 12.5 5.1 .7 1.7 .23 .48 2.3 44.61

Or Rs. per sq.mt. on gross area of the village. This rate was about 25% of the cost of development of new areas, at that time.

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Appendix 35.1 Names, Population and Location of 111 Urban Villages in Delhi Sl. No.

Name of Village

1

2

Total Pop. 3

Families 4

2455 239 3322 1911 1177 2405 1186 3667 9646 3346 5688 5248 4370 936 1543 5220 578 899 3189 2406 1212 2136 1576 1068 5863 1747 827 11995 7104 2583 5150 2171 3144 1285

545 53 768 43 261 540 261 815 2144 768 1264 1166 971 208 343 1166 122 200 709 644 270 479 350 237 1303 388 184 443 1578 574 1145 482 699 285

4396 2622 1168

977 583 260

14424 1232 1987 4883 784 729 5150

3205 294 441 1085 174 162 1144

SOUTH DELHI 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. 21. 22. 23. 24. 25. 26. 27. 28. 29. 30. 31. 32. 33. 34. 35. 36. 37. 38. 39. 40. 41. 42. 43. 44. 45

Kilokari Behlolpur Khadar Kotla Mubarakpur Tamur Nagar Khizrabad Sarajuliana Joga Bai Okhla Garhi Jharia Maria Zamrudpur Masjid Moth Shahpur Jat Humayun Pur Hauz Khas Yusuf Sarai Mohammed Pur Masihgarh Jasola Madan Pur Khadar Tekhand Khirki Sheikh Sarai Begam Pur Sarai Shahji Hauz Rani Adh-Chini Kalusarai Ber Sarai Chirag Delhi Katwaria Sarai Munirka Basant Gaon Lado Sarai Madangir Badarpur Hari Nagar (Ashram) Kherara Arakpur Baghmochi (Nazul) Mehrauli Kishangarh Khanpur (Part) Tughlakhabad Jia Sarai Masud Pur Mahipal Pur

Sl. No.

Name of Village

1

2

Total Pop 3

Families 4

3162 2280 2493 2514 4419 658 2610 2625 8427 4244 3758 3261 1530 4047 593 3427 1191 1366 2264 1254 534 3003 5334

703 507 554 559 982 146 580 583 1873 943 835 724 340 900 131 761 265 303 503 299 118 667 1185

NORTH DELHI 46. 47. 48. 49. 50. 51. 52. 53. 54. 55. 56. 57. 58. 59. 60 61. 62. 63. 64. 65. 66. 67. 68.

Dhaka Dhirpur Malikpur Chawni Rajpur Chawni Azadpur Bharola Peepal Thala Nimri Rampura Wazirpur Shakur Pur Sadora Kalan Nihar Pur Rithala Mangol Pur Khurd Haider Pur Wazirabad Pitampura Mangolpur Kalan Basti Shalimar Sahi Pur Samaypur Badli

WEST DELHI 69. 70. 71. 72. 73. 74. 75. 76. 77. 78. 79. 80. 81. 82.

Kham Pur Shadi Pur Naraina Basai Dara Pur Tatar Pur Chaukhandi Khayala Tihar Nangal Raya Asalat Pur Possangipur Nangli Jalib Bodella Kasho Pur

1030 4290 9657 13870 2014 880 1131 5616 10295 980 714 1565 1033 821

229 953 2146 3082 447 196 251 1248 2288 218 159 348 230 182

83. 84. 85. 86. 87. 88.

Madi Pur Dasghara Toda Pur Jawala Heri Garhi Piran Nangloi Syed

6236 1650 1003 674 1607 640

1386 376 223 150 357 142

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Sl. No.

Name of Village

Total

Sl. No.

Pop.

Families

1524 1524 2740 1351 1472 7052

339 339 609 300 327 1567

101. 102. 103. 104. 105. 106.

2242 5794 2812 1135 984 984

498 1288 625 252 219 219

107. 108.

Name of Village

Total Pop

Families

501 606 666 1612 4200 1739

111 135 148 358 933 386

233 984

52 219

682 2518 1464 247840

152 600 325 56324

EAST DELHI 89. 90. 91. 92. 93. 94.

Ghonda Kaithwara Mauzpur Jhilmil Karkar Duman Shahdara

95. 96. 97. 98. 99. 100.

Ghonda Seelam Pur Khureji Khas Mandavali Fazalpur Gazipur Kachi Pur

Hasan Pur Shakar Pur Saboli Usmanpur Mandoli Kachhi Ghondaneemka Bangar Kotla Khichri Pur

DELHI CANTT 109. Mangla Puri 110. Mehram Nagar 111. Jharera Total Population

Source: DDA Records

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Appendix 35.2 Landuse Analysis of Urban Villages in Delhi Sl. No.

1 1.

Name of Village

Area of Village in Hect. & %age

Area under res

Schools

Open Space and Parks

2 Zakir Nagar, Batla House and Jogabai Complex Kilokri

3 15.87 100%

4 6.58 41.50%

5 1.10 6.92%

6 1.89 11.91%

6.9 100%

2.74 39.75%

0.28 4,05%

0.50 7.36%

3.

Sheikh Sarai

8.18 100%

5.56 68.00%

0.41 5.01%

-

4.

Tamoor Nagar and Extension

5.50 100%

2.61 47.5%

-

0.61 11.09%

5.

Kalu Sarai

5.20 100%

3.03 58.64%

0.58 11.15

0.04 0.77%

6.

Khizrabad

5.36 100%

2.32 43.28%

0.82 15.30

0.777 14.37%

7.

Masih Garh

8.

Sarai Julliana

1.73 100% 5.31 100%

1.17 67.73% 3.53 66.47%

0.12 6.43% 0.38 4.59%

0.03 1.90% 0.25 4.70%

2.

Shopping

Other Com. Facilities

Area in Hects. (P E R C E N T A G E S) 7 8 0.41 0.57 (3.59%) 2.58% E.S.S./O.C.F – 0.11 Complex C.Hall/Health Centre – 0.12 O.C.F.-34 1.59 (23.05%) Work Centre – 0.96 Dispensary – 0.12 O.C.F.-0.32 Religion-0.19 0.46 (5.62%) Barat Ghar – 0.70 Chopal – 0.16 Religious – 0.05 0.02 0.22(4%) Nursery 0.4% School – 0.10 E.S.S. – 0.02 Public Toilets -0.01 Com. Hall – 0.07 OCF. – 0.02 0.07 0.11 (2.11%) 1.35% Religious – 0.03 Chopal – 0.01 Police Post – 0.04 Sub Post Office – 0.03 0.15 (2.79%) Comm. Hall- 0.07 Medical Centre – 0.08 0.01 (0.57%) Religious – 0.01 0.19 (4.70%) Multi-Purpose Comm. Hall – 0.21 Chopal (2 Nos.) – 0.01 Temples – 0.03

Circulation

9 5.32 33.52%

1.78 25.79%

1.75 (21.39%)

2.04 37.1%

1.37 26.35%

1.29 24.07%

0.40 22.81% 0.90 16.95%

E.S.S. – Electric Sub Station O.C.F – Other Community Facilities C.Hall – Community Hall

372 R.G. GUPTA -–1995 www.rgplan.org

9.

Tekhand

16.77 100%

9.38 55.9%

0.77 5.59%

0.55 3.28%

0.29 1.73%

10.

Arakpur Bagh Mochi Madanpur Khadar

3.89 100%

2.18 56.05%

0.26 6.68%

0.20 5.14%

0.21 5.40%

35.11 100%

26.78 76.27%

0.65 1.86%

3.05 8.68%

0.19 0.54%

12.

Khanpur

11.09 100%

7.73 71.95%

0.50 4.5%

0.13 1.17%

0.36 3.25%

13.

Basant Gaon

15.70 100%

5.79 36.88%

1.70 10.80%

1.26 11.85%

-

14.

Hauz Khas

2.39 100%

1.344 56.24%

0.178 7.45%

0.277 11.58%

-

15.

Khirki

7.27 100%

3.36 46.22%

0.54 7.43%

0.23 3.16%

0.12 1.65%

16.

Katwaria Sarai

12.58 100%

7.19 57.15%

0.30 2.38%

1.27 10.09%

0.05 0.40%

11.

1.37 (8.17%) Police Post – 0.28 Multi Purpose Comm. Hall – 0.18 Dispensary – 0.07 O.C.F. – 0.80 Religious – 0.04 0.11 (2.83%) Industrial-cumwork centre – 0.11 1.40 (3.99%) Multi-Purpose Comm. Hall – 0.09 Dispensary – 0.05 Chopal – 0.09 Police Post – 0.15 Hospitals – 1.00 Religious – 0.02 0.55 (4.96%) Dispensary – 0.06 Religious – 0.02 Chopal – 0.89 Social Welfare Unit – 0.02 Multi-Purpose Comm. Hall – 0.05 Indl. Training – 0.36 3.04 (19.36%) Police Post – 0.16 Dharam Shala – 0.03 Religious – 0.07 0.111 (4.65%) Temple – 0.016 Mosque – 0.015 Graveyard – 0.019 O.C.F.-0.041 Lav. - -.002 1.11 (15.26%) O.C.F. – 0.15 Multi-Purpose Comm. Hall – 0.04 Health Centre – 0.11 Police Post – 0.17 Religious – 0.64 0.32 (2.54%) Comm. Hall – 0.09 Panchayat Ghar – 0.09 Chopal – 0.01 Work Centre – 0.13

4.40 26.24%

0.93 23.90% 3.04 8.66%

1.57 14.16%

4.0 20.68%

0.480 20.08%

3.45 26.27%

3.45 27.42

373 R.G. GUPTA -–1995 www.rgplan.org

17.

Kishan Garh

53.42 100%

16.37 30.64%

7.58 14.18%

4.45 8.32%

8.60

18.

Lado Sarai

39.13 100%

18.09 46.24%

3.18 8.13%

2.98 7.61%

0.65 1.66%

19.

Masjid Moth

13.13 100%

7.78 59.25%

1.15 8.76%

0.72 5.48%

0.15 1.15%

20.

Okhla

6.26 100%

3.84 61.34%

0.44 7.03%

0.11 1.75%

0.06 0.96%

21.

Tughlakab ad

45.62 100%

26.61 58.33%

2.54 5.58%

3.29 7.21%

0.44 0.96%

22.

Masoodpur

13,23 100%

7.11 53%

1.21 9.15%

1.76 13.30%

0.12 0.9%

7.48 (14.00%) Hospital (2) – 3.74 P. Station – 0.54 Dispensary – 0.41 Post Office – 0.61 O.C.F. – 0.83 Goshala – 1.35 7.06 (18.04%) College – 2.91 Hospital – 1.29 Com. Hall – 0.12 O.C.F. – 0.55 E.S.S. – 0.4 Institu. – 1.60 Temple – 0.13 0.85 (6.47%) Comm. Hall – 0.02 Nehru Bal Samiti – 0.45 Samaj Shiksha Centre – 0.05 Religious – 0.26 DAV Public School – 0.07 0.41 (6.55%) Com. Hall – 0.04 Dispensary – 0.05 Welfare Centre – 0.01 Chopal – 0.01 D.T.C. Stand – 0.12 Milk Booth – 0.03 Religious – 0.15 3.14 (6.88%) Panchayat Ghar – 0.20 Chopal (3 Nos.) – 0.04 Health Centre – 0.30 Post Office – 0.01 Mandir – 2 Nos. – 0.19 Comm. Hall – 0.22 Indl. Training / Work Centre – 0.73 O.C.F. – 1.24 Religious 0.32 (2.34%) Com. Hall – 0.23 O.C.F. – 0.09

7.60 14.23%

7.17 18.32%

2.48 18.89%

1.40 22.36%

9.60 21.05%

2.71 20.4%

P. Station – Police Station

374 R.G. GUPTA -–1995 www.rgplan.org

In Munirka stit u – In stit uti on al

27.75 100%

15.51 55.89%

2.42 8.72%

3.32 11.96%

0.97 3.49%

0.12 2.23%

0.31 6.33%

0.39 7.06%

0.79 13.23%

0.22 3.69%

23. 24.

Begumpur

4.90 100%

1.67 34.08%

25.

Asalatpur

5.97 100%

2.70 45.23%

26.

Tatarpur

4.06 100%

2.43 59.90%

-

0.32 7.87%

0.26 6.40%

27.

Nangloi Syed

10.443 100%

4.775 54.72%

-

0.719 6.888%

0.220 2.106%

28.

Madipur Rampura

13.88 69.40% 8.501 60.37%

-

29.

20.0 100% 14.08 100%

2.43 16.81%

1.51 7.55% 0.659 4.69%

0.20 1.00% -

30.

Possangip ur

6.4 100%

4.22 65.95%

-

-

-

31.

Nangli Jalib

5.28 100%

2.03 38.40%

-

0.90 17.00%

0.16 3.10%

0.93 (3.35%) Com. Hall – 0.03 Work Centre – 0.26 Health Centre – 0.06 Religious – 0.21 Public School – 0.06 Bank (Exist) – 0.03 Police Station – 0.17 Monument – 0.11 1.36 (27.97%) Comm. Hall – 0.28 Religious – 1.02 Dispensary – 0.06 0.89 (14.90%) Work Centre – 0.28 O.C.F. – 0.24 Multi-Purpose Comm. Hall – 0.13 Police Post – 0.20 Religious – 0.04 0.09 (2.20%) Temple and Chopal

4.60 16.59%

0.781 (7.478%) O.C.F. – 0.22 Comm. Hall – 0.10 Work Centre 0.22 Multi-Purpose Comm. Hall – 0.15 Lav. (2 Nos.) + Dhalao – 0.91 Religious – 0.09 Hospital – 1.09 0.37 (1.85%) O.C.F. – 0.37 0.023 (0.60%) Religious – 0.023

3.95 (37.83%)

0.71 (22.96%) Post Office – 0.054 Panchayat Ghar – 0.100 Dispensary – 0.052 Work Centre – 0.180 Police Post – 0.134 O.C.F.-0.190 0.43 (8.10%) Comm. Centre – 0.08 Public Lav. (2) – 0.03 Milk Booth – 0.01 Police Post – 0.29 E.S.S. – 0.02

1.47 11.9%

1.05 21.43%

1.37 22.95%

0.96 23.63%

4.04 20.20% 2.468 17.53%

1.76 19.05%

375 R.G. GUPTA -–1995 www.rgplan.org

32.

Shalimar Bagh

9.01 100%

4.637 51.98%

2.10 23.30%

0.16 1.80%

-

33.

Ambedkar Ngr. Govind Mohalla Village Hyderpur and Extension Nangal Raya and Extn. Hasanpur

21.59 100%

10.32 47.80%

2.53

1.37 6.35%

0.02 1.48%

21.58 100%

13.15 60.94%

1.61 7.46%

1.76 8.15%

0.33 1.52%

1.90 100% 19.25 100%

1.3 64.5% 6.786 35.25%

0.09 5.0% 0.64 3.1%

0.22 11.5% 4.247 22.06%

-

34.

35. 36.

Garhi Peeran

37.

Peepal Thala and Bharola

16.5 100%

9.06 54.90%

2.21 13.39%

1.20 7.27%

-

38.

Todapur

8.09 100%

4.964 61.36%

-

0.498 6.15%

-

39.

Dusghera

12.23 100%

6.918 56.54%

0.409 3.34%

0.869 7.10%

0.116 0.95%

40.

Karkardoo ma Jawala Heri

11.066 100% 9.09 100%

4.646 41.95% 5.04 55.45%

0.57 5.15% 0.48 5.28%

1.39 12.56% 0.72 7.92%

-

41.

0.235 1.22%

0.30 3.30%

0.038 (3.87%) Work Centre – 0.220 Temple – 0.138 1.52 (7.04%) Over Head Tank – 0.14 Religious – 0.18 Work Centre – 0.26 Com. Hall – 0.25 O.C.F. – 0.69

1.717 19.05%

0.28 (1.30%) Com. Hall – 0.05 Religious – 0.23 0.1 (5.0%)

4.45 20.6%

1.27 (6.60%) O.C.F. – 0.524 Panchayat Ghar – 0.060 Chopal – 0.040 Religious (2) – 0.162 Work Centre – 0.464 1.57 (9.51%) Religious – 0.05 Post Office – 0.05 Police Post – 0.10 Work Centre – 0.41 0.514 (6.36%) Comm. Hall – 0.110 Work Centre – 0.404 0.236 (1.93%) Comm. Hall – 0.121 Dispensary – 0.088 Temple – 0.027 0.24 (2.17%) 0.61 (6.71%) O.C.F. – 0.18 Panchayat Ghar – 0.16 Dispensary – 0.15 Police Post – 0.06 Religious – 0.04 Public Lav. – 0.02

5.53 25.62%

8.267 14.0% 6.072 31.82%

2.48 15.0%

2.114 26.13%

3.688 30.14%

4.22 38.16% 1.94 21.34%

376 R.G. GUPTA -–1995 www.rgplan.org

42.

Hamayunp ur

8.01 100%

4.97 62.05%

0.25 3.12%

0.89 11.11%

0.03 0.37%

43.

11.635 100% 18.676 100%

8.425 72.41% 9.885 52.95%

-

-

-

44.

Basai Darapur Pitam Pura

0.816 4.36%

2.71 14.51%

-

45.

Azadpur Jia Sarai

6.65 56.75% 0.69 26.84%

1.13 9.64% 0.25 9.73%

1.02 8.70 0.73 28.41%

-

46.

11.72 100% 2.57 100%

-

0.40 (5%) Comm. Hall – 0.04 Chopal – 0.02 Panchayat Ghar – 0.02 Health Centre – 0.05 Medico Centre – 0.05 Bal Bhavan – 0.12 Monument – 0.06 Pump House – 0.04 0.054 (0.44%) 0.537 (2.88%) Police Post – 0.100 Post Office – 0.105 Health Centre – 0.145 Panchayat Ghar – 0.181 0.30 2.56% 0.40 28.41%

1.47 18.35%

3.159 27.15% 4.726 25.30%

2.62 22.35% 0.50 19.46%

377 R.G. GUPTA -–1995 www.rgplan.org

Appendix 35.3 Position of Socio Economic Conditions of 52 Villages as on Jaunary, 1985 (Please see another file of Appendixes)

Appendix 35.4 Rates of Development of Infrastructure in per sq.mt. in Villages (Please see another file of Appendixes)

Appendix 35.5 List of Household Industries as per Master Plan of Delhi -2001 1. Agarbati and Other Products 2. Calico and Textile Printing 3. Cane and Bamboo Products 4. Clay Modelling 5. Coir and Other Fibre Products 6. Zari Zardozi 7. Hosiery 8. Jewellery Work 9. Stone engraving 10. Manufacture of: (i) Blanko cakes (ii) Brushes (iii) Crayons (iv) Ice Cream and Confectionery (v) Jam, Jellies and Fruit Preserves (vi) Narrow Fabrics and lace work material (vii) Musical Instruments including repairs (viii) Ornamental leather goods such as purses, hand bags (ix) Small Electronic Components 11. Paper Stationery items including book binding 12. Farming of Pictures and looking glasses 13. Pithwork manufacturing of pith hat, garland and flowers 14. Tailoring 15. Thread Balls and Cotton firing 16. Umbrella assembly 17. Wood carving and artistic wood wares 18. Varmicelli and macaroni 19. Assembly and repairing of electronic items 20. Ivory carving 21. Card board boxes 22. Plastic and P.V.C. Products with one moulding machine of one K.W. 23. Toys and Dolls 24. Papier Machle 25. Copper and Brass Artware 26. Lac Products 27. Candles 28. Cottage, Rope and Twine making 29. Batik Work 30. Carpentry 31. Sports goods 32. Leather Footwear 33. Assembly and repair of Electrical Gadgets 34. Dari and Carpet Weaving 35. Wool Balling and Lachee Making 36. Khadi and Handloom 37. Leather and Rexin made ups 38. Purfumery and Cosmetics 39. Assembly/repair of sewing machines 40. Surgical Bandgage Rolling, cutting 41. Repairs of watches and clocks 42. Foundation and Ball pens 43. Blacksmithy 44. Village Pottery (without using Bhatti) 45. Assembly and repair of electrical gadgets 46. Block making and Photo enlarging 47. Biscuit, Pappey, Cakes and cookies making 48. Button making, Fixing of button and hooks 49. Contact lense 50. Canvas Bags and holdalls making 51. Cotton/silk printing (By hand) 52. Detergent (without Bhatti) 53. Embroidery 54. Gold and Silver Thread Kalattatu 55. Hats, Caps, turbans (including Embroidery) 56. Ink making for foundation pen 57. Name Plate making 58. Photosetting 59. Photostat and cyclostyling 60. Preparation of Vadi Papad etc. 61. Processing of condiments, spices, groundnuts and Dal etc. 62. Pan Masala 63. Rakhee making 64. Stove Pin, Safety Pins and Aluminium Buttons (Hand Press) 65. Silver Foil making 66. Saree Fall making 67. Velvet, embroided shoes/shawls. 68. Wooden/Card Board Jewellery Boxes (Subject to NOC from Fire Deptt.) 69. Wool Knitting (with machine).

378 R.G. GUPTA -–1995 www.rgplan.org

Appendix 35.6 List of Industries not permitted in Urban or Rural Village of Delhi 1. Brass fittings 2. Copper metal parts 3. Dies for plastic mouldings 4. Glass work (assembly type) 5. Hinges and Hardwares 6. Lamps and burners 8. Milk cream separators and mixers 9. Polishing of plastic parts 10. Utensils 11. Brief cases and bags 12. Denting and painting of vehicles 13. Ice factory 14. Metal containers 15.Rolling shutters 16. Type retreading 17. Aerated water and fruit beverages 18. Agriculture equipments repairing 19. Arms parts 20. Aluminium-wares, moulds of cakes and pastry 21. Attachee, suitcases, brief case 22. Automobile service and repair workshop 23. Battery charging 24. Blower fans 25. Brushes and Brooms 26. Brass work (pipes) 27. Builders hardware 28. Button clips and hooks 29. Buckets 30. Cold storage and refrigeration and ice 31. Cement products 32. Copper ware and utensils 33. Cutley 34. Conduit pipes 35. Drugs and medicines 36. Doors shutters and windows 37. Electric lamp shades, fixtures 38. Electrical appliances (room heaters, lamps, etc) 39. Fabrication (like trusses and frames) 40. Fluorescent light fitting (including neon-signs) 41. Fruit canning 42. Grinding works 43. Household utensils (Welding, soldering, patching and polishing) 44. Household/kitchen appliances 45. Hand tools 46.Helmets 47. Iron foundries 48. Industrial fasteners 49. Interlocking and buttoning 50. Ink making 51. Laboratory porcelain, dental porcelain wares 52. Laundry, drycleaning and dyeing 53. Lantern, torches and flash lights 54. Manufacturing of trunks and metal boxes 55. Metal polishing 56. Milkcream macines 57. Milk testing equipments 58. Miscellaneous machine parts 59. Nuts,bolts,pulleys,chains and gears 60. Optical instruments 61. Oil stoves, pressure lamps and accessories 62. Printing, book binding, embossing and photograms etc. 63. Padlock and pressed locks 64. Precision instruments of all kinds 65. Plastic jigs, fixtures and metal embossing 66. Photography goods 67. Paper cutting machines 68. Pressure cookies 69. Rings and eyelets 70. Razor blades 71. Stationery items(including educational and school drawing instruments) 72. Steel wire products 73. Sheet metal works 74. Shoe making and repairing 75. Show grindery 76. Safety pins 77. Stapler pins 78. Tobacco products (cigarette and bidies) 79. Tin products 80. Tailoring materials 81. Truck and bus (body building) 82. Telephone parts 83. Thermometers 84. Upholstery springs and other springs 85. Wax polishing 86. Watch and clock parts 87. Washing soap 88. Water meters 89. Zip fasteners 90. Automobile parts and casting 91. Acids and Chemicals small-scale 92. Agriculture appliances and implements 93. Aluminium products 94. Aluminium anodizing 95. Ancilary industries of the slaughter house 96. Autoelectroplated accessories 97. Automobile leaf springs 98. Battery boxes 99. Batteries and accessories 100. Cattle feed 101. Centrifugal pumps and small turbines 102. Concrete and mosaic products 103. Collapsible gates, railing and grills 104. Cotton gining (large scale) 105. Duree and carpets (large scale) 106. Dyeing, bleaching, finishing, processing cloth (including mercerizing, calendaring, glazing etc.) 107. Electrical motors, transformers and generators 108. Electroplating (large scale) 109. Enamel ware 110. Expanded metals 111. Fire fighting equipments 112. Fluorescence lights 113. Flour mills 114. Footwears 115. Foam piles 116. Fuel gases (including by-products) 117. Galvanised buckets 118. Glass products 119. Grease, oil etc. 120. C.I.malleable pipe fittings 121. Hand press 122. Reinforced cememt concrete pipes (small scale) 123. Hydraulic press 124. Iron foundaries 125. Iron pipes 126. Iron hammers 127. Lathe machines 128. Leather upholstery and other leather goods 129. Nickle polishing 130. Paints and varnishes 131. Plastic products 132. Plastic dye 133. Polish work 134. Paper products 135. Processing of clay and

379 R.G. GUPTA -–1995 www.rgplan.org

other earths 136. P.V.C. compounds 137. Polythene gas 138. Refrigerators and airconditioners 139. Rail coupling parts 140. Rubber products 141. Electric fans 142. Saw mills and wood work 143. Small machine and machine tools 144. Sprayers, (hand and foot) 145. Structural steel fabrications 146. Sheet bending press 147. Speedometers 148. Steel re-rolling mills (small scale) 149. Steel casting 150. Steel wire drawings 151. Stone crusher parts 152. Scissors making 153. Spice factory 154. Surgical goods 155. Tarpaulin and tent cloth 156. Textile mills (medium scale) 157. Toilet soap 158. Tractor parts 159. Typewriters 160. Umbrella ribs 161. Utensils 162. Vacuum flasks 163. Veneer of plywood 164. Water proof textile products 165. Wire drawing, coating and electric cables 166. Wire netting 167. Wooden structural goods 168. Writing and making ink 169. X-ray machines 170. Zinc polishing 171. Activated carbon 172. Barley malt and extract 173. Ber candy and guava fruits bar 174. Citrus fruit concentrate 175. Confectionery 176. Dal milling 177. Dehydrated vegetables 178. Eucalyptus oil 179. Flour milling 180. Fuel briquettes 181. Grading, waxing and polishing of malta 182. Grape vinegar and juice 183. Ground nut oil 184. Guar split 185. Handmade paper 186. Ice-cream 187. Lactic and oxalic acids 188. Milling pulses 189. Mustard oil and powder 190. Pasturised milk and its products 191. Poultry feed 192. Processed fruit and vegetables products 193. Pycolysed glucose and strach 194. Rape seed oil 195. Red chillis oleoresin 196. Rice milling 197. Sesame oil 198. Sugarcane wax 199. Straw boards 200. Surgical bandage 201. Tomato ketchup and vegetable sauce 202. Weaning food 203. Assembly and repair of electrical gadgets 204. Assembly and repair of electronic goods 205. Embroidery 206. Hats, caps, turbans including embroideries 207. Production of following items: (i) Blanco cakes (ii) Brushes (iii) Crayons (iv) Kulfi and confectionery (v) Jam, jellies and fruit preserves (vi) Musical instruments (including repair) (vii) Lace work and like (viii) Ornamental leather goods like purses, hand bags (ix) Small electronic components 208. Pith hat, garlands of flowers and pith 209. Purfumery and cosmetics 210. Photosetting 211. Rakhee making 212. Sari Fall making 213. Tailoring 214. Vermicelli and macroni 215. Wool balling and lachee making 216. Zari Zardozi 217. Dal mills 218. Electronic goods manufacturing 219. Screen printing 220. Water meters repairing 221. Milk cream separators 222. Decorative goods 223. Ice-factory 224. Beverages 225. Confectionery candies and sweets 226. Cold storage and refrigeration 227. Electric lamp shades, fix tures 228. Fruit canning 229. Grinding works 230. Milkcream machines 231. Milk testing equipments The industrial units given in Appendix 35.5 shall also be permitted.

Industries prohibited within Union Territory of Delhi. (a) Hazardous/Noxious Industrial Units Cellulosic Products Characterstics 1. 2.

4. 5. 6.

Carbon black and carbon blacks of all kind Crude oil refining, processing and cracking, petroleum jelly, neptha cracking including gas packing etc. Fuel oils, illuminating oils and other oils, such as stchetic oil, shole oil lubricants Industrial alcohol Matches Newsprint

7.

Paints, enamels, colours, varnish(other than litho varnish)

3.

Fire Hazard Inflammable fumes and noise Fire hazard Unpleasant smell Fire hazard Unpleasant smell, contaminated Waste water, fire hazard Fire hazard

380 R.G. GUPTA -–1995 www.rgplan.org

8. 9. 10.

varnish removers, turpentine and turpentine substitutes Petroleum-coke, graphite production Printing ink Rayon fibre, waste products, mayophane paper etc. cellu lose Nitrate celluloid articles, scraps and solution

Fire hazard Fire hazard Fire hazard

CEMENT AND REFRACTORIES 1. 2. 3.

Enamelling vitreous Glass furnaces (more than three ton capacity) Heavy metal forging

4. 5. 6.

Mechanical stone crushing Portland cement Refractories

Smoke Fire hazard (using steam and power hammer) Dust, slurry noise Dust Smoke

EXPLOSIVE AMMUNITION 1. 2.

Explosive or their ingredients such as fire-works, gunpowder, gun cotton etc Industrial gelatin nitro glycerine and fulminate

Fire hazard Fire hazard

FERTILISERS 1.

Nitrogeneous and phosphative fertilizers, except mixing of fertilizers for compounding (large scale)

Fire, noise, noxious gases and dust

FRUITS 1. 2.

Abattoirs Alcohol distillery, breveries and potable spirits

3. 4.

Sewer refining Vegetable oil

INORGANIC 1. 2. 3. 4.

CHEMICAL

Obnoxious smell waste water Noise, fire hazard unpleasant smell due to oxygen Unpleasant smell fire hazard Noise, unpleasant smell

INDUSTRIES

Acid-sulphuric acid, nitric acid acetic bicric acid, rochloric acid, phosphoric acid, battery acid Alkalies-caustic soda, caustic potash, soda-ash etc. Carbon-disulphide, ultramarine blue, chlorine, Hydrogen etc. Mineral salts (which involves use of acids)

Fire hazard, offensive fumes and smoke Fire hazard corrosive Fire hazard, dust and fumes Fire hazard

LEATHER AND OTHER ANIMAL PRODUCTS 1. 2. 3. 4. 5.

Animal and fish oils Bone-grist bone-meal, bone powder or storages of Bones in open Glandular extraction Glue and gelatin from bones and flesh Leather tanning

Fire hazard Obnoxious smell

Obnoxious Obnoxious smell

381 R.G. GUPTA -–1995 www.rgplan.org

METALLURGICAL INDUSTRIES 1. 2. 3.

Blast furnaces oxides of mixtures Roasting of ore sulphide, oxides of mixtures Sintering, smelting

Noise, dust, smoke & fire hazard Noise, dust,smoke & fire hazard Noise, dust,smoke & fire hazard

ORGANIC CHEMICAL INDUSTRIES 1. 2. 3. 4. 5. 6. 7. 8. 9.

Acetylides phridlines iodoform, chloroform, E-nepthol etc. Compressed permanent liquified and dissolved industrial passes. Dyes and dye-stuff intermediates Insecticides, pesticides, fungicides Organic solvent, chlorinated minerals, methanol, aldehydes, methylated spirits Phenols and related industries based on coaltar distillation. Polythylene, P.V.C. recsine, Nylon Synthetic detergents Synthetic rubber Paper and Paper Products Mfg. of paper pulp, paper board and straw boards (large scale) Ammonium sulphoajanide, arsenic and its compounds, barium carbonate, barium cyanide, barium ethyle sulphate, barium acetate cinnabar, copper sulphocyanide, ferrocyanide, hydrocyanide, hydrocyanide acid, potassium bioca-late, potassium-cyanide, prusslate of potash, pynogallic acid silver cyanide. Radioactive Elements Thorium, radium and similar isotopes and recovery of rareearth Rubber Industries Reclamation of rubber and Production of tyres, rubber solutions containing mineral neptha, rubber waste Wood and Wood Products Distillation of wood, seasoning and curing Miscellaneous Calcium carbide, phosphorous, aluminium dust paste and power, copper, zinc etc. (electrothermal industries)

(b)

Fire hazard smell Fire hazard Acidic liquid effluent Unpleasant smell, dusty and fire hazard Fire hazard, unpleasant smell Fire hazard Fire hazard Liquid effluent with unpleasant smell

Contamination of food if stored on same floor or on floors above

Radiation hazard

Unpleasant smell, dust, fire

Fire hazard, obnoxious gases readily ignitable Fire hazard

Heavy and Large Industries 1. Agricultural implements (large scale) 2. Air and gas compressor 3. Aircraft building 4. Automobiles and coach building 5. Bicycles (large scale) 6. Conveyors and conveying equipments 7. Cotton textile (large scale) 8. Cranes and hoists 9. Diesel engines 10. Earth moving machinery 11. Electrical steel sheets and stampings 12. Electric wires and cables (large scale) 13. Foundaries (heavy) 14. Central industrial machinery (such as hydraulic equipments, drilling equipments, boilers etc.) 15. Heavy iron and steel forcing 16. Reinforced cement concrete pipes (large scale) 17.

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Industrial trucks, trailers, stakers etc. 18. Lifts 19. Locomotives and wagons 20. Motor cycles and scooters 21. Optical glass 22. Other primary metal industries (e.g. cold rolled sheet,alloy sheet etc.) 23. Power driven pump and pumping equipments 24. Sewing machines (large scale) 25. Sluice gates and gearings 26. Special industrial machinery 27. Steam engines 28. Steel pipes and tubes 29. Steel chains 30. Steel works, rolling and re-rolling mills 31. Structural steel fabrication (large scale) 32. Sugar 33. Telephone equipments 34. Tractors and agricultural machinery (power driven) 35. Under frames and chasis 36. Water turbines 37. Wire ropes 38. Woolen textiles (large scale) (a) Manufacturing Units (types) to be shifted immediately from Walled City (i) Electric cable and wire (ii) Plastic, P.V.C. and rubber goods (iii) Electroplating including different types of metal polishing (iv) Paint (v) Dye (vi) Acid and chemicals (vii) Spice grinding (viii) Grease (ix) Card box (large size) (x) Battery box (xi)Tobbaco processing (xii) Metal box (large size) (xiii) Any other noxious, hazardous and nuisance manufacturing and processing unit (b)The following trades shall be shifted to the, areas specifically marked for respective trades. (i) P.V.C. wholesale market (may be shifted to Patparganj, subject to a detailed study). (ii) Trade dealing with hazardous chemicals (iii) Dairies (iv) Large godowns warehouses (to be shifted in a phased manner) (v) Fruit and vegetables market (Phool Mandi) (vi) Poultry and Fish Market.

Appendix 35.7 Industries which are Neither Household nor Noxious and Nuisance but in Intermediate Category 1. Aluminium furniture 2. Air conditioner’s parts 3. Aluminium doors/windows/fittings 4. Assembly and repair of cycles 5. Atta Chakki and spices and dal grinding 6. Auto parts 7. Belts and buckles 8. Bulbs (battery) 9. Bread and bakeries 10. Cloth dying 11. Cotton ginning 12. Cotton and silk screen printing 13. Cycle chains 14. Cycle locks 15. Dal Mills 16. Diamond cutting and polishing work 17. Electric fittings (switch, plug, pin etc) 18. Electroplating minaplating, engraving 19. Elastic Products 20.Electric motor and parts 21. Electric press assembling 22. Engineering works 23. Foundary (small job works) 24. Icecream 25. Ice boxes and body of coolers 26. Iron grills and door making 27. Jute products 28. Key rings 29. Knife making 30. Marbles, stone items 31. Metal letter cutting 32. Motor winding works 33. Oil industry 34. Power looms 35. Photographs, printing (including signboard painting) 36. Printing press(provided not creating problem) 37. Repair of small domestic appliances and gadgets (like room heater , room cooler, hot plates etc.) 38. Rubber stamps 39. Sanitary goods 40. Screws and nails 41. Screen printing 42. Scissors making 43. Shoe-laces 44. Soap making 45. Spectacles and optical frames 46. Steel furniture 47. Steel lockers 48. Steel springs 49. Steel almirahs 50. Stamp pads 51. Surgical instruments and equipments 52. Table lamps and shades 53. Timber cutting 54. Tin box making 55. Transformers covers 56. T .V./radio/transist cabinets 58. Typewriter parts manufacturing and assembling 59. Water meters repairing 60. Water tanks 61. Welding works 62. Wire knitting 63. Wooden furniture works.

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36 Housing in Rural Settlements 36.0 36.1 36.2 36.3 36.4 36.5 36.6

Background Classification of Rural Settlements Basic Policies about Development of Rural Settlements Concept of Planning of Rural Villages Components of Development and Construction of Urban Spaces Panchayati Raj Institution for Delhi Industrial Policy for Villages in Delhi: Issues & Recommendation

36.0 Background Inititally all the settlements are rural, but slowly they are converted into urban settlements due to socio-economic changes and transformation in the socity. These changes and transformations are more in a super metropolitan city than in other urban centres. As per 1981 census, in Delhi, there were 369 settlements with a break up of 111 urban villages and 258 rural villages. The number of urban villages is increasing and by the end of the century may increase to 160 and accordingly, the numberof rural villages to 209. So far, no adequate attention has been paid for the physical development of 258 rural villages, with the present population of about 0.9 million, in terms of their internal development, construction of roads, laying of water and sewer lines, construction of social infrastructure i.e. community facilities, namely, schools, dispensaries, panchayat ghars (Community Hall) and last but not the least housing units. For example, the Water Supply and Sewage Disposal Undertaking has clarified that though it has provided potable water to almost all the villages, but only at the rate of 15 gallons per capita per day. This quantity of water for rural areas, which is at present 13.5 million gallons per day, has to be augmented to 30 million gallons per day up to the end of the century and likewise arrangements have to be make for the disposal of sewage, from all the villages, may be on conventional basis or on the basis of ‘pour flush’ system. Due to inadequate development and non-availability of houses in rural villages, a sizable population is migrating to Urban Delhi after selling their lands to outsiders, who in many cases are putting noxious and nuisance industries and warehouses on them, with the result the environment in these villages is being polluted. It is important to note that unauthorized, uncontrolled and unintended construction on the periphery of many of the villages is continuing on a large scale. This can be controlled up to some extent if a proper physical development of these villages is undertaken by a Development Authority, keeping into consideration the perspective plan at least of a period of 20 years. 386 R.G. GUPTA -–1995 www.rgplan.org

36.1 Classification of Rural Settlements Out of 258 settlements, there are two large centres namely, Narela and Najafgarh; 27 census towns, four have been identified as growth centres. Here details have been given only of 195 rural settlements with a break up of –(i) 15 growth centres; (ii) 33 growth points; and (iii) 147 basic villages. Names and population of rural villages and census towns as 1981 census have been given in Appendix 36.1. This Chapter has been written based on a project report prepared by the Group constituted by the Lt. Governor, Delhi, in 1984. Details of physical development have been given only of 195 settlements and not of two large centres, 23 census towns, 17 described villages and 17 villages which have already been amalgamated in the present urban limits of Delhi.

36.2 Basic Policies about Development of Rural Settlements (i)

The Group constituted in 1984 strongly recommended that the system of Lal Dora should be abolished from the National Capital Territory of Delhi and the Municipal Building Bye-laws should be applicable to all the settlements whether urban or rural. It means that there should be no building activity in any of the urban or rural villages without getting the plans sanctioned from a competent authority i.e. the DDA or the MCD.

(ii)

The type of facilities and amenities proposed for growth centres, growth points and basic villages are based on the (a) catchment area, (b) potentiality of development of the centre and (c) predicted population of villages. Each growth centre will have facilities of primary, secondary and tertiary level, while growth points will have facilities of primary and secondary level and the basic villages only of primary level. On this basis, the entire system of physical, social and economic infrastructure should be worked out.

(iii)

The Group recommended the following policy for industrialization of rural villages.

(a)

Household industries, as list given in Appendix 35.5 may be permitted in residential areas with a restriction of manpower, horse power, type of trades and parking problems. (b) Non-nuisance and nuisance type of industries, as list given in Appendix 35.7 may be shifted to pockets on the village periphery after proper development of physical and social infrastructure. (c) Noxious and hazardous type of industries, as list given in Appendix 35.6 may be closed.

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36.3 Concept of Planning of Rural Villages 258 rural settlements can be dived into three categories, namely, growth centres, growth points and basic villages. This classification is based on existing and projected components of – (i) population; (ii) growth of population; (iii) physical infrastructure; (iv) available social infrastructure; (v) traffic node and (vi) potentiality for development of the centre. The entire rural area of about 800 sq. km, can be developed in the following manner: Strategy No. 1- To control the entire rural area with the help of zoning regulations, assuming that nobody will construct any unauthorised buildings without getting his plans sanctioned as per approved plans of various rural villages, meaning thereby that areas in between 258 rural settlements will always remain green. Strategy No. 2- The entire area of 800 sq. km minus existing settlements would be acquired by the government, planned as green and would be developed as green in terms of agricultural farms, gardens, orchards and other primary type of activities. Strategy No. 3- The entire area of 800 sq. km. would be slowly urbanised in an unplanned way as is going on today, meaning thereby that the entire rural belt would be unauthorisedly developed/built up, leaving no green areas. This would be the worst situation out of the five models. Strategy No. 4- To plan/develop the entire 800 sq. km area in a planned way, in terms of large residential complexes as being done now like of Dwarka, Narela, Rohini etc. Strategy No. 5- To develop the entire area of 800 sq. km as ‘Special Area’ based on the concept of residential farm houses, to keep the complex green. This can be in two ways-(a) by public sector and (b) co-operative and private sector. Out of these five strategies, the Group found the last one the best, and as such has explained. Following are the salient features of the strategy: (i) The area would retain its green characters. (ii) Future encroachments are reduced to the minimum. (iii) Area is developed in a planned manner, may be with the help of private sector. (iv) Large areas can be used for different types of recreational purposes including Disney land and golf course. Other recreational activities can be tourist cottages, camping sites with public conveniences, pleasure parks for different age groups, children parks, auditoriums, restaurants/café, amusement/antique halls, sports centres, boating clubs with paddle boats, swimming pools with facilities of dress changing, gymnastics, skating, bird-sanctuary, race course, science park with reception, public conveniences, exhibit development, solar energy corner, aquarium with fishing pond, fun island, children airport with facilities of helicopter, mini forests, horse riding training centres and temple complexes. (v) A concept of residential farm houses is proposed with adequate amenities and facilities with special regulations for minimum size of plot, maximum ground coverage, height of the structure, number of servant quarters and use of basement and mezanine, set backs and compulsorily tree plantation. Details have been given in Chapter 44 (Developing Large Green Areas and Role of Private Sector). 388 R.G. GUPTA -–1995 www.rgplan.org

36.4 Components of Development and Construction of Urban Spaces Estimates are based on the 1992 price level Norms for calculation of cost of the Project: (i) Cost of acquisition of land for all purposes – Rs. 1.5 million per Hect. (ii) Cost of development of residential and social infrastructure/land – Rs. 0.4 million per Hect. (iii) Cost of development of industrial use – Rs. 0.5 million per Hect. (iv) Cost of development of commercial use – Rs. 0.8 million per Hect. 36.4.1 Housing Infrastructure Provision for the development of 1000 hect. has been kept for residential purpose. Part of it will be used for the construction of 10000 DUs with a break-up of 3000 of EWS, 4000 of LIG and 3000 MIG. Total cost of development of 1000 hect. of land will be Rs. 1900 million. An amount of Rs.600 million is required for the construction of 10,000 DUs at an average rate of Rs. 60,000 each. 36.4.2 Physical Infrastructure (i) The present water supply is of the order of 13.5 mgd. At the rate of 30 gallons per day per capita. Potable water supply is available in all the rural villages but at a reduced rate of supply. The Groups recommended very strongly that provision should be made to supply water @ 30 gallons per day per capita, for this the total water requirement would be 18 mgd. For the augmentation of the supply, an amount of Rs. 300 million has been kept. (ii) Very few rural villages may have sewerage system. It is difficult, almost impossible, to have an integrated sewerage system for all the villages. Therefore, it is proposed to have the individual system on the basis of ‘pour flush’ or ‘Sulabh Sauchalaya’ latrines. It is proposed to have flush ‘latrines’ for 80% of 240,000 families, i.e. for 192000 families. Taking an average cost of construction of one pour flush latrine as Rs. 2000, a total amount of Rs. 384 million is required. An additional amount of Rs. 116 million has been kept for the villages on the periphery of urban limits which can be connected with the existing or proposed sewerage treatment plants. Therefore total required amount is Rs. 500 million. (iii) The Flood Department of the G.N.C.T.D. has given an estimate of Rs. 32.8 million for the 11 schemes to check floods in rural areas of Delhi. The Department has also desired to keep an amount of Rs. 200 million for the drainage of the remaining rural areas. As such, a total provision of Rs. 232.8 million has been kept. (iv) The Delhi Electric Supply Undertaking (DESU) has asked to make a provision of Rs. 1200 million for electrification not only of village abadis, but also of 389 R.G. GUPTA -–1995 www.rgplan.org

new activities, namely, industrial estates, commercial centres, group housing, and all the public and semi-public buildings. (v) For widening and improvement of roads to connect different villages, an amount of Rs. 400 million has been kept in the project. (vi) The total expenditure on physical infrastructure, based on 1992 price level, would be Rs. 2632.8 million. 36.4.3 Social Infrastructure (i) In educational facilities, a provision has been made for the construction of 165 nursery-cum-primary schools, 25 middle schools, 21 higher secondary schools, 15 colleges and five ITIs. To accommodate all these facilities an area of 284.4 hect. is required and an amount of Rs. 815.6 million towards the cost of acquisition, development and construction. (ii) Medical Facilities: Four hospitals with 100 beds each, 13 primary health centres and 16 primary sub-health centres have been proposed in growth centres. For the construction of these facilities in a total area of 37 hect., an amount of Rs. 276.3 million is required. (iii) Social Security: The Group proposed the construction of 15 police stations, one in each growth centres at a cost of Rs. 10 million each and 33 police posts, one in each growth point at a cost of Rs. 2 million each. These police stations and police posts will require 21.6 hect. of land. For the development and construction of these, an amount of Rs. 41.04 million + Rs. 216 million, i.e. Rs. 257.04 million is required. (iv) Social Justice: In terms of social justice, the Group proposed for renovation or construction of 195 Panchayat Ghars, each at the cost of Rs. 0.6 million. These can be constructed with a total amount of Rs. 117 million. (v) It is also proposed to construct 195 TV centres each @ Rs. 0.15 million. The total cost of construction of these Centres will be Rs. 29.25 million. (vi) Construction of 15 veterinary dispensaries in 15 growth Centres @ Rs. 0.8 million each including cost of developed land = Rs 12.0 million. (vii) A proposal has been formulated for the development of parks, each of 2 hect. in 15 growth centres, of one hect. each in 33 growth points and of 0.5 hect. each in 147 basic villages. For the development of 137 hect. of land for parks, playground and open spaces, a total amount of Rs. 68.5 million is required. (viii) The total expenditure in social infrastructure would be Rs. 1575.69 million. 36.4.4 Economic Infrastructure (i) It is proposed to have industrial estates of 10 hect. each in growth centres, of 5 hect. each in growth points and of 0.5 hect. each in basic village. It is also proposed to construct of 10% of the permissible floor area in all the industrial estates and pockets taking an FAR of 60, to boost and start industrial activities in these centres. 390 R.G. GUPTA -–1995 www.rgplan.org

For the acquisition and development of land for various industrial estates and pockets, and amount of Rs. 777 million is required. For the construction of 10% of industrial estates in various industrial areas at a cost of Rs. 2000 per sq. mt. based on 1992 price level, an amount of Rs. 466 million is required. Therefore total required amount is Rs. 1243 million, (ii) It is proposed to develop and construct 15 district centres each of 4 hect. in growth centres, 33 community centres each of 2 hect. in growth points and 147 local shopping centres each of 0.4 hect. in basic villages. For the development of all commercial centres, an area of 185 hect. is required. For the acquisition and development of 185 hect. of land, an amount of Rs. 425.5 million is needed. It is also proposed to construct 10% of permissible floor area in all the different types of commercial centres based on 100 FAR. For the construction of 115,000 sq. mt. floor area @ Rs. 3000 per sq. mt. based on 1992 price level, an amount of Rs.345 million is required. As such, the total amount required for this sector is Rs. 770.5 million. (iii) The total expenditure on economic infrastructure would be Rs. 2013.5 million. 36.4.5 The total cost of development and construction of urban spaces in these 195 rural villages based on 1992 price level: (i) The total cost of the project of development of 15 growth centres, 33 growth points and 147 basic villages is Rs. 8721.99 million. (ii) The entire work has been divided into two parts, namely acquisition of land, internal development, to tackle environmental problems and improvement and redevelopment of abadis, construction of commercial centres, industrial estates and group housing to be carried out by the Delhi Development Authority, while laying of trunk services, roads and buildings of community facilities is to be done by G.N.C.T.D. and the Municipal Corporation of Delhi (MCD). Economy of development of rural settlements at a plane has been shown in Map 36.2.

36.5 Panchayati Raj Institution for Delhi (i) Background: In Delhi, there are 199 Panchayats covering 258 rural villages. Each Panchayat has one head of administration (Pradhan) and members between 5 to 10 depending upon the size of the village. Members and Pradhan are elected by voting system. The system of Panchayati Raj in Delhi is as per Delhi Panchayati Raj Act, 1952. By bringing an effective Panchayati Raj in Delhi for 258 villages for all the subjects- biological, physiological and psychological needs of about 0.9 million population in rural villages should be fulfilled. (ii) Division of Delhi into 13 blocks: As per Master Plan of Delhi – 2001, the entire National Capital Territory of Delhi has been divided into 15 Planning Zones namely – A, B, C, D, E, F, G, H, J, K, L, M, N, O, P. zone-A (Walled City and its extension) has no village; similarly zone-O (river Yamuna Area) has also practically no village. These two divisions namely-A and O have not been taken and only for 13

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Planning Zones, 13 blocks have been proposed as details given under and shown in Map 33.1. Name of the Block 1.

B – City Extn. & Karol Bagh

2.

C – Civil Lines

3.

D – New Delhi

4.

E – Trans Yamuna Area

5.

F – South Delhi – I

6.

G – West Delhi-I

7.

H – North West Delhi – I

8.

J – South Delhi – II

9. 10.

K – West Delhi – II L – West Delhi – III

11.

M – North-West Delhi – II

12. 13.

N – North-West Delhi – III P - North Delhi

Description Built up areas of Karol Bagh, Naraina, Patel Nagar etc. Civil Lines, Timarpur, Kingsway Camp, Azadpur, Adaarsh Nagar, Jahangirpuri. Lutyen Delhi, Jor Bagh, Diplomatic Enclave, Jangpura etc. Entire Trans-Yamuna are including Patparganj, Kondli, Gharoli, Dallupura, Mandli, Saboli, Karawal Nagar etc. R.K. Puram, Safdarjang Enclave, IIT, JNU, Lajpat Nagar, Friends Colony, Kalkaji, Madangir, Badarpur etc. Punjabi Bagh, Paschimpuri, Vikaspuri, Janakpuri, Rajouri Garden, Moti Nagar, Cantonment area etc. Gulabi Bagh, Ashok Vihar, Pitampura, Shalimar Bagh, Rohini, Shakur Basti, etc. Area in the south of Mehrauli Badarpur Road and Mehrauli Mahipalpur Road. Papankalan, Nawada etc. Najafgarh, Jharodakala, Mitraon, Dhansa, Gumanhera etc. Rohini Extension and other settlements between G.T. Karnal Railway line and Rohtak Railway line. Bawana, Khanzawala etc. Narela, Burari, part of river bed, Palla etc.

36.6.1 Proposed Structure and Functions at the Village, Block and Delhi State Level At Village levels, there would be Gram Panchayats, At present there are 199 Gram Panchyats for 258 rural settlements. These Gram Panchayats are not functioning well due to• • • • • • • • •

Lack of community spirit and collective will. Factionalism. Lack of adequate financial resources. Acute shortage of trained and competent personnel. Apathy and lack of civic consciousness and public spirit. Class and status consciousness engendering social tensions. Disintegrative influence of party politics. Lack of political unity in the village. Lack of village leadership possessing wisdom, integrity, public spirit and high moral calibre. 392 R.G. GUPTA -–1995 www.rgplan.org

36.6 Industrial Policy Recommendations

for

Villages

in

Delhi:

Issues

&

This has been dealt with under the following two heads: (i) Present trends of industrialization in villages of Delhi (ii) Issues and recommendations about industrialization of urban and rural villages. 36.6.1 Present Trends of Industrialization in Villages Some trends are available from the following three types of surveys conducted in 1984-85: (i) Industries in urban villages: In 1984, surveys of industries in eight typical industrial urban villages in which industrial units were maximum were conducted and found that environment of these villages were polluted to a great extent, as such, need preventive and development measures to make these villages pollution free. Names of these villages are- Basai Darapur, Shalimar Bagh, Haiderpur, Garhi Peeran, Wazirpur, Dheerpur, Khyala and Rampuram. Number of industrial units and population of these villages in 1984 were as under: Sl. No.

Villages

Population

No. of industrial units

1. 2. 3. 4. 5. 6. 7. 8.

Basai Dararpur Bastu Shalimar Haiderpur Peeran Garhi Dheerpur Wazirpur Khyala Rampura

12151 2507 7850 1827 12000 9095 4690 5678

1500 350 300 322 173 150 175 150

Total

355798

3120

(ii) Detailed surveys were conducted of Garhi Peeran village in West Delhi at the crossing of Rohtak and Outer Ring Road and the results were given in Chapter 35 (Housing in Urban Villages). (iii) Industries in Rural Villages (Policy of Delhi Administration): In 1984, there were about 6000 industrial units in urban and rural villages. Most of the industries were situated in a haphazard way thus converting villages into slum areas. Besides DDA, Delhi Admn. also formulated policy for industrialization in rural villages. Extract of the policy of Delhi Administration is as under: (a) Industries located in the rural areas will be given necessary aids, and incentives including fiscal relief where necessary for their proper development. (b) To encourage the setting up of household industries, handicrafts, handlooms and village industries, within the Lal Dora Area. (c) It further states that Delhi Admn. will make every effort to provide more employment opportunities, through traditional as well as modern industries, by developing proper industrial infrastructure viz. industrial 393 R.G. GUPTA -–1995 www.rgplan.org

estates and industrial worksheds. However, in the Lal Dora only traditional industries and non-pollutant small scale modern industries will be encouraged. (d) Industries, using up to 20 HP are permitted in the Lal Dora of the rural villages. (e) No new pollutant industry will be allowed to come up in the Lal Dora area. (f) To check haphazard growth of industries in rural villages, efforts will be made to coordinate location of industries as per village development plans. Clause (d) is a dangerous one and in the garb of this people misuse and run large industries with much more power than 20 HP. Clause (f) is important and should be applied in all the cases. 366.2 Issues and Recommendations about Industrialization of Urban and Rural Villages To formulate industrial policy, the following eight issues and recommendations are made: 1. 2. 3. 4. 5. 6. 7.

Whether Lal Dora should be abolished Types of industries to be permitted System of physical planning System of development and funding for the same Collection of development charges Development of 13 components of development and construction of urban spaces and type of authority Shifting of non-conforming industrial units from Delhi: Is shifting feasible in DMA and in NCR priority towns?

Issue and recommendations for Point No. 1: Whether Lal Dora should be abolished: The Lt. Governor, Delhi constituted a Working Group in September, 1984 for the preparation of a ‘Mini Master Plan’ for ‘Integrated Development of Urban and Rural Villages’ for the next 20-25 years under the Chairmanship of Development Commissioner, Delhi Govt. with Secretary (Plg)., Delhi Govt., Director of Industries, Delhi Admn., Dy. Commissioner, Delhi; Dy. Commr. Incharge of Rural Areas, MCD; Chief Engineer (Plg.), DESU; Dy. Commr. DWS & SDU; Jt. Secretary, PWD; and Director (CP), DDA, the Authors of the Book. The Group worked for one year and then the report was discussed and approve by the Metropolitan Council, Delhi. One of the main recommendations made by the officers was that the Lal Dora of the villages should be abolished and any activity concerning to planning, development and construction of urban spaces in these villages should be got approved from the local body i.e. MCD or DDA. Extract of recommendations of the Group is as under: ‘The Group very strongly recommended that the system of Lal Dora should be abolished from the National Capital Territory of Delhi and Municipal Building Byelaws should be applicable to all the settlements whether urban or rural ; meaning thereby that there should not be any building activity without getting the plans sanctioned from a competent authority i.e. DDA or MCD;.

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Issue and recommendations for Point No. 2: Type of industries to be permitted in villages, details have already been given in para-36.2 (iii). Issue and recommendations for Point No. 3: System of physical planning: 195 villages were further divided into 15 growth centres, 33 growth points and 147 basic villages. Type of physical, social infrastructure and industries to be permitted in these settlements should be as under. Growth Centres: Each growth centre will serve an area between 40 to 50 sq. km and 50,000 to 80,000 population. These centres being of higher order would naturally perform higher order functions and activities, mainly of non-agricultural nature. It will have all centralized amenities and facilities in the field of education, medical, public health, wholesale and retail shopping, civic, cultural and recreational including organised industrial estates. These centres should have the facilities to an extent required to serve the population in their catchment area. These facilities are-(i) Shopping on a bigger scale, (ii) Mandi (collecting and distributing centre); (iii) Large community hall/Panchayat Ghar; (iv) Post office with telegraph facilities; (v) Primary, middle, senior secondary school and college; (vi) Dispensary/hospital; (vii) Administrative office of the Block Development Officer; (viii) Office of the Irrigation Department, Delhi Govt. Administration; (ix) Municipal Corporation of Delhi; (x) Police Station or Police Post; (xi) Banks; (xii) Cinema; (xiii) Library; (xiv) Parks/playgrounds; (xv) Storage for pesticides/insecticides and fertilizers; (xvi) Veterinary hospital and dairy colony; (xvii) Potable water supply; (xviii) Domestic and industrial power; (xix) Industrial Estate and bus terminal. Type of Industries-Small machine shop, workshop for welding, electro-plating, small-scale hosiery goods, cotton spinning and weaving, dyeing, trunk and suitcase making, tailoring and ready-made garments, fruit and vegetable storage and canning, earthen pottery, footwear, dairy and carpets, wire products, paper envelops, cardboards, button, combs, hair clips, diary and its products. Names of the industries are given in Appendix 35.5 and 35.7. Growth Points: 33 Growth Points were identified. Each would serve an area of 20 to 25 sq. km with 25,000 to 30,000 population. Each would have facilities of – (i) Shopping on a medium scale; (ii) Posts and telegraph office; (iii) Primary, middle and senior secondary school; (iv) Library/club/adult education centre; (v) Seed/Grain/fertilizer storage; (vi) Cooperative societies management office; (vii) Police Post/Police Station; (viii) Veterinary Centre/Veterinary hospital; (ix) A small service centre; (x) Primary health centre/dispensary; (xi) Playgrounds, gathering places and religious places; (xii) drinking water, electricity and sewerage facilities and (xiii) Community hall. Type of Industries – Flour Mill (Atta Chaki), oil Kohlu, dal processing, manufacturing of Khandsari, wooden toys, blacksmithy, tin smithy, rope making, repair shops, basket making, bullock cart, wire products and earthen pottery. Names of industries have been given in Appendix 35.5. 395 R.G. GUPTA -–1995 www.rgplan.org

Basic Villages: Each would serve only to the existing abadi area with 8 to 10 shops, community hall/chopal, primary school, sub-post office, panchayat ghar, adult reading room, small gathering place, park, playground and open spaces, community water hydrants, latrines and electricity. No industry other than household would be allowed in these villages. Names of industries have been given in Appendix 35.5. Issue and recommendation for Plant No. 4: System of development and funding for the same: The Ministry of Urban Development (the then Ministry of Works and Housing) vide their order No. 11014/1/82-DD-IV dated 24 June 1983 approved a scheme of ‘Development of Urban Villages of Delhi’ and for this Rs. 183.3 million was provided besides Rs. 25.0 million to be raised by DDA for the development of 96 urban villages. DDA/MCD developed many villages but could not complete the development works with this fund. Up to March, 1985, Rs 230.2 lakh million was spent and again MCD/DDA asked Rs. 179.0 million in 1987 to complete the development works of urban villages. Like this, demand of financial resources is asked and provided from time to time. Similarly planned funds are provided for development of Rural Villages. Now a pertinent question arises whether the entire amount should be from public funds or partly from beneficiaries. It is a fact that a time has come that Govt. should provide only 20% of the funds and the balance 80% from the beneficiaries. The following are the reasons for this; Villagers are not so poor as were in the initial stages. More and more development has brought. More and more industries due to availability of cheap land, cheap labour and physical infrastructure without following any norms of sanctioning building plans. Issue and recommendation for Point 5: Collection of development charges: As a government policy, no industries structure can be regularized, But it is also a fact that shifting is not only difficult rather impossible. However, it has been prepared and given under proposing different rates of regularization of structures in villages: Development charges within Lal Dora of villages (a) No development charges should be charged from residential, commercial or household industrial use situated in Lal Dora of any village. (b) Development charge outside Lal Dora but within the approved boundary of village, as shown in the approved plan; (i) No development charges to be charged if the structure is of residential or of household industrial use and is prior to the date of notification of the land under Section – 4 of Land Acquisition Act as well as before February, 1977 in case of commercial use and June, 1977 in case of residential use or household industrial use. (ii) Development charges should be charged from the structures if they are after the date of notification under Section-4 of the Land Acquisition Act, but before February, 1977 in case of commercial use and June, 1977 in case of residential use or household industrial use at the rate of Rs. 200 per sq. mt. and Rs. 400 per sq. mt. in case of commercial use; provided these structures are fitted in the approved layout plan of the villages. (iii) Development charges should be charged from the structures if they are after the date of notification of Section-4 of Land Acquisition Act as well as after February, 1977 in case of commercial use and June, 1977 in case of residential or household 396 R.G. GUPTA -–1995 www.rgplan.org

industrial use but fitted in the layout plan; @ Rs. 400 per sq. mt. in case of residential or household industrial use and @ Rs. 800 per sq. mt. in case of commercial use. Issue and recommendations for Point No. 6: Development of 13 components and type of authority: There are 13 components of development and construction of urban spaces in Delhi and the concerned authorities are – (i) Utilities and services namely, potable water, sewage disposal and storm water drainage by DWS & SDU; (ii) power by DESU; (iii) gas supply system by GAIL; (iv) Telecommunication by MTNL; (v) agriculture, forestry, animal husbandry, poultry, fishery, and other primary sector activities by department of Agriculture, Delhi Govt.; (vi) acquisition of land and allotment of alternate urban spaces to the affected units by Lands and Building Department, Delhi Govt.; (vii) Preservation and conservation of historical monuments and to maintain ecological balance by Archeological Survey of India and Horticulture Departments; (viii) Protection of physical environment to control water, air, and noise pollution by concerned departments; (ix) provision of social infrastructure, i.e. education, health, security and justice by concerned departments of Delhi Govt.; (x) planning and development of industrial estates by Commissioner of Industries, Delhi Govt.; or DSIDC; (xi) construction of group housing by DDA or any other concerned authority; (xii) development and construction of shopping centres by DDA or any other authority; (xiii) traffic and transportation problems i.e. widening of roads, improvement of intersections, and construction of express and exclusive cycle tracks by Municipal Corporation of Delhi or PWD, Delhi Govt. Now the question rises, whether all these 13 functions should be performed by different authorities like DWS & SDU, DESU, I & F, G.N.C.T.D., DSIDC, DAMB, DOI, DOE, DOSW, PWD, G.N.C.T.D., MCD, DDA, etc. or a by created a Unifield Authority to plan, develop, construct, dispose and manage all the urban spaces to be created in rural settlements. Issues and recommendations for Point No. 7: Shifting of non-conforming industrial units: Is shifting feasible to Delhi Metropolitan Area (DMA) and to National Capital Region (NCR). Industries in Delhi accounts for about 28% of the work force. Growth of industries in Delhi is unique to the extent that number of industries increased from 8000 units in 1951 to 17,000 in 1961, 46,000 units in 1981 and 85,000 units in 1991. If the present trend continues then their number may be in the range of 100,000 by 2001 A.D. As per surveys conducted for Delhi Master Plan in 1981, it was revealed that 77% of the industrial units were having employment less than 10 workers, 16% between 10 to 20% and so on. Hardly 1% of the industrial units were having an employment of more than 100 worker. The fast growing industrial activities in Delhi are in the field to electrical, electronics, metal, rubber, plastic, petroleum and paper products. As per the same surveys of the Delhi Master Plan, in 1981, out of 13 specified groups of industries, electric and electronic products were 12.4% ranking as first metal products 10.9% ranking as second, rubber plastic and petroleum products with 10.3% and third and the food products with 2.4% of the units were the last. It is surprising to know that 80-85% of the industrial units are located in nonconforming areas and many of them are creating a lot of pollution. Master Plan of Delhi proposed shifting of these industries in 16 new light industrial developed estates in 1553 hect. and in five extensive industrial areas in 265 Hect. 397 R.G. GUPTA -–1995 www.rgplan.org

Now the question arises whether all non-conforming industrial units which are in 80-82% of the numbers should be shifted or can be shifted in priority towns of Delhi Metropolitan Area or priority towns in National Capital Region. Perhaps the answer is no. Solutions can be as under: (i) All household type industries, names as given in Appendix 35.5 should be permitted to remain in residential areas including in villages, For this, some type of licence should be issued so that these industrial units are not disturbed due to fear of shifting and can function efficiently. (2) Industries, names as given in Appendix 35.6 should be shifted in priority cities of NCR and at no cost these should remain in Delhi. These units are noxious and hazardous, creating water, air or noise pollution. (3) Intermediate type of industries, as names given in Appendix 35.7, after careful study, should be shifted after development of industrial estates, in about 1653 hect. as details given in the Delhi Master Plan-2001.

Appendix 36.1 Names and Population of Rural Villages and Census Towns as per 1981 Census

1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16.

Name of Settlement Samepur Bhalswa Jahangirpur Jaffarabad Babarpur Gokalpur Mandoli Kotla Roshanpura alias Dichaon Khurd Nangloi Jat Sultanpur Mazra Nangloi Sayed Bindapur Nasirpur Palam Mahipalpur Rajokri

Population 9,147 70,301 16,148 21,925 14,972 47,891 65,828 5,122 37,623 56,058 9,689 9,284 24,244 34,378 8,765 5,759 398 R.G. GUPTA -–1995 www.rgplan.org

17. Chattarpur 18. Lado Sarai 19. Tigri 20. Deoli 21. Molarband 22. Pul Pehlad 23. Bawana 24. Alipur 25. Pooth Khurd 26. Pehlad Pur Benger 27. Bijwasan DELHI TEHSIL 28. Lumpur 29. Bankner 30. Bhorgarh 31. Kureni 32. Tikri Khurd 33. Singhola 34. Singhu 35. Hamidpur

36. 37. 38. 39. 40. 41. 42. 43. 44. 45. 46. 47. 48. 49. 50. 51. 52. 53. 54.

Name of Settlement Tajpur Kalan Akbar Pur Majra Palla Qallakpur Jhangola Sunger Pur Fatehpur Jat Tigipur Bakhtawarpur Bankauli Khampur Shahpur Garhi Razapur Kalan Sanoth Ghoga Daryapur Kalan Hareloi Ochandi Mingesh Pur

6,504 6,079 17,228 5,788 5,326 8,788 12,637 6,735 7,145 5,011 7,389 1,256 7,773 1,796 699 1,526 1,239 1,413 1,977 Population 2,124 1,520 2,462 449 1,083 744 18 1,334 4,806 1,058 1,274 1,159 Uninhabited 3,055 2,279 3,539 1,544 2,939 1,758 399 R.G. GUPTA -–1995 www.rgplan.org

55. 56. 57. 58. 59. 60. 61. 62. 63. 64. 65. 66. 67. 68. 69. 70. 71. 72. 73. 74. 75. 76.

Qutabgarh Katewara Bazipur Thakran Nangal Thakran Iradat Nagar alias Naya Bans Halambi Khurd Holambi Kalan Zindapur Hiranki Mohd. Pur Ramzanpur Tehri Daulat Pur Ibrahimpur Garhi Khasru Mukhmelpur Bodhpur Bijapur Khera Kalan Khera Khurd Sultanpur Dabas Chandpur Budhanpur Salahpur Khor Jat

3,251 1,925 2,607 2,719 1,736 1,462 2,571 850 1,728 969 Uninhabited 504 592 2,953 823 5,490 5,382 2,576 2,147 1,112 1,484 1,226

77. 78. 79. 80. 81. 82. 83. 84. 85. 86. 87. 88. 89. 90. 91. 92. 93.

Name of Settlement Khor Punjab Chatesar Jonti Garhi Rindhala Ladpur Kanjhawala Mohd. Pur Majri Karala Barwala Pansali Sahibabad Daulatpur Kankar Khera Siraspur Nangli Poona Qadipur Salempur Mazra Burari Badarpur

Population 1,491 1,051 3,202 856 3,463 5,129 726 5,125 4,274 848 2,980 213 3,022 1,273 1,527 12 242 400 R.G. GUPTA -–1995 www.rgplan.org

94. 95. 96. 97. 98. 99. 100. 101. 102. 103. 104. 105. 106. 107. 108. 109. 110. 111. 112. 113. 114. 115. 116. 117.

118. 119. 120. 121. 122. 123. 124. 125. 126. 127. 128. 129. 130. 131.

Pur Burari Libaspur Badli Naharpur Pitampur Yakut Pur Sahipur Haider Pur Shanjar Pur Mukand Pur Kamalpur Jharoda Mazra Burari Wazirabad Gopalpur Jagatpur (Burari) Sabapur Baqiabad Sadat Pur Musalmanan Sadat Pur Gujran Sher Pur Garhi Mendu Khajoori khas Behari Puri

Uninhabited 6,504 2,372 5,999 2,122 1,792 Uninhabited 1,283 7,911 33 70 573 730 669 717 2,669 1,937 Uninhabited -do1,399 706 733 2,712 1,542

Name of Settlement Qarawal Nagar Dayal Pur Jiwanpur alias Johripur Khanpur Dhani Mustafabad Mirpur Turk Tukhmir Pur Ziauddin Pur Shakarpur Baramad Shamaspur Gharonda Neemka Banger alias Patpar Ganj Gharonda Neemka Khadar Chilla Saroda Khadar Chilla Saroda Banager

Population 2,649 1,110 2,124 Uninhabited 646 Uninhabited 828 363 Uninhabited 311 5,746 Uninhabited -do1,651 401 R.G. GUPTA -–1995 www.rgplan.org

132. 133. 134. 135. 136. 137. 138. 139. 140. 141. 142. 143. 144. 145. 146. 147. 148. 149. 150. 151. 152. 153. 154. 155. 156. 157. 158.

Dallo Pura Kondli Gharoli Tikri Kalan Nizampur Rasidpur Saroda Gheora Jafarpur alias Hiran Kunda Bakarwala Bapraula Nangli Sakrawati Dichaon Kalan Neelwai Jharoda Kalan Surakh Pur Mitraon Khera Dindar Pur Kharkhari Nahar Surera Kair Mundhela Khurd Mundhela Kalan Jafarpur Kalan Khera Dabar Sherpur Dera Ujwa

1,495 2,303 1,985 4,545 2,410 772 3,293 1,660 2,739 1,824 2,442 5,245 1,527 8,148 389 3,666 2,696 1,724 644 2,202 2,982 1,728 1,635 2,006 1,419 Uninhabited 3,084

159. 160. 161. 162. 163. 164. 165. 166. 167. 168. 169. 170.

Name of Settlement Shamaspur Khalsa Baqar Garh Isa Pur Qazi Pur Malikpur Najafgarh Qaryapur Khurd Goman Hera Jhuljhuli Sarangpur Dhansa Ghalibpur Raota

Population 1,810 326 3,506 1,013 2,009 1,058 2,634 941 656 4,575 675 1,909 402 R.G. GUPTA -–1995 www.rgplan.org

171. Deorala MEHRAULI TEHSIL 172. Madanpur Dabas 173. Rani Khera 174. Mubrak Pur Dabas 175. Begumpur 176. Pooth Kalan 177. Karari Suleman Nagar 178. Nithari 179. Mundka 180. Tilangpur Kotla 181. Ranhola Shafipur 182. Qamuruddin Nagar 183. Mangolpur Khurd 184. Rithala 185. Mangholpur Kalan 186. Garhi Piran 187. Jwala Heri 188. Nilothi 189. Haftsal 190. Razapur Khurd 191. Nawada Mazra Hastsal 192. Matola 193. Mirzapur 194. Dabri 195. Sagarpur 196. Lohar Heri 197. Kakrola 198. Goela Khurd

199. 200. 201. 202. 203. 204. 205. 206. 207. 208.

Name of Settlement Tajpur Khurd Qutabpur Ambar Hai Toghan Pur Bagrola Sahupur Sahibad Mohd.Pur Pochanpur Dhul Siras Chhawla

224 1,587 2,308 1,784 1,384 6,975 1,690 873 7,239 1,055 1,979 1,711 1,778 4,672 3,034 2,686 1,886 1,482 3,605 Uninhabited 3,833 3,374 638 2,226 51 Uninhabited 5,769 1,077 Population 605 Uninhabited 876 131 1,480 Uninhabited 3,702 1,415 1,311 4,355 403 R.G. GUPTA -–1995 www.rgplan.org

209. 210. 211. 212. 213. 214. 215. 216. 217. 218. 219. 220. 221. 222. 223. 224. 225. 226. 227. 228. 229. 230. 231. 232. 233. 234. 235. 236. 237. 238. 239.

Rewla Khampur Paprawat Kharkhari Jatmal Kharkhari Rond Pindwala Kalan Pindwala Khurd Daulat Pur Hasanpur Asalatpur Khawad Zindpur Shikarpur Jhatikra Namak Heri Raghupur Badhosra Kangan Heri Bamnoli Bhartal Nangal Dewat Salahpur Kapid Hera Sambhalka Malikpur Kohi alias Rangpuri Kusumpur Moradabad Pahari Masudpur Ghitorni Yahya Nagar Gadaipur Sultanpur Maidan Garhi

1,084 2,597 765 579 1,613 1,014 1,205 631 339 Uninhabited 1,649 1,231 566 56 1,034 2,376 1,376 3,085 4,403 607 3,900 2,592 4,243 1,605 151 1,539 4,686 4,763 2,499 4,177 3,476

240. 241. 242. 243. 244. 245. 246. 247.

Name of Settlement Neb Sarai Saidul Ajaib Rajpur Khurd Satberi Chandan Hola Jonapur Dera Mandi

Population 1,715 1,098 821 646 1,383 2,762 2,164 2,132 404 R.G. GUPTA -–1995 www.rgplan.org

248. 249. 250. 251. 252. 253. 254. 255.

Fatehpur Bhati Asola Shahpur Kotla Mohigiran Saidabad Aali Jaitpur

2,228 4,816 5,173 1,618 8 33 2,748 1,546

405 R.G. GUPTA -–1995 www.rgplan.org

MAP 36.2 : Economy of Development of Rural Village

Physical Infrastructure – 420% • • • • •

Power – 19.1% Sewerage – 8.0% Roads – 6.5% Water Supply – 4.8% Drainage – 3.7%

Social Infrastructure – 33.6% • • • • • •

Housing – 14.3% Education – 7.1% Social Security – 4.2% Health – 3.6% Social Justice – 3.1% Recreational – 1.3%

Economic Infrastructure – 24.4% • •

Industrial estates – 16.1 Commercial Estate – 8.3%

406 R.G. GUPTA -–1995 www.rgplan.org

37 Housing for Landless Labourers 37.0 37.1 37.2 37.3 37.4 37.5

Introduction Objectives of the Scheme Location of Group Housing Pockets which can be used for Landless Labourers Target Group Stategy of Housing for the Landless Labourers Summary of the Scheme

37.0 Introduction The National Capital Territory of Delhi covers an area of 1485 sq.km. and spans across a length of 48.5 km and a width of 59.1 km. During the last nine decades, the phenomenal growth of Delhi has been more than 30 times which is the maximum among all the major cities of India. The increase in population directly leads to and implies growth in the urban area. The total urban area of Delhi during 1881-1911 had been only 43.25 sq.km. With the decision taken in 1911 to shift the capital of India from Calcutta to Delhi, the urban area of Delhi was increased to 143 sq.mt. During 1958-59, at the time of preparation of the Delhi Master Plan, the urban area of Delhi was 171 sq.km.and was proposed to be enlarged to 442 sq.km. by 1981. For the year 2001, it is envisaged to further enlarge the urban area of Delhi to about 650 sq.mt. The continous growth of the urban area has changed the urban and rural character, land ratio and employment patterns by massive acquisition of cultivated land since 1958-59. Before, 1931, as many as 25 villages were brought into the urban fold. Initially land of villages was acsquired for development of Civil Lines, Delhi University Campus, fruit and vegetable whole sale market (Old Subzi Mandi), Sardar Railway Station, Cantonment and Imperial Delhi. During 1931-51, another 22 villages came into the urban fold, as the urban limits were extended by 26 sq.mt. These villages were primarily acquired for industrial estates, rehabilitation colonies and government

407 R.G. GUPTA -–1995 www.rgplan.org

38 Housing in Unauthorised Regularised Colonies 38.0 38.1 38.2 38.3

Historical Background Regularisation of Unauthorised Colonies Socio-Economic Characterstics of Unauthorised Colonies Problems of Unauthorised and Unauthorised – Regularised Colonies 38.4 Issues and Recommendations 38.5 Financial Planning 38.6 Land Use Analysis of some Unauthorised Regularised Colonies

38.0 Historical Background (i)

The emergence of unauthorized colonies started soon after the partition of the country in 1947, with the large influx of people from Pakistan into India settling in urban areas, specially in Delhi. Most of the migrants were accommodated in rehabilitation colonies planned and developed by the Ministry of Rehabilitation. Others, who had no place to go, started living in the unapproved, unintended and unauthorized colonies where land developed by private colonizers was without any proper physical and social infrastructure, but was cheap and easily available. From time to time, the Government formulated policies on the subject of ‘Regularisation of Unauthorised Colonies’ which were good but not implemented in the true sense, specially with relation to sites of social infrastructure. The first policy called for the regularization of 110 unauthorised colonies, as a result of which, these were partially developed with sub-standard metalled roads, few and far water, sewer and electric lines. Although sites for social infrastructure were shown in various plans, but in the course of time, these were also encroached upon by unauthorized construction. The result was that none of the colonies regularized has been developed according to the provisions shown for physical, social and economic infrastructure in the regularization plans. In practical words, there is not so much use of preparation of regularization plans, but process has to be continued in the hope that the system of development of urban spaces in unauthorized regularized colonies would improve. (ii) The pace of unauthorized construction never slackened and in the following five years (1962-67) 101 new unauthorized colonies sprang up for which the Government gave a green signal to regularize them in 1969. (iii) During 1967-74, Delhi witnessed an increase of another 260 unauthorized colonies. Considering this aspect, the Government appointed a committee on 408 R.G. GUPTA -–1995 www.rgplan.org

26 August, 1974 to study the problems of unauthorized colonies in Delhi under the chairmanship of the Secretary, the then Ministry of Works and Housing (now Ministry of Urban Development), with the Vice-Chairman, DDA, as Member-Secretary and the Commissioner, then Vice-Chairman, DDA, submitted a repor to the Ministry of Works and Housing. (iv) On the basis of the above report, a policy was formulated by the then Ministry of Works & Housing (now Ministry of Urban Development) and declared in February 1977 which is being implemented even now-a-days. This policy has the following salient features: (a) Both residential and commercial structures would be considered for regularization subject to cut off dates and keeping into consideration the provisions of physical infrastructure and community facilities; (b) Structures will be regularized after fitting them in a lay out plan, that is after keeping spaces for roads, infrastructure and community facilities. (c) Development charges will be paid by the beneficiaries according to rules to be laid down by the DDA & the MCD; (d) Displaced families will be rehabilitated in a manner to be detailed out by the government; (e) Colonies which are in non-conforming land use of the Master Plan will also be considered for regularization and would be regularized subject to planning principles and norms; (f) Colonies, which were notified for acquisition of land, will also be considered for regularization; (g) Colonies, which were regularized earlier, but sites earmarked for community facilities in those colonies are not available due to encroachments, would again be considered for regularization; (h) This entire process will be applicable to both residential and commercial structures also situated within and outside the ‘Lal Dora’ of urban and rural villages; (i) This policy is not applicable for regularization of industrial structures including warehousing and godowns. From the above policy, it is clear that regularization will be considered of all the colonies situated in the National Capital Territory of Delhi, irrespective of their date of origin, but before 30 June, 1977 in the case of residential structures and 30 March, 1977 in the case of commercial structures; location and status of land; land use; inside or outside of the ‘Lal Dora’ of all the villages or in designated slum areas. (iii) The number of unauthorized colonies as on 31 December, 1983 were as under: (a) 155 in development areas under Section-12 (i) of Delhi Development Act of the DDA, including some colonies in slum-designated areas. (b) 66 extensions of urban villages concerning to DDA. (c) 33 colonies falling in designated slum areas. (d) 452 colonies in the jurisdiction of the Municipal Corporation of Delhi. (e) 30 extensions of villages falling in the jurisdiction of the Municipal Corporation of Delhi. (f) In all there were 736 unauthorised colonies upto 1983. Later many more new unauthorized colonies came up in different parts of Delhi. The population in these colonies which were in an extent of 4500 hectares in 1983 was about 1.2 million. The cost of development of these colonies was about Rs. 3.2 billion at the 1983 price level. If these colonies are properly planned and developed with physical and social infrastructure, then they will provide 240,000 Dwelling Units with less efforts of the Government and public sector than usual, because a major 409 R.G. GUPTA -–1995 www.rgplan.org

share of the funds would be of the beneficiares, and a sizeable infrastructure is already in existence.

38.1 Regularisation of Unauthorized Colonies 38.1.1 Definition: Regularisation does not mean only the preparation, finalisation and approval of the regularization plan of an unauthorized colony on paper; but it also includes the following components activities: (i) (ii)

(iii)

(iv) (v)

(vi)

(vii)

(viii) (ix)

(x) (xi)

Acquisition of land for physical, social and economic infrastructure, as well as for circulation system. Acquisition of other vacant plots, if any, under the scheme of ‘Large-Scale’ Acquisition, Development and Disposal’, and use of these plots for alternative allotment to affected parties in the scheme, after replanning and redevelopment of these vacant plots. Internal development of the colonies in terms of physical infrastructure i.e. water lines, sewer lines, storm water drains, electric lines, roads, service roads, leveling and dressing of sites of social infrastructure, including recreational places. Peripheral development in terms of physical infrastructure and circulation system. Construction of some of the buildings of social infrastructure, especially for health and education. Other sites of social infrastructure may be fenced or bounded by compound walls to protect them from encroachments. Construction of physical infrastructure at macro level i.e. water, sewer, power, storm water drains, trunk lines by ‘Delhi Water Supply and Sewage Disposal Undertaking (DWS & SDU) Delhi Electric Supply Undertaking(D.E.S.U), Irrigation and Flood Department (IFD) Delhi Government Circulation System by the General Wing of the Municipal Corporation of Delhi and the Public Works Department (P.W.D.), Delhi Govt. These activities should be funded from the plan funds of Delhi i.e. with public funds. Collection of development charges, after modification of Section 35 and 40 of the Delhi Development Act, 1957 and Section-113 of the Delhi Municipal Corporation Act, 1957; Development charges should be collect3ed as arrears of land revenue. To permit building activities in these colonies after formulating and passing special building bye-laws for them. Disposal of commercial sites and other sites by auction, so that surpluese from these sites could be used for the purpose of subsidies for social infrastructure and housing for rehabilitation of economically weaker section of the society. Protection of land from further encroachments. Creation of awareness in the minds of people not to permit further unauthorized construction in the colony. This aim can be achieved with the help of constituted cooperative societies with the assistance of nongovernment organizations. 410 R.G. GUPTA -–1995 www.rgplan.org

38.1.2 Post-Regularisation Development Action Once a colony is planned, regularized and developed, then the main responsibility falls on the residents of the area for – (i) maintenance of the colony; and (ii) stopping and controlling further unauthorized construction. For these two activities with the help of Non-Government Organisations, cooperative societies should be constituted and formed. These duly registered societies would be helpful even in planning and development of the colony. They would, however, be principally responsible for the maintenance of the colony as well as to check and control further unauthorized constructions.

38.2 Socio-Economic Characteristics of Unauthorised Colonies In 1974-75 while formulating the policy for regularization of unauthorized colonies, a survey of 471 unauthorised colonies was conducted and got the following important results: 38.2.1 Type of Structure Table 38.1: Types of structures in unauthorized colonies (i) (ii) (iii) (iv) (v) (vi)

Permanent structures Semi-permanent structures Temporary structures Structures up to plinth level or plots having boundary walls Fake structures with religious colour or otherwise Vacant plots Total

58,973 39,529 24,432 5,708

41.53% 27.83% 17.20% 4.02%

5,813

4.09%

7,545 142,000

5.33% 100.00

38.2.2 Existing Land Use of 471 Unauthorised Colonies in 1974-75 was as under Table 38.2: Existing landuse of 471 unauthorised colonies Landuse (i) (ii) (iii) (iv) (v) (vi) (vii)

Residential use Commercial use Residential-cum-commercial use Industrial-cum-residential use Industrial use Religious use Miscellaneous

%age of total no. of structures 83.0 2.0 7.0 2.0 1.0 0.5 4.5 100.0

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38.2.3

(i)

(ii)

Type of Unauthorised Colonies Unauthorized regularized colonies are of different types and can be divided into the following 10 categories, based on experiences of colonies of Delhi. Good colonies: These colonies have better physical, social and circulation infrastrcutre. In this category colonies are Sant Nagar, Hari Nagar, Shiv Nagar, Virender Nagar etc. Most of these colonies are before the commencement of the Delhi Master Plan-1962. Fair colonies: These are fair in terms of width of roads, physical infrastructure and practically non-existence of community facilities. In this category, colonies are Gobindpuri, Gonda, Maujpur, Usmanpur etc.

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50 Planning Practices and Professional Charges for Urban Spaces 50.0 50.1 50.2 50.3 50.4 50.5 50.6

Background Subject of Planning Practices Surveys, on which Outside Help is Required Team and Team Work Latest Equipments and Tools Comprehensive Planning Scale of Professional Fees and Charges Prescribed by the Institute of Town Planners, India (ITPI) Suggestions for Professional Charges

50.7

50.0 Background Ultimate aim of planning, development and construction of urban spaces is improve the quality of life of man and to get optimum benefit out of it to fulfil their basic needs i.e. biological, physiological and psychological. An urban space can be well planned if proper input of technical knowhow concerning to Urban Planning, Traffic planning, Environment planning is there. For this, proper norms on the subject of ‘Planning Practices and Professional Charges’ are required. The subject has been dealt with under the seven heads as shown in Map 50.1. to

50.1

Subjects of Planning Practices There are hundreds of subjects at macro, meso and micro levels on which services of qualified Planners are required. (i)

(ii) (iii)

Macro level or policy level, subjects for a State/Region or a settlement: (a) Master Plan, structure plan or policy plan, (b) Master Plan of physical infrastructure of water supply and sewage disposal, (c) Master Plan of flood control and drainage of the area, (d) Master Plan of power distribution and supply, (e) Policy document on urban land policy, (f) Policy document on location of settlements, (g) Policy document on people’s participation, (h) Policy document on development of sub-standard areas. Master Plan of traffic and transportation of roads and urban rails i.e. light rail transit system and underground railways. Meso level or translation of policies of the macro level for a District or sub-region:

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(a) Details of all the plans as mentioned at (i) for marco leve, but only of a sub-region, district, sector, zone or planning division (zone). (b) Research studies of – • Feedback from the housing constructed in public, private and cooperative sectors for different income groups • Feedback from developed commercial centres of different hierarchies, namely, CBD, district centre, community shopping centre, local shopping centre and convenient shopping centre • System of management of common spaces in case of residential and industrial estates. • System of coordination, integration, evaluation and monitoring of the entire area. • System to stop and control unauthorized construction and mushroom growth of shanties (jhuggies)

(iii)

(c) Environmental planning with reference to control and stop water pollution, noise pollution and air pollution. At micro level, detailed planning of various subjects, namely (a) Layout plans of residential, industrial, commercial, public and semipublic and government office complexes. (b) Commercial complexes as sub central business district, district centre, community shopping centre, local shopping centre, convenient shopping centre, (c) Integrated freight complex cum-wholesale market, (d) Metropolitan passenger terminals, (e) Facility centres for facilities concerning education, health, security, justice, recreational and distribution services, (f) Service centres consisting of services of vehicles, household goods, shops of building materias, petrol pumps, gas godowns etc. (g) Group housing pockets. (h) Wholesale markets of fruits and vegetables, grains, fish and poultry, paper, chemical, grocery etc. (i) Widening or roads, intersection designs, grade separators, clover-leafs etc. (j) Planning of substandard areas of – • Environmental improvement in shanty clusters. • In/around SITU development of urban spaces for shanty clusters. • Sites and services for shifting of shanty areas • Environmental improvement in slum areas. • Redevelopment and reconstruction of slum areas • Planning of unauthorized colonies • Planning of urban villages • Planning of rural villages (i) Design of street furniture, namely, tree guards, sitting benches, signboards,signages, hoarding places etc. (l) Specific projects like • Channelization of rivers • Design of slaughter house (Meat Processing Plant) 414 R.G. GUPTA -–1995 www.rgplan.org

50.2

Surveys on which Outside Help is required (i) (ii) (iii) (iv) (v) (vi)

Remote sensing Aerial photography including small format aerial photography Physical surveys Socio-economic survyes Traffic surveys Soil surveys

In all these items, it is necessary to take help either of the organization/department/agency which wants tot get the work done, or the specialized agencies/private organizations. 50.3

Team and Team Work

(i) A competent planner should have the knowledge of the following subjects: (a) Policy making at macro level and then its translation at meso and micro level; (b) Traffic and Transportatioin; (c) Urban design; (d) Conservation of heritage; (e) Landscape; (f) Engineering planning; (g) Architecture and landscape architecture; (h) Economics of the projects. (ii) There should be a team with the following sub-units: (a) Engineering Unit for planning of services; (b) Engineering Unit for structure design. (c) Engineering Unit for bill of quantities (BOQ) and Noitce inviting tenders (NIT), (d) Physical Survey Unit for physical surveys; (e) Socio-economic Survey Unit for socioeconomic surveys; (f) Architecture Unit for architectural plans, (g) Landscape Unit for landscape plans; (h) Plans of preservation and conservation of historical urban spaces; (i) Model Unit; (j) Planning laboratories with computer, photocopier, etc. 50.4

Latest Equipments and Tools

(i) Computer system PCAT-486 with 8 MB RAM with 66 MHZ coprocessor with 320 MB HDD, VGA monitor, keyboard, plotter, laser printer, scanner and digitizer. (ii) Micro filming system (iii) Projectors to display the proejct (iv) Model making equipments (v) Committee Room with modern equipment 50.5

Comprehensive Planning

(i) In theory: Planning is meant for five basic elements – man, nature, netowks, structure and society; at macro, meso and micro levels; or at national, state (region) and local levels; by a team of professionals in various disciplines, namely, urban planning, urban design, traffic and transporation planning, economics, sociology, public administration, engineering for planning of services, structure etc.; 415 R.G. GUPTA -–1995 www.rgplan.org

for various land uses namely, residential, industrial, commercial, public and semipublic etc.; in the shape of physical plans and fiscal plans; with policies on land, labour and capital; with a proper management input for coordination, integration, evaluation and monitoring. (ii) In practice: Any comprehensive planning of a region, district, urban area, city, town, sector or a neighbourhood includes the following eight components. (a) Surveys: physical, socio-economic, ecological traffic and transporation and soil, (b) Research and inferences with the help of primary and secondary surveys and data, (c) Pre-design/pre-project level study; (d) Concept plan showing outline details of – (i) traffic and transporation; (ii) urban planning; (iii) urban design; (iv) landscape design; (v) phasing of the project and (vi) broad economics; (e) Detailed control drawings of all facades of buildings and detailed drawings of development of the compelx including detailing of street furniture, landscape features; (f) Detailed plans of individual buildings with all the details up to minute level including engineering and horticulture services; (g) Coordination, integration, evaluation and monitoring of the site, client and professionals; (h) full supervision of the 50.622 Scale of Professional Fee and Charges Prescribed by Indian Institute of Town Planners, India (ITPI) (these are applicable from January, 1984) Only important clauses have been given under: (i) Time charges (excluding cost of site visits, travelling): For principal/senior level Consultant: Rs. 1000 per day Associate/middle level Consultant: Rs. 600 per day Consultant’s other staff: Rs. 300 per day (ii) Retainer fee for Consultant: fixed amount basis (iii) Fee for external consultants/specialists on mutual negotiation and consultation. (iv) Overseas assignments: Minimum professional fee as given by ITPI after making allowances for rate of foreign exchange plus cost of living etc., plus separate charges to be paid for travel, transport, boarding and lodging, expenditure incurred on documentation, use of computer and sophisticated equipments, photography work, preparation of models and display panel etc. (v) Site establishments: Actual expenditure incurred by the Consultants on building, furniture, stationery, transport facilities etc. shall be borne by the client and shall not form part of the consultant’s remuneration in accordance with the scale of charge. (vi) Professional fee has been given in three Tables – 50.1, 5.02 and 50.3 with the proviso that – Additional 10%, 15% and 20% shall be charged over the computed fee for population raning between 0.3-0.5 million, 0.5-1 million and above one million population category cities.

22

Data about Para 50.6 has been taken from the booklet of ‘Scale of Professional Fee and Charges’ prepared and published by Indian Institute of Town Planners, India.

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40% of the computed fee for Master Plan shall represent the fee payable for outline/interim/structure plan. (a) Master Plans/Comprehensive Development Plans: Table 50.1: Professional fee for the preparation of Master Plan/comprehensive plan (in Rs. Per hect.) Area in hect. For each of the first 400 hect. For each of the next 200 hect. For each of the next 200 hect. For each of the next 200 hect. For each hect. over 1000 hect.

Existing Town 1500

New Town 1375

1375

1250

1250

1125

1125

1000

1000

865

Minimum fee equivalent to that chargeable for 100 hects. (b)

Zonal District Plan:

Table 50.2: Professional fee for the preparation of zonal development plans (in Rs. per hect.) Area in hect. For each of the first 50 hects. For each of the next 25 hects. For each of the next 25 hects. For each of the hects. Above 100 hects.

Existing Town 1000

New Town 900

900

800

800

700

700

600

(i) Minimum fee equivalent to that chargeable for 25 hects. (ii) If development area is upto 100 hects. only, zonal plan shall be combined with the Master Plan and only Master Plan scale of charges shall apply. (c)

Sector layout and site plan:

Table 50.3: Professional fee for the preparation of sector layout and site plan (in Rs. per hect.)

*Group

Plotted development

Corporate development 417 R.G. GUPTA -–1995 www.rgplan.org

Group-A (industrial) Group-B (residential) Group-C (public and semi public) Group-D (commercial) Group-E

Low density 2250 2500 3250

High density 3000 3250 4000

Low density 3250 3750 5000

High density 4500 5000 6250

3740 4250 6250 7500 Uniform at the rate of Rs. 10,000 per hect.

Minimum fee equivalent to that chargeable for 2 hect. site. (vii) Scale of professional fee for partial services, as details given in para 2.5, 2.6. 2.7 and 2.8 of the booklet of the Institute of Town Planners, India (ITPI) and reproduced in Appendix 50.1. (viii) Professional fee for regioinal development plan: Rs. 40,000 for every 100,000 population upto 5 million Rs. 30,000 for every 100,000 population for the next 5 million Rs. 20,000 for every 100,000 population for the next 5 million Rs. 10,000 for every 100,000 population above 15 million Minimum fee equivalent to that chargeable for 1 million population. (ix) Scale of professiona fee for rural development plan: \ (a) Area development Plan (involving a group At the rate of Rs. 15,000 for each 25,000 Of villages) population group or fraction thereof. Minimum fee equivalent to chargeable for 100,000 population. (b)

Rural infrastructure development plan Area Programme

60% of the computed charges for Development plan.

* Group A- Industry, warehousing, storage depot, mineral siding, transport terminals, public utilities, etc. Group B – Housing, community or educational facilities, organized open spaces like parks, playgrounds, etc. Group C- Govt. offices, specialized institutions, culture centres, recreation centres, etc. Group D- Commercial offices, wholesale or general business, centres, cinemas, hostles etc. Group E- Exhbition, trade fare, zoological parks, intensive landscape/recreational. (c)

(d)

Village development plan and scheme

At the rate of Rs. 2500 per hect. of Development area. Minimum fee equivalent to that chargeable for 4 hect. Village/redevelopment plans and schemes 25% extra over and above computed as Per (c) above.

(x) Fee for auxiliary services, namely, basic planning, surveys study and research, planning management, arbitration and legal matters. Details have been 418 R.G. GUPTA -–1995 www.rgplan.org

given in para 3.1, 3.2, 3.3, 3.4 and 3.5 in the booklet of the Institute of Town Planners, India and reproduced in Appendix 50.1 50.7

Suggestions for Professional Charges

Professional fee is concerned with 8 stages, namely, (i) Surveys; physical, socio-economic, traffic and transportation and soil; (ii) Research and inferences with the help of primary and secondary surveys data; (iii) Pre-design/pre-receipt level study; (iv) Concept plan showing outline details of – (a) traffic and transportation; (b) urban planning; (c) urban design; (d) landscape design; (e) phasing of the project and (f) broad economics; (v) Detailed control drawings of all the facades of buildings and detailed drawings of development of the Complex including detailing of street furniture, landscape features etc.; (vi) Detailed plans fo individual buildings with all details up to minute level including engineering and horticulture services; (vii) Coordination, integration, evaluation and monitoring with the site, client and professionals and (viii) Full supervision of the project. Proposed Professional fee pattern has been given in Table 50.4 Table 50.4: Proposed fee structure for different types of planning

Activity No. (i) (ii) (iii) (iv) (v) (vi) (vii) (viii)

Description of the activity Different types of surveys Research and inferences Pre-design study Concept plan Details of development including street furniture Detailed plans of individual buildings Coordination, integration, evaluatioin and monitoring Full supervision

%age of the estimated cost of the project Actual cost 0.25 0.25 0.5 0.5 3.0 0.25 As per CPWD norms

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Appendix 50.1 Scale of Professional Fees for Partial Services (as given in the booket of Institute of Town Planners, India) 2.5

Restructuirng and Re-development Plans: A.3.1 Charges complete professional services for this item of work be calculated at Master Plan rates for appropriate category of existing towns for preparation of Restructuring Plans. For prepration of detailed Re-development / Urban Renewal Scheme appropriate charges for items of work under A.3.3 below shall apply. 2.6

Partial Services Related To Master Plan Components: A.3.2 The fee chargeable for various items shall be a percentage of the Master Plan charges for appropriate category as under: Scription of Assignment/Study/Plan

(a) (b) (c) (d) (e) (f)

Restructuring/Re-densification Housing and Community Planning Traffic and Transportation Planning Utilities and Services Planning Socio-economic development planning Landscape and environmental improvement planning

Percentage of Master Plan Charges 60 40 30 25 25 30

2.7

Partial Services Related To Zonal/district/sector Level Plans: A.3.3

(a) (b) (c) (d)

Urban form and design schemes Conservation planning and Development Schemes Re-development Projects and Urban renewal Schemes Comprehensive Landscape Plans and Schemes

Fees payable shall be charged on the basis of one and a half times of the relevant site planning charges. 2.8 Additional Services: A.4 Fees payable shall be negotiated on lump-sum basis depending upon the quantum and type of additional services to be rendered. 3.0 Scale of Professional Charges for Auxiliary Services A. Basic Planning Surveys. 3.1 Consultant’3s fee for survey assignments shall be for Design of Survey, General supervision and Guidance in field work and tabulation, and Analysis and Interpretation of the findings, and preparatioin of Survey Report and Documentation. For purposes of remuneration a total estimate of expenditure would be worked out for field work and data collection, and tabulation and compilation, and 25 per cent of this would represent consultant’s fees for his professional services. 420 R.G. GUPTA -–1995 www.rgplan.org

3.2 Notwithstanding the above provision, minimum remuneration payable to the Consultant for survey assignments shall be Rs. 25,000/(B) Studies and Research (C) Planning Management (D) Arbitration and Legal Matters 3.3 Normally such special assignments are for short term duration viz. three to six months, wherein remuneration shall be in the form of monthly retainer for the Consultant and his team and this should be the basis for computation of fees. While no hard and fast rule can be laid down in view of the varied nature of such Consultancy assignments, depending upon the scope, coverage and complexity of each assignment a monthly retainer ranging from Rs. 15,000 to Rs. 20,000 should be considered as a basis for working out the Consultant’s fees. Minimum charges to be equivalent to retainer for a two months period. 3.4 If during the course of engagement of the Consultant it is found that further detailed studies and investigation are to be carried out in connection with the task for which he has been retained, this would be subject of a fresh assignment and fees to be calculated on individual basis. 3.5 In case Consultant is engaged for a more continuous consultancy assignment, viz co-ordination and liaison, advice and consultancy on miscellaneous matters of professional interest, arbitration and legal matters, remuneration shall be on the basis of a retainer of Rs. 15,000/- per month.

MAP 50.1: A.

Essential Components of Planning Practices and Professional Charges

Planner Should Practice 1.

Macro Level/Policy Level; Subjects for a States or Region; Master

Plan. Structure Plan or Policy Plan 2. Meso Level/Intermediate Level or Translation of Policies from Macro Level to this Level; Research Studies of Feedback from Housing Constructed Commercial Centres Developed, Common Spaces Maintained and System of Coordination, Integration, Evaluation and Monitoring. It includes Enviornmental Planning Also. 3. At Micro Level, Detailed Planning of Residential, Commercial, Public and Semi-Public Complexes, Integrated Freight Complex, Metropolitan Passenger Terminal, Facility Centers, Service Centres, Group Housing Projects, Wholesale Markets, Detailing of Transport Elements Design of Street Furniture Etc.

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51 Role of Development Authorities and New Housing Policy 51.0 51.1 51.2 51.3 51.4 51.5

51.0

Background Present Role of DDA and its Evaluation at the Macro Level Physical Dimensions of Delhi Suggested Action of DDA in this Decade of 1990’s Outlines of National Housing Policy The Role of Development Authorities of Super Metropolitan City in Context of the New Housing Policy.

Background

Development of urban spaces is a must in present day society to improve the quality of life in terms of physical infrastructure, social infrastructure, economic infrastructure and ecological infrastructure. This function should be planned and properly developed, directly or indirectly by a development authority. These functions and role has been defined in this chapter.

51.1 (i)

Present Role of DDA and its Evaluation at the Macro Level

Section-6 of the Delhi Development Act – 1957 states –‘The objects of the Authority shall be to promote and secure the development of Delhi according to plan and for that purpose the Authority shall have the power to acquire, hold, manage and dispose of land and other property, to carry out building, engineering, mining and other operatioins, to execute works in connection with supply of water and electricity, disposal of sewage and other services and amenities and generally to do anything necessary or expedient for purposes of such development and for purposes incidental thereto:Provided that save as provided in this Act, nothing contained in this Act shall be constructed as authorizing the disregard by the Authority of any law for the time beging in force.’ (iii)

Ministry of Urban Development in its letter dated 2 January, 1979 interpreted / clarified and laid down the objectives as given under:

(a) Preparation, monitoring, review and implementation of the Master Plan; (b) Enforecment of land use controls as envisaged in the Delhi Development Act; (c) The acquisition and development of land for various activities including residential sites required for EWS, with a 422 R.G. GUPTA -–1995 www.rgplan.org

view to ensuring the planned development of Delhi; (d) Making developed lands available to various agencies both in the public, cooperative and private sectors for house building activity; (e) The promotion of a sufficiently dynamic housing programme to ensure that directly and with the assistance of other agencies DDA caters to the growing housing needs of the city; (f) Development of commercial and ancillary centres of work, which would ensure the fulfillment of the objectives of the Master Plan; and (g) In exercise of its role as custodian of the Master Plan, the DDA has necessarily to coordinate the activities of other specialized agencies such as DESU, MCD, CPWD, Delhi Govt. etc. who are also concerne with the planned development of Delhi. (iv) In brief, DDA’s objectives/functions can be stated as under: (a) Incharge of physical and financial planning of all the concerned subjects of regional planning, urban planning, traffic & transportation planning, planning of services etc. of the entire National Capital Territory of Delhi. This function is not being fulfilled fully, but partly, for example, there is no Master Plan of engineering services, traffic & transportation via roads and urban rails etc. (b) Development and construction of urban spaces in the development areas decalared under Section-12 (1) of D.D. Act. Under this, during the larst three decades, DDA has done the activities as given in Appendix-51.1. it is clear that DDA has done a lot of development and construction of urban spaces in the last 30 years, but even then, it is much less than the requirements and demands of urban spaces for the society. These gaps are due to the requirements and demands of urban spaces for the society. These gaps are due to the requirements and demands of urban spaces for the society. These gaps are due to •

Frequent changes in the administration;



No proper understanding of planning process/projects



Administrative establishment charges to the extent of 25-30%;



Non-implementation of government orders dated January, 1979;



Non-switch over activities from Section-22 of D.D.Act to Section15 of D.D. Act. Etc.

(c) Development and construction works in non-development areas under Section-22 (a) of D.D.Act. This Section was used in 1975-76 and lot of development works were done. In that period of 18 months, 1,50,000 plots of sites and services were developed, and this was the biggest achievement took place than anywhere in the world. Like this, under 423 R.G. GUPTA -–1995 www.rgplan.org

this section there were many other activities namely – development of large size of plots, construction of social infrastructure for EWS & LIG. (d) DDA is a custodian of Master Plan and is supposed to coordinate, integrate, evaluate and monitor the various subjects of city planning and also to different organizations/authorities etc. This function is also not being done satisfactorily and day by day difficulties are being felt in coordination with DWS & SDU, DESU, I&F, Delhi Admn., PWD, Delhi Admn. etc. (iv) Main reasons of DDA’s non-fulfilment of objectives are: (a) Non preparation of zonal plans/sector plans in time; (b) Pendency of large projects like sub-central business district in Trans-Yamuna Area, 22 district centres, 70-80 community shopping centres, hundreds of local shopping centres, convenient shopping centres and many other projects; (c) Non-development of 1,000 hect. of land for residential purposes per year as envisaged by the Ministry of Urban Development; (d) Use of Section-15 in place of Section-22 for the development and construction of urban spaces; (e) Non-preparation of short term and long term financial plans of the Authority and also non preparation of performance budget; (f) Absence of R&D in any subject of urban development and housing; (g) Non-disposal of nazul-I lands of the period 1917-37; and Land of the period 1937-57 and recovery of damages from encroachers on the lands; (h) Nondisposal of lands transferred by the Ministry of Rehabilitation, under a package deal of Rs. 300 million; (i) Non-modifications in the Delhi Development Act, especially important points like collection of development charges from sub-standard areas; (j) Absence of preparation of project reports.

51.2

Physical Dimensions of Delhi (i)

Dimensions of Delhi by 2010 A.D.

The present population of Delhi is 9.8 million, expected to increase to 13 million by the end of the century and 20 million by 2010 A.D. Accordingly, the area of the present urban limits would increase from 550 sq.km to 700 sq.km by the end of the century and 850 sq.km by 2010 A.D. By 2020 A.D. most of the separated settlements like Noida, Loni, Faridabad, Ballabhgarh, Bahadurgarh etc. would be amalgamated with the main city Delhi. (ii) Physical infrastructure: Water: Present water supply is 480 mgd. while the projected requirement of water in 2010 A.D. would be 1760 mgd. Sewage: The present availablaity of treated sewage is 305 mgd. against a projected requirement of 1280 mgd by 2010 A.D. Power: The present supply of power is 1600 MW against a projected requirement of 6400 MW by 2010 A.D. 424 R.G. GUPTA -–1995 www.rgplan.org

Demand of physical infrastructure by 2010 A.D. would be 4 to 5 times more than the present supply requiring huge financial resources to fulfil it, and if not provided, different types of pollutions would be generated. In brief, requirement of fianances for physical infrastructure upto 1997 in Delh is as under. Item Cost (in Rs. Billion) 1. Water 4.80 2. Sewage disposal 3.77 3. Power 19.30 4. Conservancy and sanitation 1.08 5. Roads 17.56 6. Storm water drainage and 1.54 floods 7. Fire services 0.15 Total 48.20 (iii)

Social infrastructure:

In the Delhi, norms for providing social infrastructure are as under: Facility Population 2,500 • One nursery school 5,000 • One primary school 7,500 • One Senior Secondary school • One integrated Higher Secondary 0.1 million School with hostel facilities • One integrated Senior Secondary 0.1 million School with hostel facility 0.25 million • One college 20,000 • One Clnic-cum-dispensary 25,000 • One Police Post 0.1 million • One intermediate hospital 0.4 million • One general hospital 0.1 million • One Police Station Day by day, the standard of providing social infrastructure in terms of area is decreasing, the result being that the density of use for these facilities is increasing, thus creating pollution in terms of public conveniences, maintenance of common spaces and congestion in parking areas. (iv) Economic Infrastructure: At the time of preparation of the second Master Plan for Delhi, different surveys were conducted. Some of the important results are given under: • Out of 0.24 million commercial establishments, about 40% are in formal / organized sector and the balance in informal/unorganized sector. The number of planned commercial spaces added per year hardly 15-20% of the demand, so there is more and more informal sectors which create pollution. 425 R.G. GUPTA -–1995 www.rgplan.org



Out of 60,000 industrial units, 80% are very small with 10 workers and below, mostly in non-conforming areas and in informal sectors. Many of them create problems of pollution (air and noise), parking and traffic problems.

(v) Communication System (road and urban rail): By 2010 A.D., Delhi would have a population of 20 million with 28 million passenger trips per day. Delhi’s roads will not be able to take more than 12 million passenger trips, even after widening them to the extent possible, besides about 8 million trips to be taken by cyclists and pedistrians. Implementation of the proposal of urban rail is necessary, because already a lot of pollution is created by road based vehicular traffic. Without implementing the proposal of urban rail, pollution cannot be controlled.

51.3 Suggested Action of DDA in this Decade of 1990s (i) Preparation of zonal plans of 15 large zones. (ii) Physical and financial plans of 24,000 hect. of land of four sub-cities in different directions of Delhi. (iii) Plans of 825,000 dwelling units for different sections of the society, namely – EWS, LIG, MIG, HIG in public, private and cooperative section, in planned and unplanned colonies. (iv) Four integrated freight complexes cum-wholesale markets at – Madanpur Khadar, Patparganj, Narela and Bharthal. (v)

Six Inter State Bus Terminus each in 10 hect.

(vi)

Four metropolitan passenger terminals at – Tughlakabad, Anand Vihar, Bharthal and Narela

(vii)

61 facilities centres in a total area of 803 hect.

(viii)

19 service centres in a total area of 97.18 hect.

(ix)

One sub-central business district, 22 district centres and 70 to 80 community shopping centres in 756 hect.

(x)

Coverning of 15 storm water drains and to use the reclaimed land for the purpose of green areas, circulation and partly for remunerative purposes i.e. commercial.

(xi)

To decongest Delhi in terms of making available of proper circulation system and trunk physical infrastructure.

(xii)

To get prepared base maps of Delhi in a scale of 1:5000 and 1:1250.

(xiii)

To plan river Yamuna bed and to use the reclaimed land of 80 sq. km for recreational and partly for gainful purposes 426 R.G. GUPTA -–1995 www.rgplan.org

(xiv)

To plan properly the project of Mass Rapid Transit System, specially for Trans-Yamuna Area

(xv)

Preparation of Five Year Plan and Annual Plans

(xvi)

Preparation of plans of growth centres, growth points and basic villages of rural Delhi

All these projects are important and their proper planning and implementation should be completed in this decade as envisaged in the Delhi Master Plan-2001 and in 8th Five Year Plan of Delhi.

51.4 Outlines of National Housing Policy National housing policy has been given in Appendix 51.2 and outlines have been given under in 16 points. Elements of National Housing Policy have been shown in Map 51.1: also (i)

Introduction:

In the light of the development in the national and international scene and in the context of VIII Five Year Plan, National Housing Policy has been formulated. (iii) Objectives and Goals: (a)

To assist all people, and in particular the houseless, to secure for themselves affordable shelter through access to; developed land, building materials, finance and technology; (b) to create an enabling environment for housing for everyone; (c) to extend and expand physical infrastructure and basic services; (d) to promote a more equal distribution of land; (e) upgradation of unserviceable

(iv) Housing Norms: (a) In rural areas, except those on the periphery of large cities, the size of the plot would not ordinarily be less than 85 sq.mts., with a provision for built up accommodation of not less than 20 sq.mts. In urban areas, the size of the plot should not ordinarily be less than 25 sq.mts. (v) Rural Housing: (a) Dissemination of appropriate technology, delivery system for promoting self-help housing; assuring land and tenure rights; avoiding unnecessary displacement due to development projects; and where unavoidable ensuring proper rehabilitation of the households; (b) rehabilitation of households affected by natural calamities; (c) maximum use of indigeous materials and 427 R.G. GUPTA -–1995 www.rgplan.org

construction techniques; (d) the establishment of a suitable institutional structure. (vi) Slums and Squatter Settlements in Urban Areas: (a) encourage in situ upgradation, slum renovation, and progressive housing development with conferment of occupancy rights; (b) integrate the provision of physical amenities with maternal and child welfare services and health care. (vii) Supply and Management of Land: (a) Supply of serviced land at affordable prices; (b) promoting a balanced pattern of urbanization; (c) simplifying the existing legal provisions and procedures; (d) modifying development control rules and norms of infrastructure; (e) encouraging the involvement of licensed private developers; (f) the optimum use of land as a resource for housing and urban services; (g) using fiscal and municipal taxation policy, including tax on vacant urban land; (h) effective infomraiton system; (i) access of the poorer sections, women and (viii) Infrastructure: Adequate investments to increase the coverage of urban population to 100% for potable water supply and 75% for basic sanitation and larger investments in public transport and traffic network. (ix) Conservation of Housing Stock and Rental Housing: (a) Special schemes of conservation, fiscal and proptery tax incentives and financial assistance for expansion repairs, renewal, and upgradation of dwelling units; (b) encouraging individuals and groups for partial or full letting by access to land, institutional finance and enabling regulations. (x) Housing Finance: (a) Increasing proportion of the resources of LIC, GIC, UTI, Commercial Banks and Cooperative Banks; (b) housing-linked savings schemes for the Provident Fund subscribers, and the workers in the organized sectors; (c) Introduction of innovative savings and lending instruments; (d) to introduce a secondary mortgate system; (e) cross subsidies between different income groups and purposes, with longer repayment periods, graduated payments and simplified procedures; (f) indepth assessment of the role of informal credit network for housing and to suggest ways and establishing its links with the formal credit insititutions. 428 R.G. GUPTA -–1995 www.rgplan.org

(xi) Building Materials and Technology: (a) To economise the use of scarce building materials and to promote low cost and innovative technology; (b) training, technology extension and skill upgradation; (c) setting up of R&D facilities with at least 1% of their annual expenditure in housing. (xi) Special Programmes for Disadvantaged Sections: Disadvantaged groups are – (a) households below the poverty line; (b) rural landless labour including artisans; (c) the households dishoused by development projects and the victims of natural clamities; (d) scheduled castes, scheduled tribes and freed bonded labour; (e) widows, single women and women-headed households including construction workers; (f) physically handicapped. (xii) Role of Government and Other Institutions: (a) Involvement of several agencies including the government at different levels, the cooperatives, the community, and the private sector; (b) Housing agencies at the Central, State and local level to act more as promoters of housing activity rather than builders of houses; (c) Recognising group-based or cooperative activity as the principal form of housing activity; (d) To encourage private developers and the organized sector. (xiii) Fiscal Policy: (a)

(xiv)

Incentives will be given for investment in rental or ownership housing, especially for low income employees; (b) Incentives will be given to promote the manufacture of new building materials and components producded out of industrial wastes; (c) The levy of stamp duties and registration fees will be rationalized; (d) To channelize investment of Non-Resident Indians.

Legal and Regulatory Framework: (a) Modifications and revisions of Land Reforms, revision of Master Plan standards, Land Acquision Act, Cooperative Laws on Societies, and National Housing Bank Act; (b) Simplificaton of procedure for registration of documents and execution of mortgages.

(xv) Human Resource Development (a) Training and reorientation of architects, engineers, planners, administrators. (b) Formal and non-formal training facilities 429 R.G. GUPTA -–1995 www.rgplan.org

(c) Greater involvement of non-governmental organizations in the traning of construction workers. (xvi)

Action Plan: (a) Perspective Plans of actions and short term plans for the VIII Plan should be formulated by the States/UTs; (b) The National Housing Policy should be periodically revised.

51.5 The Role of Development Authorities of Super Metropolitan City in Context of New Housing Policy (Map 51.2) Present development authorities of Super metropolitan cities need two basic changes, namely – (i) structural change and (ii) functional change. Structural changes are required to make the authority responsible for the entire paper planning (physical and financial) and on the top of it coordination, integration, evaluation and monitoring of all the subjects and departments within the authority and outside the authority, concerning to development and construction of urban spaces. Functional changes are required with regard to involvement of private sector and joint venture. These two basic changes have been explained in para51.5.1 and 51.5.2. 51.5.1 Structural Changes (i) Functions for proper administration of National Capital Territory of Delhi can be divided into the four parts – (a) Law & order; (b) Maintenance of services; (c) Regulatory functions for regulation of social services; and (d) Planning, development and construction of urban spaces. The entire system has been explained in para-48.6 in Chapter 48 (Planning Administration of Mega City). 51.5.2 Involvement of Private Sector It is a fact that one authority or organization cannot meet the demands of supply of urban spaces, so the only alternative is to involve private sector. Even otherwise also as per new housing policy, involvement of private sector is a must. Details of the subject have not been given and only main issues have been highlighted. There are many important issues which can be divided into the following 4 categories for the involvement of private sector: (j) Administrative Issues: (a)

Constitution of Committees: • High level committee at the policy level, for policy decision on various aspects of the subject of urban development. • Committee at the second level for technical scrutiny of various projects.

(b) Criteria to qualify developers and builders; (c) System of acceptance of offers from builders/developers; (d) Type of penalties to be levied on developers/builders, in case development or construction of urban spaces are not in time; (e) Payment of deficiency charges if any, in development 430 R.G. GUPTA -–1995 www.rgplan.org

of physical infrastructure i.e. water, sewer and electric lines, storm water drains and roads to the local body by the developers/builders. (ii)

Financial Issues: (a) Financial bindings between developers and builders on one side and development authorities on the other side; (b) Impact of increase in cost of built up spaces, in case cost of basic building materials, labour or land is increased; (c) Percentage of housing for different income groups; along with design specifications and cost of each and subsidies in EWS & LIG houses.

(iii)

Lands Issues: (a) Extent of applicability of the scheme of involvement of private sector/joint venture.

The proposal should be encouraged in a big way specially in three types of projects (a) commercial centers i.e. local shopping centres; community shopping centres and district centres; (b) group housing pockets; (c) integrated large projects. Besides these, the following types of projects would also be dealt with: • Allotment of group housing pockets to Co-operative Group Housing Societies on priority basis but on market price. • Auction of group housing pockets. (b) Land assemblage in Delhi: In Delhi, it seems to be difficult; however, continuous efforts should be made. In other cities like Gurgaon the scheme is very much successful; (c) System of sharing of built up residential and commercial spaces; (d) Stage of selling of urban spaces; (e) Execution of lease deed; (f) Preference in allocation/allotment/auction of land for Non Resident Indian; (g) Initial capital for integrated project, to acquire large chunks of lands and to resolve financial crisis for speedier acquisition; (h) Out of turn allocation/allotment of land to cooperative group housing societies. (v)

Technical Issues:

(a) System of comprehensive paper planning along with their sanction of plans: •

Paper planning includes physical as well as financial planning in terms of layout plans at various levels, plans of services (water, sewerage, drainage, power, fire fighting, telephones, roads), landscape plans, details of street furniture, architectural controls, details of buildings to be constructed, structure details, specifications, PERT chart, CPM analysis, Project Management Report etc. Financial planning including ABC analysis, input and output of financial resources, flow of funds. 431 R.G. GUPTA -–1995 www.rgplan.org

(b) Maintenance and management of the complex with regard to – (i) External façade of buildings; (ii) common areas of parking, circulation, street furniture and landscaping and (iii) Maintenance of physical infrastructure.

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Appendix 51.1 Achievements of DDA during the Last Three Decades Achievements Highlights: • Over 30,000 hect. of land acquired, developed and allocated for various residential, recreational, industrial, commercial and institutional purposes. • Housing facilities provided/generated for a population of 5.0 million in 1 million dwelling units directly or indirectly. • Environmental improvements in 929 Slum & shanty (JJ) Clusters, including toilet blocks, paved streets, water hydrants, street lighting. • As part of the greening of Delhi, 2918 hect. of land was landscaped and developed as district parks, city forests and lake side gardens. • Giving new life and vigour to the city and for this 6 sports complexes were opened in different parts of the city. • Infrastructure created for the IX Asian Games, flyovers, a stadium of international standards and the integrated Asiad village containing 853 dwelling units. • Modern, well laid-out shopping/office complexes created in seven district centres, 64 community centres, 179 local shopping centres and 592 convenient shopping centres all over Delhi. • Master Plan was extensively revised and the comprehensive Master Plan 2001 brought into pace from 1st August, 1990 Group Housing (DDA) 1962-1990: Total registration Allotments made 518 group housing cooperatives

SFS 74,045 44,714

MIG 75,732 47,780

LIG 91,656 41,825

EWS 76,332 59,776

72,960

Dwelling Units – accommodating a population of 3,65,000

Total 318,765 194,095

Commercial Activity *DC *CC *LSC *CSC Total sites 29 122 572 1,500 Sites developed/under development 7 64 179 529 * District Centres, * Community Centres, * Local Shopping Centres, * Convenient Shopping Centres LANDSCAPE Green area developed District parks city forests, N.H. parks and green belts Lakes Picnic Huts

7273.6 hect. 866 Nos. 16 Nos. 8 Nos.

Plotted Development

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Resettlement colonies Residential plots under MIG/LIG Alternative allotment to persons whose lands were acquired Auctioned plots Rohini residential scheme Co-operative House Building Societies (126) Total

Integrated Projects Housing types developed/being developed Type ROHINI Area 2470 hect. Population 0.85 Million Co-op. Group Housing 23,000 DDA Registrants 30,737 (plots) DDA Registrants 28,744 (flats) Resettlement sites 800 Other residential plots 3,032

2,16,041 20,735

29,894 35,436 30,557 3,37,843

NARELA Area 444 hect. Population .01 Million 6,000 9,000 3,000 900

Appendix 51.2 National Housing Policy 1. 2. 3. 4.

Introduction Objectives Goals Elements of Housing Policy 4.1 Housing Norms 4.2 Rural Housing 4.3 Slums and Squatter Settlements in Urban Areas 4.4 Supply and Management of Land 4.5 Infrastructure 4.6 Conservation of Housing Stock and Rental Housing 4.7 Housing Finance 4.8 Building Materials and Technology 4.9 Special Programmes for Disadvantaged Sections 4.10 Role of Government and Other Institutions 4.11 Fiscal Policy 4.12 Legal and Regulatory Framework 4.13 Human Resource Development 4.14 Action Plan

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National Housing Policy 1.

Introduction 1.1

2.

Housing forms an important part of the strategy of the Government for the alleviation of poverty and employment generation, and is to be viewed as an integral part of overall improvement of human settlements and economic development. The Global Shelter Strategy adopted by the United Nations in November 1988 calls upon different Governments to take steps for the formulation of a National Housing Policy to achieve the goals of the strategy. The Government had tabled on both Houses of Parliament in May 1988 the Draft National Housing Policy (NHP) and it had been approved by the Rajya Sabha. In the light of the development in the national and international scene after the presentation of the Draft NHP, and in the context of the formulation of the VIII Plan, it has become imperative to elaborate and restate the National Housing Policy.

Objectives The basic objectives of the policy are: • To assist all people, and in particular the houseless, the inadequately, housed and the vulnerable sections, to secure for themselves affordable shelter through access to developed land, building materials, finance and technology. • To create an enabling environment for housing activity by various sections by eliminating constraints, and by developing an efficient system for the delivery of housing inputs. • To expand the provision of infrastructure facilities in rural and urban areas in order to improve the environment of human settlements, increase the access of poorer households to basic services, and to increase the supply of developed land for housing. • To undertake, within the overall context of policies for poverty alleviation and employment, steps for alleviating the housing situation on the poorest sections and vulnerable groups by direct initiatives and financial support of the State • To help mobilize the resources and facilitate the expansion of investment in housing in order to meet the needs of housing construction and upgradation and augmentation of infrastructure. • To promote a more equal distribution of land and houses in urban and rural areas, and to curb speculation in land and housing in consonance with macro-economic policies for efficient and equitable growth. • To promote vemacular architecture and to preserve the nation’s rich heritage in the field of human settlements. 435 R.G. GUPTA -–1995 www.rgplan.org

3.

Goals 3.1 The main goals to be achieved would be to: • Reduce houselessness; • Provide enhanced supply of developed land and finance to the housing sector; • Promote use of appropriate and energy saving materials and cost effective construction technologies; • Assist in the upgradation of all unserviceable houses in rural and urban areas, with a view to particularly improving the housing conditions of the rural homeless and the inadequately housed, slum dwellers, Scheduled Castes & Scheduled Tribes, and other vulnerable sections. • Provide the minimum level of basic services and amenities to ensure a healthy environment within the framework of integrated development of rural and urban settlements. 3.2 It is realized that the rising cost of land and houses is placing shelter beyond the reach of bulk of the population, even as finance is becoming costlier to secure even for the fixed income groups. It is recognized in this context that the importance of the role assigned to housing needs to be demonstrated by making available larger share of public resources to this sector. This will be supplemented by public sector investments in rural and urban infrastructure, employment programmes, and investments in new growth centres. This is expected to generate direct and indirect employment besides the upgradation of skills at various levels, and stimulus to building material units and linked services.

4.

Elements of Housing Policy The following are the main elements of Housing Policy: 4.1 Housing norms 4.2 Rural Housing 4.3 Slums and squatter settlements 4.4 Supply and management of land 4.5 Infrastructure 4.6 Conservation of Housing Stock and rental housing 4.7 Housing finance 4.8 Building material and technology 4.9 Special programmes for disadvantage groups 4.10 Role of Government and other institutions 4.11 Fiscal Policy 4.12 Legal and regulatory framework 4.13 Human resource development 4.14 Action Plan

4.1 Housing Norms 4.1.1 Housing norms would be evolved at local levels with due regard to different geo-climatic conditions and life style of the people. Efforts will be made to develop 436 R.G. GUPTA -–1995 www.rgplan.org

and promote use of cost effective standardized housing designs for each geoclimatic region. 4.1.2 In rural areas, except those on the periphery of large cities, the size of the plot would not ordinarily be less than 85 square metres, with a provision for builtup accommodation of not less than 20 square metres, and with adequate provision of services. In urban areas, the size of the plot should not ordinarily be less than 25 square metres with a provision for permissible built-up accommodation and services on individual or shared basis in a neighbourhood adequately served with community facilities. In devising building standards, the special needs of the handicapped would be taken into account by the local bodies. 4.2

Rural Housing 4.2.1 The strategy for rural housing will be based on: • Support to varying needs of shelter including new construction, additions and upgradation; • Providing assistance by way of dissemination of appropriate technology and delivery system for promoting self-help housing; • Assuring land and tenure rights by enactment of enabling laws for conferment of homestead rights; • Prevention of alicnation of homesteads on tribal land; • Avoiding unnecessary displacement or dehousing of rural settlements due to development project; and where unavoidable, ensuring proper rehabilitation of the households, with full community involvement, according to the national norms in this regard; • Rehabilitation of households affected by natural calamities in terms of assistance for reconstruction and access to services, within the national scheme of calamity relief; • Preserving the customary and traditional rights of access to housing resources based on forest materials and common village resources; and promoting the maximum use of indigenous materials and construction techniques with due regard to geoclimate variations in different regions; • The coordinated provision of water supply, sanitation, roads, and other basic infrastructure services to existing and new habitations; • The establishment of a suitable institutional structure including strengthening of existing organizations at State, district and local level, with responsibility for the implementation, supervision and monitoring of rural housing schemes, and with full involvement of beneficiaries, voluntary agencies and village panchayats. • Giving special attention to the needs of poorest segments of scheduled castes, scheduled tribes and other disadvantaged persons. 437 R.G. GUPTA -–1995 www.rgplan.org

4.2.2 The development of house sites and the upgradation of rural housing will be linked to activities under the Integrated Rural Development Programme, Jawahar Rozgar Yojna, and other programmes for the creation of rural assets and employment. 4.3

Slums and Squatter Settlements in Urban Areas 4.3.1 Keeping in view the policies of planned growth of urbanization, income support and poverty alleviation, the central and state governments would take steps to: • Encourage in-situ upgradation, slum renovation, and progressive housing development with conferment of occupancy rights wherever feasible. • Expand provision of water supply, sanitation and other basic services in indentified slum settlements • Ensure proper maintenance of amenities through community inputs and institutionalized arrangements. • Integrate the provision of physical amenities with basic services including maternal and child welfare services and health care, structured on community participation and involvement of voluntary agencies and management by local bodies. • Promote incremental construction through financial and technical support, access to technology and materials, and opportunities for skill upgradation, and • Provide nigh shelters and sanitary facilities for the footpath dwellers.

4.4

Supply and Management of Land

4.4.1 Supply of serviced land at affordable prices is a critical input for housing activity. It s widely recognized that the effective operation of the land market has been affected by the existing legal and regulatory framework, lack of infrastructure, and the slow pace of release of serviced land by public agencies. This, along with other economic factors, has led to unwarranted increase in land price and housing costs, and widespread speculation and profiteering specially in larger cities. The exclusion of the majority of the poor from the formal market, and their inability to build or acquire legal shelter has led to the proliferation of squatter settlements and unauthorized colonies. 4.4.2 The Central and State Governments would take initiatives for

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(i) Promoting a balanced pattern of urbanization in order to reduce the pressure on the larger cities, with due regard to the need to control unregulated peripheral development on agricultural lands and the degradation of land resources; (ii) directing the activities of the public agencies towards increasing the supply of serviced land for various income groups and essential public purposes; (iii) simplifying the existing legal provisions and procedures relating to the acquisition of land, to enable taking over possession of land speedily with due regard to the payment of adequate and timely compensation to land owners on negotiated basis, or by schemes of participative development of infrastructure under the town planning law;

(iv) modifying development control rules and norms of infrastructure provision and simplifying building approval procedures in order to facilitate the housing activity of different income groups, and to make it less expensive; (v) encouraging the involvement of licensed private developers in land development, construction and infrastructure provision, with adequate legal safeguards;

(vi) reviewing on a city-wise basis the use of land in the ownership of various public agencies and formulating specific plans for the efficient utilization of these lands for the city’s development; (vii)

devising through new legislation, or through the more effective use of existing laws, the optimum use of land as a resource for housing and urban services and suitable measures for the redevelopment of land occupied by industries in a state of decline and /or causing environmental pollution;

(viii)

using fiscal and municipal taxation policy, including tax on vacant urban land, in order to curb speculative activities, and to increase the supply of land;

(ix)

coordinating the assessment of valuation of land and property by different central, state and local agencies, for the levy of taxes, and for other purposes;

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(x)

building up an effective information system of land and registration in the interest of efficient management of land; and

(xi) specifically increasing the access of the poorer sections, women and vulnerable groups to affordable serviced land in areas located near, or connected by cheap transport to their work places. 4.4.3 In the light of suggestions received from various sources such as the state governments and the affected parties, amendments to the Urban Land (Ceiling and Regulation) Act will be introduced in order to remove the inhibiting effects of the legislation without diluting its social purpose, so as to make available additional land for housing, especially for the lower income groups. 4.5

Infrastructure 4.5.1 The National Commission on Urbanisation has advocated concentrated investment in settlements of various sizes which can generate economic momentum, sustain economic growth, promote balanced urbanization, expand housing activity and facilitate equitable provision of services. It is recognized that public investment in infrastructure to expand the supply of serviced land needs to be stepped up through enhanced budget provision as well as institutional finance. Organizational arrangements would be strengthened for mobilizing and increasing the flow of funds for infrastructure. 4.5.2 The Housing Policy envisages actions to expand infrastructure facilities and services by (i)

(ii)

(iii)

(iv)

(v) (vi)

Increased investments to be made by the central, state and local agencies within the framework of regional plans in order to meet the rapidly increasing needs of serviced land, and to improve the availability of services in different settlements. Adequate investments to increase the coverage of urban population to 100% for potable water supply and 75% for basic sanitation including the total elimination of manual scavenging. Larger investments in public transport and traffic network to subserve the needs of the power sections for cheaper and speedier access to work places. Special attention to the development of small and medium towns by strengthening their linkages with the contiguous rural areas as part of integrated planned development of the region, and steps for reducing the migration to larger cities. Encouraging use of technologies which are cost effective, incrementally upgradable, and environmentally appropriate. Support from state governments for extension of infrastructure based on the participation of the land owners or of enterprises in new growth centers or townships and private developers or of innovative systems of infrastructure leasing. 440 R.G. GUPTA -–1995 www.rgplan.org

(vii)

(viii)

(ix)

4.6

Assistance by the State Governments to the local bodies to ensure adequate cost recovery, proper maintenance of services and upgradation of the capability of the personnel in local bodies and functional agencies. Securing community support in the design, installation and the upkeep of services within the framework of the Urban Basic Services strategy and rural programmes. Strengthening the financial viability and implementation capacity of local bodies and functional agencies and augmenting their resources on the basis of the recommendations of the State Municipal Finance Commission.

Conservation of Housing Stock and Rental Housing

4.6.1 The National Housing Policy envisage steps to be taken by the Central and State Governments and the financial institutions for: (i) appropriate modifications in the building regulations, (ii) special schemes for the repairs and renewal of residential buildings having a large number of occupants; (iii) fiscal and property tax incentives and financial assistance for expansion and upgradation of dwelling units of prescribed size and for proper maintenance of buildings. (iv) Access to materials and technical assistance. 4.6.2 Investment in rental housing, especially for the lower and middle income groups will be stimulated by: (i) suitable amendments to rent control laws on the basis of a Model Rent; (ii) incentives in central, state and municipal taxation for the construction and letting of houses; (iii) provision of houses for industrial workers in new industrial areas or growth centres, by public concessions and institutional finance under industrial policy; (iv) encouraging individuals and groups to construct houses for partial or full letting by access to land, institutional finance and enabling regulations. 4.7

Housing Finance 4.7.1 In the interest of long-term development of the mortgage market and assured resources for the housing finance system increasing proportion of the resources of LIG, GIC, UTI, Commercial Banks and Cooperative Banks are proposed to be channeled into housing with lending rates reflecting the average yields of these resources. 4.7.2 Apart from diverting increasing proportions of annual provident fund accumulations for housing finance, a housing – linked savings 441 R.G. GUPTA -–1995 www.rgplan.org

schemes for the P.F. subscribers, and the workers in the organized sectors will be introduced. 4.7.3 It is envisaged that, as the apex agency linking the housing finance system with the financial sector as a whole, the National Housing Bank (NHB) facilitates the promotion and regulation of housing finance institutions in the public and private sector, in refinancing their operations, and in expanding the spread of housing finance to different income groups all over the country, while functioning within the overall framework of housing policy. 4.7.4 The National Housing Policy recognizes the need to strengthen the Housing and Urban Development Corporation (HUDCO) and increase its resources for meeting in a larger measure the requirements for shelter provision for lower income groups in rural and urban areas including the shelterless and the slum dwellers, and for expanding infrastructure facilities in the urban areas. 4.7.5 The complementary roles of different agencies and institutions concerned with land development, house construction and finance will continue to be recognized. 4.7.6 Innovative savings and lending instruments will be introduced to integrated the housing finance system into the capital market, by enabling access of Housing Finance Institutions to the funds on a competitive basis with other financial institutions and by permitting NHB and HUDCO to set up mutual funds for housing, apart from their access to external aid agencies. 4.7.7 Steps would be taken in due course to introduce a secondary mortgage system in order to attract funds from a wide range of investors, including insurance and provident funds, and to integrate housing finance with the overall financial system. 4.7.8 The planning norms for housing at the neighbourhood and institutional level will be integrated with the lending guidelines of NHB and other financial institutions. Appropriate ceilings on plinth area and institutional finance will be stipulated in order to discourage large premises. 4.7.9 It is envisaged that the housing finance system as a whole becomes self-financing in the long run, with built in elements of cross subsidies between different income groups and purposes, with longer repayment periods, graduated payments and simplified procedures, wherever necessary, to ensure affordable monthly instalments and larger coverage.

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4.7.10 It is recognized that capital and interest subsidies for the urban and rural poor be targeted carefully, and that improvements be made in the housing finance procedures and shelter delivery system in order to bring down the cost of shelter for the poor to affordable levels. The subsidized housing, programmes like the Indira Awas Yojna for Scheduled Castes, Scheduled Tribes and freed bonded labourers will be restricted to the absolutely poor and the disadvantaged groups. The housing finance systems will be so devised as to respond on flexible terms to a variety of shelter needs of the rural and urban poor. 4.7.11 The Government recognizes the need to make an indepth assessment of the role of informal credit network for housing and to suggest ways of establishing its links with the formal credit institutions to enhance access of the rural and urban poor to housing finance at affordable rates on flexible terms. 4.7.12 The cooperative housing movement, especially, for lower and middle income groups will be given assured access to institutional finance to supplement internal resources. 4.8

Building Materials and Technology 4.8.1 As part of the housing policy, it is proposed to take steps for (a)

Stimulating the increased production and availability of conventional materials like cement, steel and bricks as part of industrial policy and promotion of small industries even as steps are taken to economise the use of scarce building materials and to promote low cost and innovative technology,

(b)

assured access of rural households to traditional sources including biomass and checks on indiscriminate commercial exploitation of forest resources, with due regard to environmental preservation;

(c)

encouragement for the use of public and private construction agencies of materials based on industrial and agricultural wastes, those based on local resources and alternate appropriate technologies;

(d)

selection, extension and promotion of proven technology and building materials, and the use of materials conforming to standards and quality construction through the Building Materials and Technology Promotion Council and state governments, and to provide financial and other assistance to entrepreneurs for manufacture and marketing of appropriate and innovative materials;

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(e)

(f) (g)

incorporating the proven technologies and materials in the national standards and specifications laid down by State agencies, and further requiring the public construction agencies to draw up plans for the use of cost effective technologies and materials to the extent of at least 10% of total annual construction; training, technology extension and skill upgradation through a network of building centres in urban and rural areas set up by State agencies, research bodies and voluntary agencies, and dissemination of information to the actual users and communities;

(h)

building up an extension network for the spread of information on housing schemes and inputs, shelter guidance centres, retail outlets for materials; and

(i)

strengthening existing R&D institutions and promoting the setting up of R&D facilities in other suitable institutions by necessary financial support, and by obliging all public and private construction agencies to set apart at least 1% of their annual expenditure for R&D in housing.

4.8

Special Programmes for Disadvantaged Sections

4.9.1 Housing Policy would accord priority to the promotion of access to shelter for the houseless, inadequately housed and the disadvantaged groups such as: (a) (b) (c) (d) (e) (f)

households below the poverty line in all settlements; rural landless labour including artisans; the households dishoused by development projects and the victims of natural calamities; scheduled castes, scheduled tribes and freed bonded labour; widows, single women and women-headed households including construction workers; physically handicapped.

4.9.2 Housing needs of Scheduled Castes/Scheduled Tribes: It will be assured with the help of state governments and Central Ministries that the developed land and housing units in rural and urban areas constructed by state and local agencies, and those constructed by private agencies with the help of financial institutions, are allotted to families belonging to the scheduled castes/scheduled tribes in proportion to their composition in the population. The ongoing schemes for these communities would be further expanded in consultation with the National Commission for Scheduled Castes and Scheduled Tribes.

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4.9.3 Housing needs of Women: Adequate attention will be given, while devising programmes, to meet the specific needs of women in disadvantage circumstances, in terms of joint or exclusive title to land and house, access to credit, home-based employment, maternal and child welfare, hostels for working women, and involvement in the provision of shelter and services, access to education and incomegenerating opportunities. 4.10

Role of Government and Other Institutions

4.10.1 The magnitude of the housing task calls for the involvement of several agencies including the government at different levels, the cooperatives, the community, and the private sector. The Government will devise and implement strategies which will enable the various agencies to complement the efforts of one another and to ensure the most efficient utilization of resources consistent with National Environment Policy. It would be Government’s endeavour; •







To encourage within the framework of housing policy and local planning, voluntary agencies and community groups and support community based efforts to upgrade shelter, extend basic services, augment incomes and promote environmental conservation. To reorient the housing agencies at the Central, State and local level to act more as promoters of housing activity rather than builders of houses and to concentrate increasingly on the supply of developed land and infrastructure, extension of appropriate technology, assisting people to take up construction and upgradation of houses, and disseminating information on housing schemes. Recognizing group-based or cooperative activity as the principal form of housing activity in the large urban areas facing shortage of land, to encourage, the cooperative and other community-based organizations to take up various shelter-related activities, especially for slum-dwellers and the rural poor, and to assist them through preferential allotment of land, access to finance and fiscal support. To encourage private developers and the organized sector to invest in various forms of housing and land development by access to speedier approval of schemes and other forms of support, and further requiring them to devote a significant proportion of the investment in housing for lower and middle-income groups at affordable prices and conforming to non-exploitative practices.

4.10.2 Government recognizes the vital need to integrate housing activity and employment. Training, skill upgrdation and promotion of labour intensive and decentralized manufacture of building materials and construction practices would be encouraged, in order to maximize the economic benefits of housing investments. 4.11

Fiscal Policy 445 R.G. GUPTA -–1995 www.rgplan.org

4.11.1 Fiscal incentives will be provided in order to promote desired investment in housing activity by the private sector and individuals, and to channel additional savings for housing activity from households, and enterprises. 4.11.2 In order to induce employers in the organized sector including industry to provide housing for their workers, incentives will be given for investment in rental or ownership housing, especially for low income employees. 4.11.3 Incentives will be given to promote the manufacture of new building materials and components produced out of industrial wastes like flyash, agricultural wastes, and those which substitute the use of scarce resources like wood, and energyintensive materials like cement and steel. 4.11.4 In consultation with the State Govts., the levy of stamp duties and registration fees will be rationlised. 4.11.5 Government would encourage housing schemes with approved guidelines in major cities to channel investment of Non-Resident Indians in convertible foreign exchange in residential property, and would extend appropriate incentives including speedy clearance by Central, State and local governments to stimulate a sustained and large in-flow of such investment. 4.12

Legal and Regulatory Framework

4.12.1 The measures for removing legal constraints would cover apart from those mentioned elsewhere in the Document: (a)

Provision in the Land Reforms and other relevant Acts to confer homestead rights on the occupants, ensure proper rehabilitation of those dishoused by project, protect tribal families from eviction, preserve user rights over forest and common lands etc.;

(b)

Revision of Master Plan standards, land use plans, building bye-laws, and infrastructure standards by the State Govts., and local authorities, based on the National Building Code as the guide. This will help reduce the cost of shelter, enable efficient use of land, and facilitate housing activity;

(c)

Making suitable amendments in the laws and procedure governing land acquisition in urban areas to ensure speedy assembly of compact lands;

(d)

Review and amendment of laws and regulations relating to town planning, particularly the norms and standards for in situ upgradation of low income settlements and housing;

446 R.G. GUPTA -–1995 www.rgplan.org

(e)

Enactment of separate chapter in the present cooperative laws on group or cooperative housing activity in order to streamline their operation and to remove existing constraints;

(f)

Enactment of Apartment Ownership Act in States not having such a law and suitable amendments to the existing laws wherever necessary in order to provide for the transfer of occupancy rights of individual owners, management of common areas, and to enable the creation of charge on the apartment by lending institutions;

(g)

Steps for the removal of constraints to the flow of finance into housing and services especially large lending to the poor and households in the informal sector through: • •

• • •

Flexible procedures and collateral requirements as well as repayment schedules. Amendments to the National Housing Bank Act to provide for speedy foreclosure of mortgages by housing finance institutions refinanced by NHB, so as to augment the resources of housing finance institutions further and to help in creating a secondary market for housing mortgage; Universalisation of the system of English Mortgage; Simplification of procedure for registration of documents and execution of mortgages; and Simplification of procedure for investigation of title and introduction of the Torrens system of registration of title in a phased manner in urban and rural areas.

The implementation of this agenda will be ensured through the joint efforts of Central and State Governments as early as possible. 4.13

Human Resource Development

4.13.1 The development of human resource is a crucial component of the Housing Policy. Various steps are envisaged such as: • The training and reorientation of architects, engineers, planners, administrators, and others to adopt low-cost and cost-effective approaches to planning of settlements and housing; • Increased facilities in the technical institutions and colleges for the training of the various professions related to housing; • Promotion on a large scale of vocational courses at the school and post school level; • Formal and non-formal training facilities on a widely decentralized basis to upgrade skills of construction workers, artisans and petty contractors; • Upgradation of the skills and improvement of the working conditions of women construction workers; 447 R.G. GUPTA -–1995 www.rgplan.org





Greater involvement of non-governmental organizations in the training of construction workers, both in the formal and informal sectors and assistance to urban self employed to organize themselves in order to upgrade their techniques and get better access to working space, credit and marketing channels; and Provision of non-formal training to facilitate maintenance and improvement of housing stock on a self-help basis.

4.14

Action Plan 4.14.1 Housing is a State subject. Given the wide variations in housing needs and resource endowments in the country, Governments of States and UTs would have to play the primary role in formulating action plans and programmes suited to local needs and conditions in consultation with local bodies and citizen groups. Perspective Plans of actions and short term plans for the VIII Plan will be formulated by the States/UTs taking into account the following factors: (a) There must be complete estimate of the number, type (economic category), and standards of dwellings to be constructed or upgraded both by the private and public sector and the units to be offered in the rental market. (b) Efforts should be made to work out resource flow from the private and pubic sectors, and if possible the number and type of dwelling units to be constructed by each sector in States/UTs. (c) There should also be separate projections for rural and urban housing needs, including the resources required for each sector. (d) The Action Plan would distinguish shelter needs of those in possession of a plot and desire to construct dwelling unit, those who are totally shelterless, those who can afford to acquire a built-up unit, those in need of repairs and renovation/extension of the dwelling units, and those in need of additional amenities. It should thus work out the desired product mix and the resources required in order to provide adequate shelter for different sections of the population. The Action Plan would be formulated for each States/UT within a time frame of one year for time bound implementation by state agencies and built into the Five Year Plans. 4.14.2 An appropriate management information system on housing and urban services will be developed at various levels of government under the supervision of an Inter-Ministerial Group and a comprehensive Housing Census will be taken up during Eighth Five Year Plan. 4.14.3 The National Housing Policy will be periodically revised in the light of emerging needs of different sections of the population and the demands of the changing socio-economic conditions in different parts of the country.

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MAP 51.1

Elements of National Housing Policy

Housing Norms Rural Housing Slums & Squatters Settlements Including Disadvantaged Sections Infrastructure Conservation of Housing Stock Rental Housing Housing Finance Building Materials and Technology Role of Govt. and other Institutes Fiscal Policy Legal & Regulatory Framework Human Resource Development Action Plan

449 R.G. GUPTA -–1995 www.rgplan.org

MAP 51.2:

Role of Development Authorities



Physical and Financial Planning of all the Subjects of Regional Planning, Urban Planning. Traffic and Transportation Planning, Planning of Physical, Social, Economic



Development and Construction of Urban Spaces of Various Land Uses in Specified Areas.



Custodian of Master Plan, Structure Plan and Policy Plan, as such is Responsible to Coordinate, Integrate, Evaluate and Monitor Various Subjects of Planning and Urban Spaces.



Policy on Maintenance of Urban Spaces



To Check Misuses Against the Master Plan, Structure Plan or Comprehensive Plan.

450 R.G. GUPTA -–1995 www.rgplan.org

Index Agra Model, 744 Air Force Naval Housing Board, 190 The Air (Prevention and Control of Pollution) Act, 1981, 668 Air Pollution, 718-20 Alluding Khilji, 89 Army Welfare Housing Organisation, 190 ASIAD, 256 Asian Devleopment Bank, 55 Automobile Workshops, 290-91 Award Arbitration Committee, 83 Back Bay Reclamation Project Work, 91 Bahri, P.K., 574 Baishnabaghata-Patuli Area Development Project (Calcutta), 150 Bangladesh, 51, 52 General information on, 46-47 Housing projects in , 27-28, 46-50 Bangalore Rural housing specifications, 654 Barlow Report, 91 Barve, S.G., 92-93 Base Maps, 306 Beijing General information, 26-27 Housing in, 24, 27-29 Housing law in, 29 Bhoomiheen Camp Plannig, 484-85 Bombay Affordanle Low Income Shelter Programme, 100, 101 Composition of , 87 Development Control Regularizations, 11112, 430-31 EWS specification, 647 General measures in, 97-99 Guided development of , 106-07, 109-11 History of habitation in, 87-94 Home Improvement Loan, 105 Housing activity in, 87-94 Calcutta Metropolitan Development Authority (CMDA), 147, 148, 152, 154, 155 Calcutta Metropolitan Planning

Housing finance, 104 Housing supply of, 97-98 Land development in, 106-07 Legislation to planning, 96-97 LIG specifications, 649 Model (I) for urban spaces, 738-39 Model (II) for urban spaces, 739 Municipal Act, 1861, 190 Planning Authorities of, 94-95 Planning norms in 385 Population of, 88 Prime Minister’s Grant Project, 112-13 Rent Control Act, 102 Self-help housing, 99 Slums in, 98 Slum improvement programme, 99 Slum upgradation programme, 104-06 Urban settlements in, 96 World Bank assistance to, 100, 114-16 Bombay Building Works Restrictions Act, 92 Bombay Metropolitan Regionial Development Authority, 100, 107, 108 Bombay Urban Development Projects, 100-04, 107 Buch, M.N., 707 Builders proforma, 747-48 Bustee Improvement Programme (Calcutta), 149, 150 Calcutta Accommodation in, 145 First Mayor of, 143 General information, 143-44 Historical background of, 142-43 Housing in, 142-57 Investment in housing, 153-56 Low income settlements, 145 Planning norms in, 386 Urban projects in, 150-52 Calcutta Corporation, 143 Base maps for, 306 Classification of urban villages in, 511-

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Organizaton (CMPO), 147 Calcutta Metropolitan Standard Urban Area (CMSUA), 144, 145, 146, 153, 154, 155, 156 Calcutta Municipal Corporation Act, 1980, 148 Captain Cooke, 89 Captain Crawford, 90 Captain Turner, 90 CBRI EWS specification, 645, 647 LIG specification, 651 Central Road Research Institute (CRRI), 411 Central Water and Power Research Station, Pune, 686 Chalukya Rule, 88 Chandigarh Rural housing specification, 654 Child Survival, 227 China Housing projects in , 15-16, 24-31 Investment in housing, 25 Population of, 24, 25 Programmes/plan for housing in, 30 Urbanization, 25 City Hall, 64, 67 Civic Amenities In Karachi, 54 Colombo Housing in, 69-76 Master Plan, 70 Colombo Metropolitan Region, 69, 71, 73 Commission on Human Settlements, 8-11 Community facilities, 395-99, 405-06 Community Organisation, 229 Correa, C.M., 707 CPWD LIG specifications, 649 CRAPHTS, 411 Cross Subsity Scheme (Korea), 34-35 Delhi Administrative structure proposed, 732 Air pollution in, 710-20

14 Commercial places in, 736-37

Communication system in, 717, 766 Community facilities in, 395-99, 405-06 Co-operative House Building Societies in, 212, 215 Department of Urban Basic Services, 280 Development of hawkers in, 287-88 Dimensions by 2010 A.D., 714 Economic infrastructure, 715-16, 766 Encroachment in, 285, 293, 296 And energy conservation, 700-13 EWS housing in, 213-14 Financial parameters, 389-91 Findings of the Survey, 248-49, 253, 255-60 General information on, 208-10, 221-22 GIS system for, 303 Gram Panchayats, 548 Green areas development, 673-81 Hawkers in, 285-89 Hire purchase system in, 317-19 Household industries in, 535 Housing backlog in, 210-11 And Housing Policy, 763-83 Housing programmes in , 14, 208-18 Housing strategy in, 212-13 Industrial policy in villages of, 549-54 ins

452 R.G. GUPTA -–1995 www.rgplan.org

38 Housing in Unauthorized Regularized Colonies 38.0 38.1 38.2 38.3 38.4 38.5 38.6

Historical Background Regularisation of Unauthorised Colonies Socio-Economic Characteristics of Unauthorised Colonies Problems of Unauthorised and Unauthorised - Regularised Colonies Issues and Recommendation Financial Planning Land Use Analysis of some Unauthorised Regularised Colonies

38.0 Historical Background (i)

The emergence of unauthorized colonies started soon after the partition of the country in 1947, with the large influx of people from Pakistan into India settling in urban areas, specially in Delhi. Most of the migrants were accommodated in rehabilitation colonies planned and developed by the Ministry of Rehabilitation. Others, who had no place to go, started living in the unapproved, unintended and unauthorized colonies where land developed by private colonizers was without any proper physical and social infrastructure, but was cheap and easily available. From time to time, the Government formulated policies on the subject of ‘Regularisation of Unauthorised Colonies’ which were good but not implemented in the true sense, specially with relation to sites of social infrastructure.

The first policy called for the regularization of 110 unauthorised colonies, as a result of which, these were partially developed with sub-standard metalled roads, few and far water, sewer and electric lines. Although sites for social infrastructure were shown in various regularization plans, but in the course of time, these were also encroached upon by unauthorized construction. The result was that none of the colonies regularized has been developed according to the provisions shown for physical, social and economic infrastructure in the regularization plans. In practical words, there is not so much use of preparation of regularization plans, but process has to be continued in the hope that the system of development of urban spaces in unauthorized regularized colonies would improve. (ii)

The pace of unauthorized construction never slackened and in the following five years (1962-67) 101 new unauthorized colonies sprang up for which the Government gave a green signal to regularize them in 1969.

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(iii)

During 1967-74, Delhi witnessed an increase of another 260 unauthorised colonies. Considering this aspect, the Government appointed a committee on 26 August, 1974 to study the problems of unauthrised colonies in Delhi under the chairmanship of the Secretary, the then Ministry of Works and Housing (now Ministry of Urban Development), with the Vice-Chairman, DDA, as Member-Secretary and the Commissioner, MCD, as member. In 1974, after conducting various useful socio-economic surveys, the then Vice-Chairman, DDA, submitted a report to the Ministry of Works and Housing,

(iv)

On the basis of the above report, a policy was formulated by the then Ministry of Works & Housing (now Ministry of Urban Development) and declared in February 1977 which is being implemented even now-a-days. This policy has the following salient features: (a) Both residential and commercial structures would be considered for regularization subject to cut off dates and keeping into consideration the provisions of physical infrastructure and community facilities; (b) Structures will be regularized after fitting them in a lay out plan, that is, after keeping spaces for roads, infrastructure and community facilities. (c) Development charges will be paid by the beneficiaries according to rules to be laid down by the DDA & the MCD; (d) Displaced families will be rehabilitated in a manner to be detailed out by the government; (e) Colonies which are in non-conforming land use of the Master Plan will also be considered for regularization and would be regularized subject to planning principles and norms; (f) Colonies, which were notified for acquisition of land, will also be considered for regularization; (g) Colonies, which were regularized earlier, but sites earmarked for community facilities in those colonies are not available due to encroachments, would again be considered for regularization; (h) This entire process will be applicable to both residential and commercial structures also situated within and outside the ‘Lal Dora’ of urban and rural villages; (i) This policy is not applicable for regularization of industrial structures including warehousing and godowns. From the above policy, it is clear that regularization will be considered of all the colonies situated in the National Capital Territory of Delhi, irrespective of their date of origin, but before 30 June, 1977 in the case of residential structures and 30 March, 1977 in the case of commercial structures; location and status of land; land use; inside or outside of the ‘Lal Dora’ of all the villages or in designated slum areas.

(v)

The number of unauthorized colonies as on 31 December, 1983 were as under: (a) 155 in development areas under Section-12(i) of Delhi Development Act of the DDA, including some colonies in slum-designated areas; (b) 66 extensions of urban villages concerning to DDA; (c) 33 colonies falling in designated slum areas; (d) 452 colonies in the jurisdiction of the Municipal Corporation of Delhi; (e) 30 extensions of villages falling in the jurisdiction of the Municipal Corporation of Delhi; (f) In all there were 736 unauthorised 454 R.G. GUPTA -–1995 www.rgplan.org

colonies up to 1983. Later many more new unauthorised colonies came up in different parts of Delhi. The population in these colonies which were in an extent of 4500 hectares in 1983 was about 1.2 million. The cost of development of these colonies was about Rs. 3.2 billion at the 1983 price level. If there colonies are properly planned and developed with physical and social infrastructure, then they will provide 240,000 Dwelling Units with less efforts of the Government and public sector than usual, because a major share of the funds would be of the beneficiaries, and a sizeable infrastructure is already in existence.

38.1

Regularisation of Unauthorised Colonies

38.1.1 Definition: Regularisation does not mean only the preparation, finalization and approval of the regularization plan of an unauthorized colony on paper; but it also includes the following components activities: (i) Acquisition of land for physical, social and economic infrastructure, as well as for circulation system. (ii) Acquisition of other vacant plots, if any, under the scheme of ‘LargeScale Acquisition, Development and Disposal’, and use these plots for alternative allotment to affected parties in the scheme, after replanning and redevelopment of these vacant plots. (iii) Internal development of the colonies in terms of physical infrastructure i.e. water lines, sewer lines, storm water drains, electric lines, roads, service roads, leveling and dressing of sites of social infrastructure, including recreational places. (iv) Peripheral development in terms of physical infrastructure and circulation system. (v) Construction of some of the buildings of social infrastructure, especially for education and health. Other sites of social infrastructure may be fenced or bounded by compound walls to protect them from encroachments. (vi) Construction of physical infrastructure at macro level i.e water, sewer, power, storm water drains, trunk lines by the ‘Delhi Water Supply and Sewage Disposal Undertaking (DWS & SDU) Delhi Electric Supply Undertaking (D.E.S.U.), Irrigation and Flood Department (IFD) Delhi Govt. circulation system by the General Wing of the Municipal Corporation of Delhi and the Public Works Department (P.W.D.), Delhi Govt. These activities should be funded from the plan funds of Delhi i.e. with public funds. (vii) Collection of development charges, after modification of Section 35 and 40 of the Delhi Development Act. 1957 and Section 113 of the Delhi Municipal Corporation Act, 1957; Development charges should be collected as arrears of land revenue. (viii) To permit building activities in these colonies after formulating and passing special building bye-laws for them. 455 R.G. GUPTA -–1995 www.rgplan.org

(ix)

(x) (xi)

Disposal of commercial sites and other sites by auction, so that surpluses from these sites could be used for the purpose of subsidies for social infrastructure and housing for rehabilitation of economically weaker section of the society. Protection of land from further encroachments. Creation of awareness in the minds of people not to permit further unauthorized construction in the colony. This aim can be achieved with the help of constituted cooperative societies with the assistance of nongovernment organizations.

38.1.2 Post-Regularisation Development Action Once a colony is planned, regularized and developed, then the main responsibility falls on the residents of the area for – (i) maintenance of the colony; and (ii) stopping and controlling further unauthorized construction. For these two activities with the help of Non-Government Organisations, cooperative societies should be constituted and formed. These duly registered societies would be helpful even in planning and development of the colony. They would, however, be principally responsible for the maintenance of the colony as well as to check and control further unauthorized constructions. 38.2

Socio-Economic Characteristics of Unauthorised Colonies In 1974-75 while formulating the policy for regularization of unauthorized colonies, a survey of 471 unauthorised colonies was conducted and got the following important results:

38.2.1 Type of Structure Table 38.1: Types of structures in unauthorized colonies (i) (ii) (iii) (iv) (v) (vi)

Permanent structures 58,973 Semi-permanent structures 39,529 Temporary structures 24,432 Structures up to plinth level or plots having boundary 5,708 walls Fake structures with religious colour or otherwise 5,813 Vacant plots 7,545 Total 1,42,000

41.53% 27.83% 17.20% 4.02% 4.09% 5.33% 100.00

38.2.2 Existing Land Use of 471 Unauthorised Colonies in 1974-75 was as under Table 38.2: Existing landuse of 471 unauthorised colonies Landuse

%age of total no. of 456 R.G. GUPTA -–1995 www.rgplan.org

(i) (ii) (iii) (iv) (v) (vi) (vii)

Residential use Commercial use Residential-cum-commercial use Industrial-cum-residential use Industrial use Religious use Miscellaneous Total

structures 83.0 2.0 7.0 2.0 1.0 0.5 4.5 100.0

38.2.3 Type of Unauthorised Colonies Unauthorised regularized colonies are of different types and can be divided into the following 10 categories, based on experiences of colonies of Delhi. (i) Good colonies: These colonies have better physical, social and circulation infrastructure. In this category colonies are Sant Nagar, Hari Nagar, Shiv Nagar, Virender Nagar etc. Most of these colonies are before the commencement of the Delhi Mater Plan – 1962. (ii) Fair colonies: These are fair in terms of width of roads, physical infrastructure and practically non-existence of community facilities. In this category, colonies are Gobindpuri, Gonda, Maujpur, Usmanpur etc. (iii) Poorest colonies: Most of the colonies of this category are in designated slum areas notified under the Slum Act, 1956. Names are Bapa Nagar, Amrit Kaur Puri, Gobind Garh, Khalsa Nagar, Khajan Basti etc. In these colonies, 25% of the plots are of less than 21 sq.mt. i.e. smaller than a shanty/jhuggi plot. Physical and social infrastructure in these colonies is much less than tolerable and minimum standard. For example, in Bapa Nagar and Amrit Kaur Puri, percentage of social infrastructure including parks, playground and open spaces, is hardly 3.5. (iv) Colonies in slum designated areas: In this category, as per 1980 surveys, there were 45 colonies which are better than the colonies given in category (iii). (v) Colonies on Government land: There are many colonies, or part of colonies on finally acquired government land. Such colonies are mostly in Trans-Yamuna Area and are of different characteristics. These have more or less been regularized. (vi) Large colonies in agricultural green belt or in rural use: The names are Palam Complex, Nangloi Jat Extension etc. These colonies are bigger than medium size towns and have population between 30000 to 50000, and should be dealt with at the zonal plan level as well as detailed plan level. (vii) Small colonies in agricultural green belt or in rural use zone: These colonies were small with built-up structure hardly in 30% of the area, of the colony, and, as such, did not qualify for regularization. In 1980, these colonies were 40 in numbers. 457 R.G. GUPTA -–1995 www.rgplan.org

(viii)

(ix)

(x)

38.3

There are some colonies though in existence prior to June 1977, yet did not qualify for regularization, as at that time these were having only scattered structures and it was not possible to prepare plans of these. Names of such colonies are Chajjupur, Kabir Nagar, Sanjay Nagar, Monindru Park etc. Many colonies came up after June 1977 either as independent colonies or by the names of extensions of old colonies: These colonies are Harijan Basti (part of Shakarpur), Ashok Nagar (part of Nathu Colony), Ganesh Nagar South, Pandav Nagar Block, Joshi Mohall, Mandavali Block C, Vinod Nagar Block A, D and E, New Ashok Nagar in the south of Hindon Cut, Farukhi Enclave etc. These colonies were not regularized as they came after the cut date for regularization. Four colonies came on the lands allotted to plotted cooperative house building societies, all in Trans-Yamuna Area. Their names are – (a) Part of Krishan Kunj; (b) Vir Sarvarkar Block; (c) Part of East Guru Angad Nagar and (d) Part of Ganga Vihar. All these came up on the lands already allotted to plotted cooperative house building societies.

Problems of Unauthorised and Unauthorised – Regularised Colonies (i)

1992 – High Courts Orders: Physical and financial dimensions of unauthorized and unauthorized regularized colonies are gigantic. Dimensions have increased to such an extent that on 27 July, 1992, High Court of Delhi Passed an order for Delhi Admn., Municipal Corporation of Delhi and Delhi Development Authority to stop encroachments – extracts as appeared in The Hindustan Times is as under: ‘The High Court has asked the Delhi Administration to prepared concrete proposals to protect public property from encroachment to stop encroachment so that ‘living in Delhi does not become a health hazard’. Justice B.N. Kirpal and Justice P.K. Bahri asked the administration to inform the court within three weeks about the measures proposed to be taken to protect public land and the time frame for the implementation of such proposals. They passed directions on a petition filed by South Extension Part II Welfare Association about various illegal construction activities in the area. The judges expressed their annoyance with the municipal authorities in letting such constructions take place. ‘Practically every day, we are inundated with writ petitions’, they said, ‘bringing to our notice and asking for relief to the effect that large scale unauthorized construction is taking place along with encroachment on public land’. ‘It is difficult to believe that this is happening without the knowledge, if not connivance, of the municipal authorities. Such illegal acts are not done overnight. It is over a period of time that unauthorized construction is raised’, the judges said. They said the administration’s only reply has been that they have passed demolition order, ‘but no further action is being taken. A large 458 R.G. GUPTA -–1995 www.rgplan.org

number of buildings are under order unauthorized used’, the judges said. ‘Every petitioner who has come to the court has contended that it is becoming difficult for the law abiding people to stay here. The city seems to be taken over by groups of people or professionals who have no regard for law and who obviously believe in the maxim that there is no law for the rich’, they noted. They said they were aware of the fact there was a large influx of people to the metropolitan cities, ‘but it has to be realized that the whole of India cannot physically be accommodated in Delhi. Two types of steps have to be taken in order to prevent the whole of Delhi becoming one big slum’, they said. They suggested that first of all, preventive steps should be taken in order to dissuade or make it impossible for unauthorized construction and illegal encroachment to take place. Secondly, corrective steps have to be taken to rectify the illegalities which have taken place till now. The judges observed that though the municipal authorities have passed demolition order in several cases, they haven’t issued sealing orders. We would have expected that the sealing orders would have been passed long before demolition orders were passed. A sealing order is in the nature of a prohibitory order restraining the carrying on of any illegal construction or illegal use of the premises, the judges said. The next date of hearing is August 31, 1992. (ii)

1983 Estimates As per 1983 estimates, these colonies were in 4500 hect. with about 1.2 million population requiring an expenditure of Rs. 3.2 billion as per estimates of that time. Now, the number of structures, families, population and expenditure have increased to two to three times. Even if the problems are now understood, then also, there can be some control on further growth of unauthorized construction and unauthorized colonies. It should not be forgotten that there is a big gap between demand and supply of urban spaces. As such, people go for construction of houses in unauthorized colonies. As per estimates given in the 8th Five Year Plan of Delhi, by the end of March 1997, there would be a gap of 825,000 housing units. This position has been explained in Chapter 18 under the caption ‘ Housing in Delhi’.

(iii)

Typical Problems: However, the following problems should be noted and considered while formulating new policies of regularization of unauthorized colonies: (a)

Day by Day, the level of physical and social infrastructure in these colonies is going down due to continuing increase in population without increase in the same proportion, physical and social infrastructure. 459 R.G. GUPTA -–1995 www.rgplan.org

(b)

Shifting the cut of dated again and again creates problems with negative results and consequences. Everyone knows that it is not possible to stick to a particular fixed date and therefore, a new cut of date is fixed. Would it not be better if no cut of date is fixed and all the existing unauthorized colonies are regularized with speed within one year and further unauthorized construction is not permitted and recognized?

(c)

Collection of development charges has not only become difficult but rather impossible. The following are the main points on this important subject which is the crux of development of unauthorized regularized colonies. The Delhi Development Act, 1957 and the Municipal Corporation Act, 1957 should be modified to facilitate collection of development charges. Development charges should be collected as arrears of Land revenue; Development Charges should be collected simultaneously with the development of physical infrastructure in these colonies. There should be a separate account with respect to development of unauthorized colonies. All the receipts and expenditures should be booked into it. Surpluses from the disposal of commercial sites should be used as subsidy for provision of sites for social infrastructure and construction of buildings on them. Colonies which have come up on Government land and have to be regularized in keeping with the Government orders, should be undertaken, only after the collection of premium from beneficiaries on the pattern decided by the Government. Heavy damages should be charged from persons who are misusing Government land and such sites should be got vacated and used for the purpose as shown in the approved layout plans.

• • • •





(d) •

• •

Acquisition of land for the purpose of physical and social infrastructure is also a difficult problem. Some of the important points are given below: Pockets earmarked for physical or social infrastructure should be acquired immediately, may be at any cost, under the policy of large scale acquisition, development and disposal of land and Land Acquisition Act, 1984. To make acquisition successful, alternative development plots or built up spaces, according to norms, should be allotted to the affected units in the scheme. Pockets required for essential physical infrastructure i.e. water lines, sewer lines, storm water drains, power lines, roads etc. should be acquired compulsorily even by modifying the Land Acquisition Act, if required. 460 R.G. GUPTA -–1995 www.rgplan.org

38.4

(e)

Public participation: A Government Authority alone cannot plan, develop and construct urban spaces in unauthorized regularized or unauthorized colonies. It is essential to involve the public from the very beginning in planning, development and construction of buildings of social infrastructure. For this, cooperative societies with the help of non-govt. Organisations should be constituted. These societies would involve themselves from the very beginning in conducting physical surveys and preparing and submitting the draft plan to the Delhi Development Authority for approval, inviting objections and suggestions and finalizing the plan, in addition to demarcation of land on the site, acquisition of land required for physical and social infrastructure and finally to protect the colony from further encroachments and unauthorized constructions.

(f)

Planning, development or regularization and construction of a colony does not have any meaning if the colony is not properly maintained. Maintenance of various components by a public agency is difficult till people at large living there involve themselves by forming cooperative house building societies and doing the job.

(g)

It has also been experienced that development of colonies or construction of urban spaces for social infrastructure should not only be with public authorities, private sector should also be involved, but in a controlled way.

Issues and Recommendations Various issues have been identified and divided into following five categories. Recommendations about each have also been given.

38.4.1 Physical Planning Issues and Recommendations (i)

While conducting physical surveys either by the departments or by surveying agencies, following features should be shown. (a) Lands use; (b) Density in terms of persons per hect., Dwelling Units per hect.; (c) Ownership of land; private, government, under acquisition, power of attorney etc.; (d) Origin of construction, before 1962, during 1962-67, during 1967-77 or after June, 1977; (e) Type of social infrastructure; (f) Type of physical infrastructure; water lines, sewer lines, electricity and storm water drains; (g) Roads and service roads.

(ii)

Formulation of norms and standards for physical, social, economic and circulation infrastructure in terms of sizes. Norms for social infrastructure as approved by DDA has been give in Appendix 38.1.

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(iii)

Study of physical indicators, namely, street light, street furniture, naming and numbering of streets, geometric of networks, improvement of footpaths, railings, zebra crossings, pedestrian subways, overhead bridges etc., road side plantation, tree guards, parking of different modes of vehicles, lighting at intersections, blinders, guide map at important locations, public conveniences, dustbins, dhalao, bus queue shelters, telephone booths, landscape features, planning of thick shady trees along nallahs, railways lines, electric high tension lines, pylons etc., drainage of stagnant water places, proper parks, playgrounds and open spaces.

38.4.2

Financial Planning Issues and Recommendations (i) There should be firm determination on the following points: (a) Cut of date; once if it is fixed, then should not be extended; (b) Development of all colonies have to be from private funds i.e. from beneficiaries with on subsidy from the Government side except that loans can be provided initially but to be returned later on; (c) All the colonies should be on leasehold and not freehold basis; (d) Development charges should be in relation to land use, size of plot, status of the beneficiary etc. For example, a commercial use may be charged at double the amount of residential use. (ii) Development charges should be collected as arrears of land revenue and would be better if it is taken in installments. (iii) To start with the development of a colony, initially the amount may be taken as a seed capital or revolving fund from the government and returned back after development as per terms and conditions to be decided. (iv) The present day financial involvement for planning, development and construction is to the extent of Rs. 6 to 7 billion. It would be better and necessary to have an independent department with DDA or MCD for the planning and development of these colonies.

38.4.3

Legal Issues and Recommendations The problem has been discussed in Chapter 23 (‘Urban Land Policy’) with regard to – (i) modifications in Delhi Development Act; (ii) modifications in the Municipal Corporation of Delhi Act; (iii) modification in the Nazul-II Rules; and (iv) modification in the Land Acquisition Act.

38.4.4

Land Policy Issues and Recommendations It is the most important matter and instrument with the help of which unauthorized construction can be checked, and controlled and is used in their regularization. Though in the last three decades, no development authority or municipal corporation is able to control and 462 R.G. GUPTA -–1995 www.rgplan.org

stop unauthorized construction, yet if the following points are given due importance and weightage and decisions taken accordingly, then the problem can be solved to a great extent. (i) Decision about cut of date. (ii) Leasehold or freehold. (iii) Physical surveys and preparation of base maps. (iv) Land ownership maps by superimposing revenue maps and physical survey maps. (v) Privatization of planning and development of unauthorized regularized colonies, of course, with the help of non-govt. organizations and cooperative house building societies. (vi) Charging of full premium if a structure is regularized on government land. (vii) Revision with regard to norms of social infrastructure for education, health, security, justice, recreation etc. For this, in 1985, the DDA had approved norms which are given in Appendix 38.1. (viii) Minimum and maximum size of a residential unit in such colonies. (ix) Modifications in various Acts, namely, the Land Acquisition Act of 1894/1985, the Delhi Development Act 1957, the Municipal Corporation Act, 1957. (x) Modifications in the scheme of large-scale acquisition, development and disposal of land. 38.4.5

Miscellaneous Issues and Recommendations People’s participation is a must for different activities involved in planning, development and construction of urban spaces in these colonies. Activities are – (i) conducting physical surveys, (ii) preparation of draft plans, (iii) finalization and implementation of plans and (iv) maintenance of colonies. So far, the Government and Delhi Development Authority has not involved private sector/beneficiaries who live in unauthorized colonies. As such, the policy of development of unauthorized colonies remained partially successful. The solution is to involve private sector and full people’s participation by making cooperative societies with the help of non-government organizations.

38.5

Financial Planning The Delhi Development Authority (DDA) had prepared plans of hundreds of unauthorized colonies, modified and revised them from time to time, but no proper financial planning had been done till the 1970s. In 1981, the DDA prepared a financial plan with the proposal to finance the project with the help of 50% grant from Government and the balance 50% from the beneficiaries. But the plan was not implemented, as the Ministry of works and Housing considered the matter and finally in 1983, it was clarified that no grant would be given 463 R.G. GUPTA -–1995 www.rgplan.org

for the implementation of the projects and development had to be undertaken with the help of loans. Accordingly a new plan was worked out in 1983-84. In 1980, total cost of development of all the colonies which were in 4000 hect. was Rs. 1599 million with following rates of development of different items: Item Rate in Rs. Per sq.mt. - Sewerage 6.05 - Water supply 5.17 - Peripheral services 11.11 - Roads and paths 5.6 - Storm water drains and culverts 4.82 - Horticulture works 3.0 - Dustbins, milk booths etc. 1.52 - Grill fencing for parks 2.70 - Electrification 10.00 Total – Rs. 50 per sq.mt. on gross area.

Taking 55% plotted area in unauthorized regularized colonies, cost per sq.mt. on net plot area was Rs. 90 per sq.mt. As the cost per sq. mt. was very high, The entire project was divided into three phases for the purpose of development and for the collection of development charges, into 5-6 phases/installments. However, the scheme did not get implemented and within 3 to 4 years, financial plan was again worked out and is given in the following paragraph. 38.5.1

Collection of Development Charges The Legal Department of the Delhi Development Authority examined Sections 37 to 40 of the Delhi Development Act and came to the conclusion that some action could be taken under these sections after getting the Act suitably modified as given under: Section 37, 38 and 40 (Power of Authority to levy betterment charges, assessment and collection). As per these sections, betterment charges can be collected after a work is done in any area. In Delhi, there are more than 1000 unauthorized and unauthorized regularized colonies spread out in an area of about 5000 hect. with a population of about 1.5 million. Firstly, it is not possible to develop these colonies and then to collect betterment or development charges. As such, there should be a modification in the Act that development charges can be collected simultaneously with the development works and if are not paid, then can be taken as arrears of land revenue.

38.5.2

Charging of premium (i) The DDA, vide its resolution No. 116, dated 26 October 1979, 464 R.G. GUPTA -–1995 www.rgplan.org

resolved as under for the structures which were built upon in unauthorized regularized colonies on government lands, in trans yamuna area. This resolution later on was restricted to limited use. (a) Plots of land on which these structures are built may be allotted to individuals on leasehold basis. (b) Premium from these may be charged according to the slab given under. Properties which abut on the Master Plan roads may be charged a premium of Rs. 450 per sq. mt. • • • • • •

(ii)

(a)

Properties which abut on 18 mt. zonal plan roads may be charged a premium of Rs. 300 per sq.mt. Properties which abut on smaller roads may be charged a premium of Rs. 250 per sq.mt. Ground rent @ 2-5% be charged as usual. Premium may be charged in installments, taking 25% in the first installments and the balance in five equal yearly installments. For properties which are commercialized on government land, the economics would be worked out separately. Prossession of plots which are vacant or have boundary walls or structure up to the plinth level would be taken up immediately by the Delhi Govt. either for the use of community facilities or for alternative allotment.

Later on, the Group which was constituted by the Ministry of Works and Housing, vide its notification dated 29 May 1982, recommended for the recovery of premium as under: In the case of built up plots measuring up to 167 sq.mt., the premium may be recovered on predetermined rates prescribed under the scheme of Large Scale Acquisition, Development and Disposal of Land as on February 1977 less the element of development cost included in the said predetermined rates, plus the present development cost of unauthorized colony; (b) In the case of built up plots exceeding 167 sq.mt., the recovery may be made on predetermined market value prescribed by the Government as on February 1977, less the element of development cost included in it plus the present development cost of the unauthorized colony; (c) In the case of commercial structures, the premium may be recovered on predetermined market rates for commercial structures prescribed by the Government as on February 1977, less the element of development cost included in the said predetermined market rates plus the present development cost of the unauthorized commercial area; (d) Vacant plots/areas in unauthorized colonies situated on Government/acquired land should not be allowed to be encroached upon and built upon and efforts should be made to utilize and dispose them under the scheme for Large Scale Acquisition, Development and Disposal of Land in Delhi.

465 R.G. GUPTA -–1995 www.rgplan.org

(iii)

Finally, the Ministry of Works and Housing in June 1983 directed that vacant plots may be acquired under the scheme of Large Scale Acquisition, Development and Disposal of Land.

38.5.3 Financial Planning (1983-84) (i) Proposed Financial Plan: For a total expenditure of Rs. 2920 million required for all the services, including electrification, a loan of Rs. 600 million was proposed to be asked for, a moratorium period of 15 years at normal rate of interest of 8-3/4% per annum. Repayment of loan was in the last 3 years with a break up of Rs. 250 million, in the first years, Rs. 300 million in the second year and Rs. 397 million in the third year. These figures are based as per calculations made in 1983. Works of development and collection of development charges will be completed in 16 years. It was difficult to estimate escalation which was taking place all the time. Therefore, it was assumed that whatsoever escalation would be there, the same would be reflected and added to the development charges. (ii) • • •



(iii)

Type of activities and concerned agencies: Electrification by the DESU of all the colonies in the National Capital Territory of Delhi. Water supply and sewage disposal by ‘Water Supply and Sewage Disposal Undertaking’ in the entire National Capital Territory of Delhi. Construction of roads, service roads, development of sites of parks, playgrounds, and open spaces and development of sites for various community facilities by the DDA and the MCD, depending upon under whose jurisdiction a particular colony falls. Acquisition of land by the Delhi Govt. in all the colonies of the pockets which are required for the construction of physical and social infrastructure.

Amount of Development Charges: Taking the basis of 60% as plotted area and 40% for circulation and facilities, a total amount of Rs. 108.3 per sq.mt. was required with a break up of Rs. 58.3 per sq.mt. by the Water Supply and Sewage Disposal Undertaking and Rs. 50 per sq.mt. by the DDA or the MCD. Collection for electrification in these colonies was being done separately by the DESU.

Cash Flow Statements Cash Flow Statement for Development of Unauthorised Regularised Colonies

Year

Loan

Cumulati

Collection

Amount in Rs. Million Expenditur Cumulative Interest 466 R.G. GUPTA -–1995 www.rgplan.org

VITH PLAN 1984-85 VIITH PLAN 1985-86 1986-87 1987-88 1988-89 1989-90 VIIITH PLAN 1990-91 1991-92 1992-93 1993-94 1994-95 IXTH PLAN 1995-96 1996-97 1997-98 1998-99 1999-2000 Grand Total

ve Loan

from beneficiari es

e

expenditur e

@ 10% premiu m

50

-

20

70

70

7

50 50 50 50 50 250

100 150 200 250 300

80 80 100 120 120 500

130 130 150 170 170 750

200 330 480 650 820 100

10 15 20 25 30

60 60 60 60 60 300

360 420 480 540 66

140 140 160 160 180 780

200 200 220 220 240 1080

1020 1220 1440 1660 1900

36 42 48 54 60 240

600

-

300 300 300 400 672 1972 3272

300 400 325 1025 2925

2100 2200 -

347

Return of the loan will be in the last 3 years with a break up of Rs. 250 million, Rs. 300 million, and Rs. 397 million respectively in the years 1997-98, 1998-99, and 19992000. Mode of recovery from beneficiaries is proposed on the following pattern: (i) (ii)

DESU, as already in practice Water Supply and Sewage Disposal Undertaking, as already in practice at the rate of Rs 5 per sq. mt. per annum, till the entire recovery is made.

(iii)

General Wing of MCD/DDA, at the rate of Rs. 5 per sq.mt. per annum till the entire recovery is made.

Total Cost of the Project 467 R.G. GUPTA -–1995 www.rgplan.org

(i) (ii) (iii) (iv)

For electrification of all the colonies by DESU = Rs. 300 million For Water and sewage facilities by Water Supply and Sewage Disposal Undertaking = Rs. 1575 million @ Rs. 70 per sq.mt. For construction of roads, development of sites for parks and other facilities by DDA and MCD = Rs. 1350 million. Total = Rs. 3225 million

It is stated that while working out cash flow statement and economy of the project, expenditure to be made by DESU has been kept separately and the entire project report is based on a total expenditure of Rs. 2925 million only. 38.6

Landuse Analysis of some Unauthorised Regularised Colonies

Table 38.3: Landuse analysis of unauthorized regularized complexes in 1980s Sl. No. 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11.

Name of the colony LaxmiNagar Complex Shakarpur Complex Patparganj Complex Bhajanpura Complex Mauzpur Complex Brahampuri Complex Basti Bhikam Singh Zaffrabad Complex East of Loni Road Mauzpur Complex-II Usmanpur Complex

Total Area 140.82

Residential 74.60

Communit y Facilities 9.82

Commercial 2.42

Parks & Play Circulation ground 2.48 53.82

76.72 27.00 132.34

43.40 15.57 63.44

6.44 2.75 21.51

2.70 0.03 3.45

3.88 2.0 7.66

20.30 6.65 36.28

40.33 136.13

20.61 64.43

5.54 12.35

0.90 6.02

3.47 7.64

9.81 45.69

5.76 41.62 53.09 39.75 93.62

3.15 25.75 24.78 20.24 55.04

0.43 2.63 5.55 3.87 8.42

0.07 1.00 3.00 1.04 3.02

0.40 1.28 6.91 3.48 3.08

1.71 10.36 12.85 11.12 24.03

From the land use analysis of 11 group of colonies, no significant conclusion can be drawn.

468 R.G. GUPTA -–1995 www.rgplan.org

Appendix 38.1 Norms for Social Infrastructure Standards of Community Facilities adopted in unauthorized Regularised Colonies, as Approved by Delhi Development Authority and High Powered Implementation Body constituted by the Ministry of Urban Development. S. No.

Items

As proposed in the Master Plan 1962 (Area in hectares)

1.

2. Pre-Primary School Primary School High School Playgrounds and other spaces

3.

1. 2. 3. 4.

5. 6.

Desirable Standard for unauthorized colonies 4.

0.1 to 0.2 0.6 to 0.8 1.6 0.8

03. to 0.6 0.6 to 1.0 0.4 to 0.08

Local/Convenient 0.04 shopping Streets and 6 mt. to 13.5 mt. Roads of

0.4 6 mt. to 13.5 mt. 3 mt. to 5 mt 1000 One of 4000 sq. mt.

7.

Community Hall One plot and Library sq.mt.

8.

Health Centre

1000 sq. mt.

240 sq.mt.

9.

Post office

600 sq. mt.

240 sq.mt.

Remarks

5. Dropped One for 5000 One for 7500 Min. size 167 sq.mt. for 1000 pop. Per 1000 pop. For pedestrians 1 Min. of 167 sq.mt. for 15000 pop. One for 2200 pop. One for 2200 pop.

Minimum Community Facilities to be Provided in Unauthorised Regularised Colonies Population Range Up to 1000 1000 to 2500 2500 to 5000

Facilities to be provided

Open space and one convenient shopping centre Open space, community building, convenient shopping centre Open space, primary school, community building, local shopping centre and playground 5000 to 10000 Above facilities plus a senior secondary school 1000 to 15000 Above facilities plus health centre 15000 and As per Master Plan 1962 proposals. above 469 R.G. GUPTA -–1995 www.rgplan.org

Note: 1. Individual unauthorized colonies if does not have the population range as staged above, then it may be clubbed with adjoining colonies for the purpose of providing facilities. 2. Unauthorised colonies which cannot be clubbed together, then minimum facilities should be provided as stated above.

39 Housing by Urban Renewal Especially in the Walled City

39.0 39.1 39.2 39.3 39.4

39.0

Concept of Urban Renewal Background – A Case Study of the Walled City of Delhi Provisions with Regards to the Urban Renewal of the Walled City of Delhi as given in Master Plan of Delhi – 1962 Provisions with Regard to the Urban Renewal of the Walled City of Delhi as given in Master Plan of Delhi – 2001 Proposed System of Urban Renewal of the Walled City of Delhi

Concept of Urban Renewal Urban development, urban redevelopment and urban renewal have synonymity to a great extent. Urban development is the development of physical, social ecological and economical infrastructure with a proper circulation system for man, nature and society. Once an area is developed, it should be saved from – (i) non tolerable mixed land uses; (ii) excessive increase in residential an circulation density and intensity; and (iii) nonmaintenance of physical and social infrastructure; otherwise this new developed area would also need urban renewal very soon. Urban renewal should be seen with reference to improvements in the quality of life of the entire urban system which can be bifurcated into the following two distinct categories and 17 sub-categories in a Super metropolitan City – Delhi. Names and outlines of these categories and sub-categories are given under:

39.0.1.

Planned Colonies

In Delhi, 25% population live in colonies planned and developed by private colonizers, the Delhi Improvement Trust, the Ministries of Rehabilitation, the Ministry of Urban Development, the Delhi Development Authority, the various departments of Delhi Govt. the Municipal Corporation of Delhi, the New Delhi Municipal Committee, cooperative house building societies. All these colonies do not require any type of urban renewal, but proper maintenance of physical and social infrastructure; checking of water, air and noise pollution and control 470 R.G. GUPTA -–1995 www.rgplan.org

of traffic hazards, which if not done in a proper and balanced way, then in a period of 10-15 years, these colonies would also require urban renewal to a great extent. These colonies are of following types: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (ix) (x)

Approved colonies developed by private developers; Colonies developed by co-operative house building societies. Colonies developed and constructed by the government/semigovernment bodies for their employees, i.e. staff colonies. Colonies developed in Delhi by the Central Government during 191737 Colonies developed in Delhi by the Delhi Improvement Trust during 1937-57. Colonies developed by the Ministry of Rehabilitation after partition of the country in late forties and fifties. Institutional Housing constructed by various govt. and semigovernment departments Colonies developed for slum dwellers Colonies developed and constructed by the Delhi Development Authority Colonies developed and constructed by other Local Bodies, i.e. Municipal Corporation of Delhi, New Delhi Municipal Committee, Cantonment Board etc.

39.0.2 Sub-Standard Areas Details of these are given in respective chapters on various subjects. Here only outlines have been given. (i) (ii) (iii) (iv) (v) (vi) (vii)

Shanty clusters; Resettlement colonies; Unauthorized colonies; Unauthorized regularized colonies; Urban and rural villages; Slum designated areas; Pavement dwellers and nigh shelters.

(i)

Shanty Clusters: (a) Relocation and resettlement of shanty clusters; which are on project lands should be shifted after allotment of alternative developed urban spaces in terms of sites and services, on the basis of Hire Purchase Installment system. Details have been given in many chapters; (b) Environmental improvement programme; in shanty clusters; which are not going to be shifted in the next 10 years. In this programme it would be better, if shanties can be re-arranged/ readjusted there on the sites, then it would facilitate the provision of minimum physical infrastructure; (c) In/Around situ development and construction of urban spaces. This is with regard to development of small size of plots of 12.5 sq.mt. on the same site with construction up to plinth level. Structure would be constructed by beneficiaries. 471 R.G. GUPTA -–1995 www.rgplan.org

Details of this have been given in Chapter 32 (The quality of life); and (d) Urban Basic Services, as details given in Chapter 19. (ii)

Resettlement Colonies: In Delhi, mostly up to the 1970’s, 240,000 plots, each of 21 sq.mt., were allotted on the licence fee basis to squatter families with limited physical infrastructure on community basis, but with full social infrastructure on the then Master Plan norms. In these resettlement colonies, now substantial physical infrastructure is being provided with provisions of connections of services to each and every plot.

(iii)

Unauthorized Colonies: Hundreds of new unauthorized colonies have come up after June 1977 with about 0.5 million population. So far no policy for regularization, i.e. for preparation of physical and financial plans, has been announced for these new unauthorized colonies. Whenever urban renewal would be carried out, the following principles should be taken into consideration. • • • •

Areas for full physical infrastructure should be earmarked, acquired and developed by the concerned public service departments. Pockets for social infrastructure, at least on reduced norms, should be acquired, developed and constructed by the concerned public departments, like Directorate of Education etc. Cost of development of physical infrastructure and sites for social infrastructure in these colonies should be borne by the beneficiaries. No plot of more than 300 sq.mt. should be regularized but used for community facilities or rehabilitation of affected units by planned development of these colonies.

(iv)

Unauthorised Regularised Colonies: In Delhi, up to June 1977, there were 607 unauthorised colonies, most of them were regularized and are in the process of getting provision of physical and social infrastructure with a tolerable circulation system. Speed of provision in infrastructure is very slow and should be increased with the help of beneficiaries. Details have been given in Chapter 38 (Housing in Unauthorised Regularised Colonies)

(v)

Urban and Rural Villages: In Delhi, there are 369 villages with a breakup of 111 urban and 258 rural, as per 1981 census. These are mostly with organic pattern of roads and streets. Development of these settlements is going on since 1968 by the Municipal Corporation of Delhi (MCD) and the Delhi Development Authority (DDA) with Plan funds of Delhi Govt. Urban renewal of all these settlements is a must, otherwise these will become slums of the next century. For example, in village Peeran Garhi (West Delhi), 80% of the village structures have nuisance and noxious industries creating different types of pollutions. 472 R.G. GUPTA -–1995 www.rgplan.org

Details have been given in Chatper-35 and 36 (Housing in Urban Villages and Housing in Rural Settlements). (vi)

Slum-Designated Areas: In Delhi, there is about 2000 hect. of area in this category. All these areas require proper urban renewal. As per the studies conducted in 1962 with relation to Master Plan – 62, Slum Areas were divided into the following three categories as shown in Map 39.1. • • •

Areas which require conservation Areas which require rehabilitation Areas which require redevelopment

: : :

523 hect. (29%) 656 hect. (31%) 704 hect. (40%)

Now the situation is worse than in 1962, and more areas require redevelopment and rehabilitation because intensity of land use has increased two to three times and thousands of non-conforming and incompatible uses have been added up and are being added up. (vii)

Pavement dwellers and nigh shelters: necessary of taking serious action.

On this subject, there is

39.0.3 Urban Renewal as Defined in the Master Plans (i)

In Delhi Master Plan-1962: The concept of urban renewal envisaged a positive programme of action for achieving better living conditions for the people and broader and more specific goal of integrating new growth with comprehensive planning and reconstruction. Its aim is to energise and revitalize the urban environment by injecting into it such elements as are necessary for its proper functioning. The process ultimately involves the whole pattern of population distribution and coordinated layout and expansion of the city. Urban renewal operates to shape the urban structure so that all human activities may take place in environments conductive to their proper functioning and in harmony with other activities- all within human possibility, comprehensive and dignity. It is thus not merely a physical operation but a major socioeconomic one involving the people, their ways of life and encompassing the political, social and economic aspirations of the community. It is much more comprehensive than slum clearance and implies the rectification of past mistakes and focusing attention on the redevelopment of physically and socially deteriorated areas. On the other hand, slum clearance is negative in its approach. At best, it is a part of the urban renewal programme.

(ii) In Delhi Master Plan-2001: The urban renewal scheme should be prepared 473 R.G. GUPTA -–1995 www.rgplan.org

based on – (a) land use; (b) physical conditions of the structure; (c) facilities and services; (d) circulation pattern; (e) open spaces, parks and playgrounds; and (f) special features, if any. These plans should indicate – (i) clearance areas to be acquired; (ii) population distribution; (iii) proposed land use; (iv) proposed circulation system; (v) location/ upgradation of facilities and servies, and (vi) recreational areas. 39.1

Background – A Case Study of Walled City of Delhi Three and a half centuries ago, Emperor Shahjahan developed the city named Shahjahanabad for a population of 60,000 in an area of 600 hect. at an overall density of 100 persons per hect. Now the system and structure of the Walled City has seven times of residential population, 100 times of commercial population and 1000 times of vehicular population and unlimited pollution. The Walled City, though small in size, deals in wholesale bulky commercial activities, noxious and obnoxious and polluting industries with all types of mixed land uses. These complex and complicated problems were never envisaged when the city was planned and constructed initially. Some of the noteable changes in the last three decades are as under: (i) Decrease in residential population from 4,20,000 in 1961 to 3,50,000 in 1981 and by the end of the century, it may come down to 2,50,000. (ii) Decrease in residential area from 300 hect. in 1961 to 180 hect. in 1981 and it may come down to 150 hect. by the end of the century. (iii) Increase in number of shops and commercial establishments from 62035 in 1961 to 1,55,000 in 1982 and is expected to increase to 2,00,000 by the end of the century, i.e. by more than three times. (iv) Increase in employment in commercial sector from 62,000 in 1961 to 3,50,000 in 1982 i.e. by more than five times. (v) Percentage of commercial use which is 14% is very high against 4-6% generally in other colonies. (vi) Besides the above noteable changes, the Walled City of Delhi is characterized by the following problems: (a) 868 are polluting industrial units; (b) 30% of the houses have no separate kitchen; (c) 55% of the houses have no separate bathrooms (d) 60% of the houses have no flush latrines; (e) 70%of the houses have no separate store; (f) 23% of the houses have no potable water supply; (g) 50% of the houses have only one room; (h) 33% of the houses have only two rooms; (i) 55% are tenants, 60% of them pay a rent of less than Rs. 23 p.m. and only 5% pay a rent of Rs. 100 or more per month.

39.2

Provisions with Regard to the Urban Renewal of Walled City as given in the Master Plan of Delhi 1962 (i) (ii)

Residential densities in the heart of the City should be rationalized. Residential areas should be protected from the invasion of nonresidential uses and should be free from nuisance. 474 R.G. GUPTA -–1995 www.rgplan.org

(iii) (iv)

(v)

(vi) (vii)

(viii) (ix) (x)

(xi) (xii)

(xiii)

(xiv)

39.3

The existing Central Business District in the Walled City must be made more functional. Large-scale clearance and reconstruction may not be possible in the immediate future, so only widening of some of the more crucial roads has been proposed to facilitate easier flow of traffic. Vacant plots as well as dilapidated structures will have to be acquired and the minimum amount of community facilities like schools, parks, health centres will have to be built for a gross residential density of 625 persons per hect. Village like trades and industries will also be moved out of the City to urban villages on the peripheries. New Daryaganj which has been developed at a density of 500 persons per hect, needs conservative measures to preserve its good residential character. Proposed r/w of important roads should be achieved. All the non-conforming land uses, specialy bulky trades and industries should be shifted. Any non-conforming buildings or structures which are damaged to an extent exceeding 50% of its reproduction value may not be restored, reconstructed and used for any other purpose than a purpose permitted in the Master Plan. Built-up residential areas are permitted only two-storeyed structures. FAR coverage etc. for the already built-up commercial areas are permitted 80% coverage on the ground floor, 70% on the first floor and 50% on other floors subject to a maximum limit of 300 Parking standards for various types of commercial activities at the rate of 1.14 car space per 92.9 sq.mt. for commercial offices, 2.28 car spaces per 92.9 sq.mt., for retail trade, cinemas and hotels. Sizes of plots for social infrastructure for education, health, recreation, social security and social justice are given on sliding scale.

Provisions with Regard to the Urban Renewal of the Walled City as given in Master Plan of Delhi - 2001 • (i) (ii) (iii)

Conservation, revitalization and environmental improvement in built-up areas. For this, the following seven steps are proposed: Shifting and delimitation of non-residential activities. Upgrading of physical and social infrastructure Traffic and transportation management and regulation by the following (a) Reintroduction of moderate capacity rail based mass transport system. (b) Buses and motor cars can be allowed only on major roads and not inside the Walled City, (c) Prohibition of heavy goods vehicles, (d) Development of two goods terminals, one at Mori Gate and the second at Ajmeri Gate.

(iv) Conservation and restoration of historical buildings: There are 411 historical 475 R.G. GUPTA -–1995 www.rgplan.org

(v)

(vi) (vii)

• •

39.4

monuments. Out of these only 42 are protected and should be treated and conserved suitably. Revitalisation of residential areas: Out of 568 hect., 180 hect. is under residential use, out of which 145 hect. is of organic residential character. The following guidelines have been provided for dealing with these organic areas: (a) Predominant land use of this area is residential, (b) The noxious industries and hazardous trades should be shifted within a maximum period of five years, (c) Spaces got vacated should be used for compatible uses, (d) The public and semi-public uses shall be retained in their present locations, (e) Maximum ground coverage and FAR shall be the same as for residential units on plotted development, (f) The street width in front of the plot shall be left on the basis of urban renewal scheme, (g) The buildings shall be permitted to be constructed practically in the same form and style as the existing ones, as far as possible. Urban Renewal Scheme, as defined in para-39.0.4. In Master Plan of Delhi – 2001, mixed use regulations have also been envisaged with the commercial activity only on the ground floor to the extent of 25% or 50 sq.mt., whichever is less, and to be run only by the residents of the dwelling units. In this new system, the following activities shall not be allowed: (a) Retail shops: Building materials (timber, timber products, marble, iron and steel and sand), firewood, coal, (b) Repair Shops: Automobile repairs and workshops; cycle rickshaw repairs, tyre resorting and retreading and battery charging, (c) Service Shops: Flour mills (more than 3 KW power load), fabrication and welding, Nursing Home, Guest House, Boarding House and Lodging House, storage godown and warehousing, manufacturing units (excluding household industries), junk shop. Due to conversion of use activity, a conversion fee shall be charged from the beneficiaries. This would be based on: Cost of provision of parking and physical and social infrastructure Differential price of space for residential and non-residential activity/use.

Proposed System of Urban Renewal of the Walled City of Delhi Urban renewal of the Walled City or any slum area should be prepared in a comprehensive and integrated way based on the result of matrices of the following 10 components.

(i) (ii) (iii) (iv)

Traffic and Transportation system; Preservation/conservation of historical monuments, religious structures, streets and places of architectural importance. Reduction in pollution and shifting of bulk trade, obnoxious and polluting industries. Provision of public and semi-public facilities. 476 R.G. GUPTA -–1995 www.rgplan.org

(v) (vi) (vii) (viii) (ix) (x)

Decisions on some important policy matters. Tenurial rights and land ownership system. Hidden economic forces. Mixed land uses Creation of an Authority Funding from public, private and cooperative sectors.

39.4.1 Traffic and Transportation System (i)

(ii)

Report prepared by NATPAC: The National Transportation Planning and Research Centre (NATPAC), in February 1988 produced a comprehensive report based on the latest data. This report has surveys on – (a) traffic volume; (b) speed and delay studies; (c) parking surveys; (d) O&D surveys; (e) pedestrian surveys and (f) road inventory. All these components have been described in brief. Type of surveys conducted: (a) Traffic volume, speed and delay studies were conducted of all arteries of the Walled City, (b) Parking surveys were conducted on points, namely, Red Fort, Meena Bazar, Ram Lila Ground, Ajmeri Gate, Lajpat Rai Market, Asaf Ali Road (Near Delhi Gate) Church Mission Road (Lot-I & Lot-II) Mori Gate (Nicholson Road) Delite Cinema, Gandhi Maidan, Kashmiri Gate, Old Delhi Railway Station Esplanade Road. Details of these have been given in Appendix 39.1; (c) O & D surveys were conducted at 26 points including five outer cordon points, namely- Delhi Gate, Luthian Bridge, Ajmeri Gate, Lahori Gate and ISBT. Results of the surveys have been given in para-iii; (d) Pedestrian surveys have also been conducted on 17 roads at different points and found that on the following 11 points roads underpasses are required as details given in Table 39.1.

Table 39.1: Pedestrian volume along and across major roads during peak hours Sl. No.

Road Section

Pedestrian volumes along the road section during peak hour (both sides) (metre width)

1.

Netaji Subhash Road: From Delhi Gate to foot over bridge Ajmeri Gate-Khari Baoli Khari Baoli Peelikothi – S.P Mukherjee Marg H.C. Sen Road inter-section – C.M. Road C.M. Road intersection – Peelikothi Chandni Chowk Red Fort – Fountain

4500

Pedestrian crossing on the road section during peak hours (persons) 21

4300 4900

28 31

4800

22

4800

4

5000

20

2. 3. 4. 5. 6.

477 R.G. GUPTA -–1995 www.rgplan.org

7. 8.

Fountain – Town Hall Town Hall – Fatehpuri Mosque Jama Masjid – Nai Sarak Nai Sarak intersection – Hauz Khazi Bazaar Ajmeri Gate

9. 10. 11. (iii)

4800 4800

17 19

5100 5100

23 19

4000

16

Analysis and Results: Various, surveys were conducted and analysed with the following results: (a) 15 roads, namely, (i) Asaf Ali Road; (ii) Netaji Subhash Marg; (iii) Chandni Chowk; (iv) S.P.M. Marg; (v) Zorawar Singh Marg; (vi) Luthian Marg; (vii) Shardhanand Marg; (viii) New Daryaganj Road; (ix) Nai Sarak; (x) Bazar Ajmeri Gate Road; (xi) Chawri Bazar; (xii) Dr. H.C. Sen Marg; (xiii) Lal Kuan Bazar; (xiv) Sita Ram Bazar; and (xv) Machhli Bazar; were studied and analysed with reference to their length, light and heavy vehicles traffic volume during peak hours, average journey speed, pedestrian volume in critical stretches in peak hours, encroachments on footpaths etc. Based on these data, alignment plans of various roads should be prepared and implemented. (b) By analyzing origin and destination (O&D) survey data, it was found that the percentage of through daily traffic with regard to that particular mode is as under: • 3219 (24%) in the case of cars • 3970 (29%) in the case of auto-rickshaw • 6671 (27%) in the case of scooters and motor cycles The proposal is to divert through traffic on peripheral roads and not to congest internal roads of the Walled City. (c)

Four maps have been reproduced in the book with the help of NATPAC. Captions of these four maps are as under: • Map 39.2: Classification of road network by vehicular volume. • Map 39.3: Classification of road network by percentage of slow vehicles. • Map 39.4: Classification of road network by vehicular journey speed • Map 39.5: Classification of road/network by peak hour pedestrian Volume These four maps prove that there are 12 roads, namely, (i) Ring Road; (ii) Netaji Subhash Marg; (iii) Luthian Marg; (iv) S.P. Mukherjee Marg; (v) Asaf Ali Road; (vi) Chandni Chowk; (vii) New Darya Ganj Road; (viii) Bazar Ajmeri Gate-Chawri Bazar; (ix) Lal Kuan/Sita Ram Bazar; (x) Khari Baoli; (xi) Church Mission Road; and (xii) Shardhanand Marg, in order of priority, they need – (i) increase in width; (ii) making roads free 478 R.G. GUPTA -–1995 www.rgplan.org

from encroachments; (iii) to achieve journey speed not less than 15 km per hour on important roads, and between 10-15 km on other roads. (d) Options: A serious view has to be taken whether implementation of the above proposal is feasible, as it involves demolition of thousands of structures or; If the above is not feasible, then an underground metro should be constructed starting from Inter State Bus Terminus to Delhi Main Junction to New Delhi Railway Station, to Connaught Place and then finally to Central Secretariat. The route is 12 km and the cost of provision of Metro in this stretch will be Rs. 10 billion. 39.4.2 Preservation / Conservation of Historical Monuments, Structures, Streets and Places of Architectural Importance

Religious

It is necessary to identify – (i) the areas; (ii) the streets, and (iii) architectural features. The Municipal Corporation of Delhi did an exercise by taking the case example of the Kashmeri Gate Area and Maliwara Area. The Municipal Corporation of Delhi (MCD) concluded as under: • About 15% of the total area of the Walled City is under open spaces with encroachment at various places. Proper landscape plans of all the open areas should be prepared, implemented and maintained. • Old Havelis – large buildings, which are rich in architectural features, facades, balconies, projections etc. should be conserved and preserved. • In the Walled City, there are about 411 monuments and religious places. Proper controls around these should be worked out. For these, special building bye-laws should be evolved and enforced.

Photograph 39.1

These systems need a detailed exercise with regard to – (a) location – (i) areas; (ii) streets; and (iii) architectural features on a map, then (b) to work out surrounding influential areas of each; (c) to formulate special bye-laws for these areas and (d) the implementation of the same by the competent authority. One of the examples of renovation and restoration of historical monuments has been given in photograph 39.1 39.4.3 Reduction in Pollution and Shifting of Bulk trade and Obnoxious and Polluting Industries (i)

Reduction in pollution: Residents of Delhi are today exposed to some of the highest levels of air pollution in the country and perhaps the 479 R.G. GUPTA -–1995 www.rgplan.org

world. Details have been given in Chapter 47 (Pollution Control and Housing – Sub-Standard Areas). In the National Capital Territory of Delhi, Walled City is largely affected by pollutants due to Inter State Bus Terminus, Power Station, Delhi Main Junction, New Delhi Railway Station. There are also bulk trades/and polluting industries within the Walled City. (ii)

Wholesale Trades: The Delhi Development Authority (DDA) conducted surveys regarding location of wholesale shops in various zones of Delhi. Results are in Table 39.2

Table 39.2: No. of wholesale shops in 8 Planning Zones of Delhi Name of the zone A. B C D E F G H

No. of shops adjoining 6,977

Walled city and areas Karol bagh and adjoining areas Civil lines and adjoining areas New Delhi areas Trans-Yamuna areas South Delhi Areas West Delhi Areas North west Delhi Areas Total

Wholesale

880 2,698 55 768 105 493 51 12,027

Out of 12,027 wholesale shops, 58% were located in zone (A) (Walled City and adjoining areas). Number of wholesale shops in this complex was many times more than in other zones of Delhi. The number of wholesale shops distributed in various sub zones of the Planning Zone (A) has been given in map 39.6. 39.4.4 Provision of Public and Semi-Public Facilities There are 3,500 properties/katras/buildings known as evacuee properties being managed and controlled by the Slum Department. These evacuee properties were transferred by the Ministry of Rehabilitation under Slum Clearance Programme. These all are under Section 3 of the Slum Areas (Improvement and Clearance Act, 1956). In these properties, thousands of 480 R.G. GUPTA -–1995 www.rgplan.org

families are living as licencee/tenants with licence fee of about Rs. 2.5 per month. In the past 25 years, 800 properties / katras were acquired and the affected families were rehoused in tenements constructed under a scheme by the Slum Department Board. Location of these properties in different parts of the Walled City should be identified on detailed maps on a scale of 1:600 (Wilson Survey Sheets). Then action should be taken for earmarking different community facilities after going into the details of the circulation pattern, size of the property, ownership of the property and the catchment area to which the facility will serve.

39.4.5 Decisions on Some Important Policy Matters There are some difficult issues on which decisions cannot be taken by the DDA or other local bodies, but only by the Ministry of Urban Development and other Ministries. Some of the matters have been given below: (i) Termination of metre-gauge railway line from Ahmedabad to Delhi at Bharthal: Due to shifting of mereguage railway lines from the Main Delhi Railway Station, a lot of area would be vacated which can be used for the facilities for passengers. This will relieve congestion in the existing Main Delhi Railway Station. (ii) Opening of the second entry to the Delhi Main Junction from the Kashmere Gate side: For this, it is proposed to prepare a comprehensive project integrating Inter State Bus Terminus with a new railway station building to be constructed in the Delhi Engineering College compound and then linking it with the existing railway platforms with the help of a moving platform walkway at – 3 to 4 mt. level. The cost of the project is tremendous and as such a policy decision has to be taken by the Ministry of Urban Development and the Ministry of Railways and how to implement. (iii) Shifting of wholesale trade from the Walled City to either of the sites, namely – (a) Madanpur Khadar; (b) Holumbi Kalan; (c) Gazipur; Trans-Yamuna area and (d) Bharthal. A lot of economic forces are involved, so the decision should be taken after proper public participation on the subject. (iv) Construction of an underground railway corridor (Metro) connecting Inter State Bus Terminus with Delhi Main Junction, with New Delhi Railway Station with Connaught Place, and finally to the Central Secretariat is required. This requires huge investments and many Ministries are involved. (v) The use of Red Fort for cultural and social activities; For taking a decision, the Ministry of Defence has to be involved. (vi) Shifting of the Slaughter House from the periphery of the Walled City to outlying areas of Delhi; the Delhi Development Authority (DDA) is trying to settle the issue since last two decades, but is not successful, so decision at a higher level has to be taken. 481 R.G. GUPTA -–1995 www.rgplan.org

39.4.6 Tenurial Rights and Land Ownership System This is a complicated phenomena and problems can be solved with the help of the ‘Land Ownership Map’ to be prepared with the help of the computer system. 39.4.7 Hidden Economic Forces Since the last three decades, residential population in the Walled City is decreasing while commercial population is increasing, three to four times. The basic reason of this important phenomenon is ‘hidden economic forces’ which are controlling the disposal of real estates in the Walled City. For a small built up space of 10 sq. mt., a premium (pagri) of Rs. 2,00,000 to 3,00,000 is applicable. In these transactions, poor people sell their properties and go on the peripheral areas of Delhi to live. The vacated properties are used for the purpose of commercial use. Intensity of this phenomena is increasing day by day and if the trend continues then in a period of 30 to 40 years the entire Walled City shall be converted into commercial use, thereby creating congestion and strain on services. Social infrastructure can be provided only in government properties, because it is very difficult to acquire private properties where hidden economic forces are unlimited. 39.4.8 Mixed Land Use In MPD-2001, proposals have been formulated to permit mixed land use (details given in para 39.3).

39.4.9 Creation of an Authority An Authority should be created with full legal, planning and financial powers. Functions of this Authority will being with the acquisition of land for planned development of the Walled City, alternative allotment of residential, and commercial spaces to the affected parties; co-ordination, integration, evaluation and monitoring of various planning functions/ executions by different authorities. 39.4.10 Funding from Public, Private and Cooperative Sectors Cost of development and construction of urban spaces in the Walled City is very high, therefore it is necessary to use private and cooperative sector funds along with public funds.

482 R.G. GUPTA -–1995 www.rgplan.org

Appendix 39.1 Parking Surveys in the Walled City of Delhi Parking Lot

Capacity in equal car Spaces

Maximum accumulation of vehicles

Car

1. Red Fort

1600

2. Meena Bazar 3. Lajpat Rai Market 4. Asaf Ali Road (near Delhi Gate) 5. Ramlila Ground 6. Ajmeri Gate

110

7. Ajmeri Gate (for tempos) 8. Church Mission Road Lot-I 9. Church Mission Road Lot-II 10. Mori Gate (Nicholson Rd.) 11. Delite Cinema 12. Gandhi Maidan 13. Kashmere Gate 14. Old Delhi Railway Station 15. Esplanade Road

280 310

110 150 93

99 5 10 0 34 0 24 0 13 8 21 0 -

Maximu m parking demand in eq. car spaces

%age of long term parking

Maximu m utilization of parking lot (%)

1017

51

64

Scooter / M. Cycle 42

Ricksha w

Bus

15

55

Truck/ Tempo s -

24

-

-

-

106

48

96

295

-

-

-

414

63

148

152

50

-

-

316

50

102

22

26

-

-

163

51

148

175

23

-

-

271

37

181

-

-

-

50

75

31

84

210

37 5

-

-

-

-

375

60

179

180

21 0

260

-

-

-

275

66

153

130

93

80

-

-

-

113

59

87

13

-

69

-

-

-

18

54

138

1100

65 0 15 0 16 0

250

92

-

-

782

49

71

-

-

-

-

150

51

83

170

65

10

32

357

26

95*

10 8

-

-

-

-

108

48

154

180 170*

70

* Figure relates to parking lots only Source – NATPAC.

483 R.G. GUPTA -–1995 www.rgplan.org

40 Housing for Slum Dwellers Mata Sundariny / Minto Road Complex

40.0 40.1 40.2 40.3

Few Definitions A Brief History of Slum Works upto Seventies Policies for Rebuilding and Improving Slum Areas Case Example of Mata Sundary / Minto Road Complex in Delhi

Few Definitions23

40.0

(i) Slum Areas: ‘A Slum Area means any area where dwellings environments are detrimental to safety, health and morale’, by reasons of dilapidation, overcrowding, faulty arrangement or design of buildings, narrowness and faulty arrangement of streets, lack of ventilation, light or sanitation facilities, inadequacy of open spaces and community facilities, or any combination of these factors. Any slum area selected for improvement under the scheme should have at least 2/3rd of the slum families in the poor and low income groups with an income of less than Rs. 250 per month, at that time. Also, there should be no likelihood of any slum clearance or redevelopment programme being taken up in that area for a period of at least 15 years in the case of pucca built slums and 10 years for hutment type slums, so that adequate benefit is secured from the money spent on improvement. (ii)

Improvement of environmental conditions: These may consist of the following items within the slum areas, so as to make the area habitable at least for 15 years. (a) Laying of water lines, sewers and storm water drains, (b) Provision of community baths, latrines and water taps, (c) Widening and paving of existing roads and lanes and constructing new roads and lanes, (d) Providing street lighting, (e) Cutting, filling, leveling and landscaping the area, including horticultural operations, (f) Partial development of the slum area with a view to providing land for unremunerative purposes such as parks, playgrounds, welfare and community halls, hospitals, dispensaries etc. run on a non-profit no loss basis.

23

As defined in the scheme approved by the Central Government vide their letter No. H-111-7(4)II dated 15 September, 1962.

484 R.G. GUPTA -–1995 www.rgplan.org

(iii)

Improvement of permanent built slum dwellings: These may consist of the following items: (a) Providing W.Cs, bath rooms, and water taps inside or near the dwellings, (b) Electrification of the dwellings and the premises, (c) Conversion of the Privy to the water borne system and connecting to main drainage, (d) Providing smokeless fire places (chullahs) and sinks in kitchens, (e) Enlarging the sizes of the rooms or the dwelling to bring it to present adequate standards, (f) Increasing the area of windows to provide adequate light and ventilation as per norms, (g) Providing adequate open spaces for the lighting and ventilation of rooms and the opening up of courtyards, (h) Paving of courtyards and drainage of the premises, (i) Works carried out for removing fundamental defects in structure, such as inadequate ceiling height, narrow rooms, steep staircases, dampness, etc.

(iv)

Identification of the type of slum areas: In the Delhi Master Plan 1962, the entire notified slum areas were divided in three parts viz. (a) Conservation, (b) Rehabilitation, and (c) Clearance/Redevelopment, with the following salient features: (a) Conservation Areas: These are those good areas which need protection from the spread of slums from adjoining areas. These areas call for the prevention of • Squatting and encroachment in open spaces. • Infiltration of incompatible and conflicting land uses. • Gradual increase in congestion due to the immigration/movement of people from the nearby areas which are fit for redevelopment / rehabilitation. • Lowering of residential value as a result of the location of excessive institutional and religious facilities (b) Rehabilitation Areas: These are partially blighted where the buildings have deteriorated due to the neglect of maintenance. These areas are characterized by the lack of open spaces, disorganized congestion and haphazard growth. Rehabilitation of the area needs to take the following actions: • Removal of those physical conditions that tend to cause further deterioration. • Removal of inharmonious use of land or building having deleterious effects on the appropriate use of land. • Provision of open spaces and community facilities (c) Clearance/Redevelopment Areas: Most of the areas have to be cleared because these are economically and physically beyond repair and need reconstruction. The development of such areas demand a synthesis of the following important factors: • Overall reconstruction of the areas. • Rehabilitation of the people presently living there. 485 R.G. GUPTA -–1995 www.rgplan.org



Reconstruction financed not from within but from outside.

Conservation areas, rehabilitation areas, clearance and redevelopment areas as provided in Master Plan of Delhi 1962 has been shown in Map 39.1 40.1

A Brief History of Slum Works upto Seventies The erstwhile Delhi Improvement Trust took up the clearance work in Delhi under the ‘Rebuilding Scheme’ in the year 1940. The scheme was for the persons whose income did not exceed Rs. 250 per month at that time. In 1956, the ‘Slum Areas (Improvement and Clearance) Act’ was passed by the Parliament and it came into operation. After the Act, the Slum Clearance Scheme was automatically entrusted to the Delhi Development Authority (DDA) in the year 1957 which was later on transferred to the Municipal Corporation of Delhi with effect from January, 1960 with assets and liabilities. At the time of transfer of the scheme, 4287 tenements were constructed by the Delhi Development Authority (DDA) and transferred to the Municipal Corporation of Delhi (MCD). Out of 4287 tenements, 611 already stood liquidated in favour of allottees at that time and thus 3676 tenements remained the property of the Slum Wing/Board. 5920 tenements were further constructed by the Municipal Corporation of Delhi (MCD) between 1 January, 1960 to 19 February, 1974 (the date of further retransfer of the scheme back to the Delhi Development Authority (DDA) with a break up of 4032 tenements for slum dwellers and 1888 tenements for sweepers. Besides these tenements, 1490 were under construction at the time of transfer of the scheme. The Delhi Development Authority (DDA) completed these tenements along with 1238 more by March 1977 to make a total of 2728. As many as 5704 tenements were under construction or sanctioned for construction in the late seventies or early eighties. As such, 18639 tenements were constructed or were being constructed up to that time, as detail given below, up to the 1970’s. Location of Slum Designated Areas has been shown in Map 40.1. Number of tenements built for slum dwellers:

(i) (a) (b) (c) (d) (e) (f) (g) (h) (i) (j) (k)

By the DDA before 1 January 1960 (the date of transfer of scheme from the DDA to the MCD Chatta Lal Mian Ahata Kidara Hathi Khana Andha Mughal Arakasha Scheme Brahampuri Rehgharpura Rattan Nagar Jangpura Kilokri (Nehru Nagar) Jhilmil Tahirpur

No. of tenements 4287 42 268 137 392 176 120 60 48 420 792 1190 486 R.G. GUPTA -–1995 www.rgplan.org

(l) (m) (n) (o) (p) (ii) (a) (b) (c) (d) (e) (f) (g) (h) (i) (j) (iii)

(a) (b) (c) (d) (e) (f) (g) (h) (iv) (a) (b) (c) (d) (e)

40.2

(i)

Amrit Kaur Puri Bagh Amba Transit Camp (Moti Nagar) P.C. Land Service Personnel Quarters By the MCD during 1 January 1960 – 18 February 1974 Sarai Rohilla Najafgarh Road Ranjeet Nagar G.T. Shahdara Road (392 tenements + 24 shops) Dujana House Goojar Basti Amrit Kaur Puri Boulevard Road Turkman Gate Sweepers tenements Tenements constructed by the DDA by March 1977 including those which were under construction on 18 February 1974 when the scheme was transferred from the MCD to the DDA Sarai Rohilla Mata Sundari Road Ranjeet Nagar Amrit Kaur Puri Sarai Phoos Darya Ganj Ajmeri Gate (DAG) Phase-I Prop. No. 631/X Najafgarh Road Tenements either under construction or sanctioned for construction by the DDA in 1977 Jahangirpuri Najafgarh Road Sangam Park Kalkaji Garhi Total

72 72 120 72 306 5920 960 1292 992 392 80 72 60 92 92 1888 2728

1088 384 544 48 144 96 96 328 5704 2376 1360 400 1048 520 18639

Policies for Rebuilding and Improving Slum Areas

To tackle such a huge problem, it is necessary to formulate policies. Some of the important points are given under: At National Level: Slum have been finally accepted as a legitimate part of the country’s housing scenario, as the first comprehensive National Housing Policy announced by the Government, permits their clearance only when land is needed in ‘public interest’, and that also at an unavoidable cause. 487 R.G. GUPTA -–1995 www.rgplan.org

The policy, finalized after nearly four years of deliberations by the Central Government, wants Central and State agencies to ‘avoid forcible relocation or dishousing of slum dwellers’. The document wants these agencies to ‘encourage in situ upgradation, ‘slum renovation’ and ‘progressive housing development’ with conferment of occupancy rights wherever feasible, and to undertake only selective relocation with community involvement only for clearance of priority sites in public interest. Ever since the report of the National Commission on Urbanisatioin in August, 1988, the Government indicated a shift in the policy towards slums that instead of clearing them, living conditions for their inhabitants should be improved. The housing policy has put the final scale on the view and approved the same. About 50 million people in the country live in urban slums and squatter colonies. Besides, over 50 per cent of the families in urban areas are living in dilapidated one-room tenements. The Government has recognized that the slums’ growth was a sign of inability of people to afford land and shelter through the normal market, as also of the Government’s own failure to ensure equitable access of the poor to the land and services. The policy states that the supply of serviced land at affordable prices was a critical input for housing activity. It was widely recognized that the effective operation of the land market had been affected by the existing legal and regulatory framework, lack of infrastructure, and the slow pace of released or serviced land by public agencies. This along with other economic factors had led to unwarranted increase in land price and housing costs, and widespread speculation and profiteering. The document has therefore asked Central and State Governments to expand provision of water supply, sanitation and other basic service in slum and other settlements occupied by the poor. Amenities have to be properly maintained through community involvement and decentralized institutional arrangements. In favour of the slum dwellers, the policy has suggested promotion of incremental construction and upgradation of poorer households through access to land and services, through technical support, outlets for low cost technology and materials, as also access to housing finance on ‘flexible terms’. Integration of physical amenities with basic facilities including maternal and child welfare services and health care, structured on community participation and involvement of voluntary agencies has been recommended. (ii)

At National Capital Territory of Delhi level: (a) The entire area (2000 hect.) designated as Slum Area under the Slum Clearance and Improvement Act 1956 should be declared as development area of the DDA under Section 12(1) of the Delhi Development Act, so that the entire work of planning, development construction and disposal of urban spaces is at 488 R.G. GUPTA -–1995 www.rgplan.org

one point with Slum Wing/Board. If not in DDA then the entire work of planning, development and construction should be assigned to a suitable authority. (b) Responsibility of developing/rebuilding/clearance of the entire area of 2000 hect., bounded by Boulevard Road, Roshanara Road, covered eastern Yamuna Canal, Metreguage railway line near Patel Nagar, Ranjit Nagar, Shadipur, Khampur, Pusa Road, Panchkuin Marg and railway line from Tilak Bridge to Minto Bridge, Bahadurshah Zaffar Marg and Mahatma Gandhi Road should be with the Slum Wing/Board, irrespective of the nature of the area/type of project, remunerative or nonremunerative land use etc. Location of this area has been shown in Map 40.1. (c) The creation of exclusively better or exclusively poor class housing results in unbalanced development of the city and tends to create psychological and social imbalances. Therefore, it would be better if composite and integrated development is carried out in slum areas having better class housing, middle income group, low income and economically weaker sections of the society’s housing, along with necessary physical, social and economic infrastructure. This is necessary for proper physical and financial planning. (d) It is strongly recommended that whatsoever action is taken, should be for the system or sub-system as a whole. Up to 1980s, about 20,000 slum tenements were constructed without taking care of other components i.e. the dwellers’ place of working and recreation; the result being that very few were occupied by the slum dwellers. This is due to the main reason that no comprehensive proposals of disposal of flats was drawn and implemented to shift the entire system as a whole. People are generally reluctant to shift till their place of working, recreation, living etc. are dealt with together and shifted according to conveniences. (e) In the Delhi Master Plan, 1962, the principle of segregating different land uses was adopted. In slum areas, it is not desirable to segregate and earmark separate areas for different land uses. Built up spaces should be made available even for community facilities viz. schools, health centres, convenient shopping/local shopping etc. In most of the cases there can be mixed land uses and with higher intensities. (f) Besides positive planning listed above, the following steps should also be taken as regulatory measures to check further deterioration in designated slum areas. •

Till the entire scheme is implemented in the true sense, no further residential or commercial or large scale repairs should be permitted. 489 R.G. GUPTA -–1995 www.rgplan.org

• • • • •

40.3

New unauthorized construction wherever is coming should be stopped/removed at the earliest. No further commercialization should be permitted of any nature except planned commercial for formal and informal commercial sector. Traffic regulations should be framed and enforced including parking in parking lots and one way traffic on congested roads, no entry etc. Building bye-laws should be simplified and enforced strictly. Each project should be a self-supporting one to the extent possible, so that surpluses from profitable sectors of commercial and High Income Group (HIG) are used as subsidies in the subsidized sector.

Case Example of Mata Sundari/Minto Road Complex in Delhi

40.3.1

Location and Site Conditions The project of 25 hect. of construction of 4000 small residential units along with essential physical and social infrastructure is bounded by 36 mtr. wide extended / diverted Din Dayal Upadhyay Marg in the north, Minto Road in the west, Railway Line linking Tilak Bridge Station to Shivaji Nagar Station in the south and the point from where Din Dayal Upadhyay Marg would be diverted in the east. The project is situated in Sub Zone D-2 of New Delhi which was approved under Section -9(2), vide the then Ministry of Works and Housing letter No. 21023(6)/66-UD dated 26 November, 1966. Important establishments on the periphery and in the vicinity of the project are – (i) Jaya Prakash Narayan large General Hospital; (ii) Maulana Azad Hospital; (iii) Pant Hospital; (iv) Guru Nanak Eye Hospital; (v) Girdhari Lal Maternity Hospital; (vi) Zakir Hussain College; (vii) Proposed Civic Centre of the Municipal Corporation of Delhi (MCD); (viii) Ranjit Singh Hotel; (ix) Second entry to New Delhi Railway Station; (x) Ramlila Ground; (xi) Delhi Gate; (xii) Ajmeri Gate and (xiii) Government Printing Press and other important newspaper printing complexes. The site is bifurcated by Ranjit Singh Road flyover also called School Lane flyover, linking Jawaharlal Nehru Marg to Barakhamba Road. Out of 25 hect., 17 hect. was to be used by the Slum Wing, DDA, for the construction of 4000 small dwelling units and the balance 8 hect. for 600 dwelling units by the CPWD for Central Government employees. The project is located in a large complex between the Walled City of Delhi and the New Delhi Area, just like a link between the two Delhi’s, as such , judicial planning has to be done by providing optimum number of community facilities to use for the people of the Walled City of Delhi. In this area of 25 hects. there are four pockets with build up structures and one developed park which have to be retained. Names of these are as under: (a) Government Printing Press; (b) Four-storeyed tenements for slum dwellers; (c) Mata Sundari College; (d) Senior Secondary School; (e) A public park in 1.4 hect., across the road near the school. 4.3..2

Requirements of Activities 490 R.G. GUPTA -–1995 www.rgplan.org

(i)

For the population to be shifted from slum areas in 17 hect. (a) 4000 small dwelling units at a net density of 235 dwelling units per hect.; (b) Essential physical infrastructure, i.e. water lines, sewer lines, electric lines, storm water drains, telephone lines, parking areas, (c) Social infrastructure, i.e., primary school, senior secondary school, health centre, club/barat ghar, milk booth, public telephone booth, public conveniences, open spaces, playgrounds, police post, (d) Economic infrastructure, i.e. flatted work spaces, commercial shopping centres. (ii) Concerning the Central Public Works Department (CPWD): 8 hect. to be used by the CPWD for the construction of 600 flats in 8 storeyed blocks at a density of 100 dwelling units per hect. with essential physical, social and economic infrastructure for the Central Government employees. (iii) Salient features of requirements: (a) Social infrastructure has been proposed on integrated basis so that people living in either of the two complexes constructed by the Slum Wing/Board and the CPWD, can use the same, (b) Along the existing Ranjit Singh Road flyover/School Lane flyover, buildings of social infrastructure have been located, (c) Gross density of the Complex would be 185 dwelling units per hect. (d) Total population of the Complex would be 25000 and for this physical and social infrastructure has been provided, (e) Layout plan of the Complex and other details have been shown in the maps, names given under and explained in the next paragraph. 1. Map 40.2 – Location of the Project. 2. Map 40.3 – Layout plan of the Complex in the West of Ranjit Singh Marg Flyover/(School Lane flyover). 3. Map 40.4 – Ground floor plan showing 16 residential units. 4. Map 40.5 – First floor plan showing eight residential units. 5. Map 40.6 – Second floor plan showing eight residential units. 6. Map 40.7 – Third floor plan showing four residential units. 7. Map 40.8 – A typical cross-section

40.3.3

Explanation of the Layout Plan

(i) The design criteria: An attempt has been made to evolve a typical cluster of design of 36 dwelling units each of 18 sq.mt. residential area keeping in view the following Design Criteria: (a) A typical residential cluster, out of the requirements of human beings and constraints of the site, policy and resources has to be extremely compact, in four storeyed structure, with minimum of circulation spaces; to enable the creation of the necessary breathing spaces between the clusters and also the community greens, (b) Each dwelling unit on the ground floor, should have an open to sky courtyard, exclusively attached to it and on upper floors, an open to sky terrace, which is absolutely essential, in view of the climatological conditions prevailing in Delhi, (c) Toilets are, though in each dwelling unit yet do not have a direct access from the multipurpose room due to sanitary reasons; instead spatial green flows which would 491 R.G. GUPTA -–1995 www.rgplan.org

result in the creation of garden development to offset some of the negative effects of the extra high density of residential units, (d) Larger open green space have been provided, not to be disturbed by vehicular traffic and even by bicycles. (ii) Ground Floor Plan: Ground floor level in a typical cluster consists of sixteen dwelling units – out of which eight are around the staircase, under the four storeyed block. The remaining eight units are single storey structures and are placed on the periphery of the block in such a way that their roofs are used as open air terraces for the eight units at the first floor-level. The disposition of the dwelling units is in such a way that a small open to sky courtyard is attached with every unit. The single storey structures also help to relieve the monotony of the total sky line and create a sense of spaciousness in the complex. The toilet, in every case, is approachable from outside the unit, which would be a help in keeping the multipurpose room neat and clean. The wash-cum-bath room and cooking space is directly approachable from the main living room. There is cross ventilation and adequate natural light in every dwelling unit. (iii) First Floor Plan: Eight units at the first floor level around the staircase, are similar to the ones at the ground level. Open-to-sky terraces are attached to every unit, for outdoor living during summer months. The service areas like the toilets, kitchens and washrooms are on top of the ones on the ground floor level and form vertical service blocks, which look better architecturally and would be economical. (iv) Second Floor Plan: The eight units at the second floor level are identical to the ones on the first floor, except their open-to-sky terraces are located at the third floor level, where only four dwelling units are provided. The main staircase is used for approach to these terraces. (v) Third Floor Plan: At the third floor level, four units out of the eight around the staircase, are omitted, to create space for open air terraces for second floor dwellers. Dwellers living on the third floor would use their respective roofs as their open-air terraces, using the staircase. (vi) Structure: It is proposed on use 9” load bearing brick work for the construction, with pre-cast concrete or stone strips, spanning the multipurpose room ceilings and insitu concrete slabs for service areas like toilets, wash-rooms and kitchens etc. (vii) External Finish: Sand-faced plaster or washed-terrazzo with grooves forming rectangular panels is proposed as external finish.

492 R.G. GUPTA -–1995 www.rgplan.org

41 Re-development of Mundewalan Complex A Case Study 41.0 41.1 41.2 41.3 41.4 41.5

41.0

Background Present Position of the Built-up Complex Objectives of the Schemes Planning Strategy Proposal of Re-development Economics of the Project

Background

Chapter 39 (Housing by Urban Renewal), gives the details of the concept of urban renewal of different types of planned and unplanned areas, including areas, including slum designated areas under Slum Act. On the basis of fundamentals given in Chapter 39, this Chapter gives a case example of ‘Re-development of Mundewalan Complex near Idgah Monument in Delhi’. There is an area of 6.5 hect. in the Municipal Ward No. XIV, bounded by 30 mtr. wide Idgah Road in the North, 13.5 mtr. wide zonal road in the West, 30 mtr. wide Mundewalan Road in the East and 24 mtr. wide Jhandewalan Road in the South as shown in Map 41.1. The pocket is in sub Zone A-7 whose zonal plan was approved by the then Ministry of Works and Housing (now, the Ministry of Urban Development) – the Central Government under Section 9(2) of the Delhi Development Act, vide letter No. K-13012/8/76/UDI-A/II-A, dated 24 February, 1984. In the approved zonal plan, this particular pocket of 6.5 hect. has been divided in two distinct parts (i) 3.3 hect. for high density residential group housing development and (ii) 3.2 hect. for comprehensive re-development scheme as shown in Map 41.3. In the ‘New Master Plan of Delhi-2001’, this has been shown as ‘Special Area’ and is marked for urban renewal (conservative surgery) with a density of 800 persons per hect. This pocket was also declared as clearance area under Section 9(1) of the ‘Slum Areas (Improvement and Clearance) Act 1956’ vide Notification No. TN.2(130)/82/87, dated 19 February, 1987. Out of the total area of 6.5 hect., earlier a layout plan was prepared only of one small pocket of 1.19 hect. as a local shopping centre and out of this, two plots were allotted as alternative allotment by the Slum Wing/Board – to the persons whose lands were used in 1976 without acquiring them for urban development purposes. Buildings on these two plots and on one, DESU electric sub-station have 493 R.G. GUPTA -–1995 www.rgplan.org

already been constructed; as such, these three buildings have been retained while preparing the urban renewal plan of the complex of 6.5 hect. 41.1

Present Position of the Built Up Complex

(i) Physical conditions: As is clear from Map 41.2, circulation pattern of the area is organic governed by topography of the site. The entire area is thickly built upon with generally two-storeyed structures, with congestion, poor planning, environmental pollution etc. The existing population density as per 1983 survey was 662 persons per hect. with a total population of 4300, but now the density is much more. The are is mostly devoid of organized public open spaces, but dotted with trees, and some areas for social gathering and religious structures also. (ii) Existing land use as per 1983 survey: Table 41.1: Existing landuse break up of Mundewalan Complex - 1983 S. No. 1. 2. 3. 4. 5.

6.

Use Residential Commercial Road and streets Pathways and open spaces Other non-conforming use like livestock, skin godowns and other godowns Miscellaneous Total

Area in Hect. 2.34 0.11 0.75 1.50 1.00

39.00 1.83 12.50 25.00 16.67

0.30

5.00 6.00

%age

100.00

The area has many skin godowns, noxious and nuisance industries of manufacturing of steel utensils, dyeing activities, existence of livestock cattle etc. (iii) Other salient features of the area are as under: (a) Most of the buildings in the areas are in dilapidated/poor condition and no amount of repairs can increase the life of the buildings beyond six to eight years, thereby investments in repairs may prove a costly affairs, as it would generate little improvement in environments; (b) There is no building of historical/architectural importance, worth conserving, within the area except Idgah monument on the periphery. Newly constructed electric sub-station and two new buildings in local shopping centre and religious structures have been retained. The area is occupied more or less by homogeneous group of people, which would make implementation of the project easier, (c) In Planning, development and construction of urban spaces and to retain good character of the environment obnoxious uses like skin godowns, non-confirming industries, livestock and other godowns should be shifted. (iv) Land Ownership: From local enquiries on the site, it was revealed that land ownership vests with the public authorities/Government. However, the fact 494 R.G. GUPTA -–1995 www.rgplan.org

needs verification from the Lands Department of the Delhi Development Authority and then accordingly action should be taken. (v) Housing: Most of the houses are in poor category and little percentage is in fair category. Most of the habitable rooms are approachable from narrow, dark and dingy lanes, which cannot take traffic of the locality, what to talk about movement of fire tender in case of some emergency. In the proposal, most of these lanes except the main peripheral wider streets have been proposed to be demolished and reconstructed as per plans. Table 41.2 (vi) Use of structures in the cluster as per 1983 surveys

(a) (b) (c) (d) (e)

Use Residential structures 140 Skin godowns 30 Residential cun commercial 20 structures Small industrial units 4 Livestock sheds 5 Total

No.

%age 70.4 15.1 10.0 2.0 2.5

199

100.00

(vii) Uses in the surrounding areas/in the environs; Most disturbing and polluting features on the east of the complex is a slaughter house which creates a lot of nuisance. Since 1967, Delhi Development Authority and Ministry of Agriculture tried to shift the existing slaughter house in various locations namely Rohtak Road, Narela, Jaitpur, Patparganj, Gazipur, Karaval Nagar, but not successful due to objections from – (a) Civil aviation; (b) residents of Delhi. Due to this slaughter house, non-confirming and unintending activity, skin godowns are not only in this complex but in the adjoining areas too. In contrast to it on the West of the complex, there is a beautiful old historical Idgah monument built at high altitude. On other sides Government High School, M.C.D. Office and Sadar Bazar Police Station are there.

41.2 (i)

(ii)

Objectives of the Scheme To improve the quality of life not only of the limited people living within the small complex, but also of the persons in adjoining areas by providing better physical, social and economic infrastructure. To improve the environment of the entire area, by shifting following non conforming and non desirable uses: (a) Skin Godowns-By shifting them to developed industrial plots in outlying areas of Delhi or in the Delhi Metropolitan area (DMA) or in the National Capital Region (NCR). (b) Livestock – By shifting them to developed cattle farms in Delhi, for example to Gazipur Cattle Farm and Kondli Cattle Farm. A view of Gazipur Cattle Farm has been given in Photograph 41.1. (c) Non-conforming and noxious industries – By shifting them to planned 495 R.G. GUPTA -–1995 www.rgplan.org

industrial area within the National Capital Territory of Delhi, the DMA or the NCR. (d) Warehousing/godowns – By shifting them to developed plots in any of the ‘Integrated Freight Complex-cum-wholesale markets. To enhance the aesthetics/environment of the historical Idgah Monument by decongesting of 6.5 hect. pocket and also by shifting non-conforming land uses.

(iii)

41.3 (i)

(ii)

(iii)

(iv)

(v)

(vi)

Planning Strategy The project of 6.5 hect. with different land uses, their development and construction of clusters would cost Rs. 141.6 million, as such it would be better if it is not implemented in one go, but in four phases All the households irrespective of owner, tenent or jhuggi (shanty) dwellers would be accommodated in the existing area of 6.5 hect. with physical, social and economic infrastructure. No family would be shifted out side the complex. Overall major existing road pattern of the area would be largely retained in the proposed plan with a view to enable re-development of the area in a phased manner and also to use the existing physical infrastructure, but not to retain internal streets and bye-lanes. The project has been made self remunerative by using part of the area for commercial use and dividing different activities into the follwoign three sectors: (a) Profitable sector: high value, commercial use, and high income group housing, (b) No profit no loss sector: site of social infrastructure concerning to education, health, security, justice etc. (c) Subsidised sector: housing for Economically Weaker Section (EWS) – in this case, the entire physical development has to be subsidized by Government funds but construction of individual housing units would be one by beneficiaries from the funds to be taken as loan either from the National Housing Bank or the HUDCO or other financial institutions. In this case, individuals with the help of NGOs would formulate cooperative societies to plan, develop and construct urban spaces in the complex. It should be clearly understood that surpluses from the profitable sector stated in this category would be used to compensate losses required for the subsidized sector. Zoning regulations to the extent of ground coverage, FAR, parking norms and maximum height of the building should be followed so that at no point of time the area becomes sub-standard in physical and social infrastructure. The scheme should be made as comprehensive as possible, because it is the first scheme of urban renewal of Delhi and if it becomes successful then the same model can be adopted and repeated in other areas/cases with success.

41.4

Proposal of Re-development

41.4.1

Main Considerations in the Planning of the Project

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(i) In Delhi, from the 1960s, few urban renewal or re-development schemes, namely, (1) Pockets in Darya Ganj, Ajmeri Gate scheme (2) Tenements for slum dwellers at Turkman Gate (3) Tenements in various other pockets were planned and implemented. This project is different from all the earlier projects implemented so far, and is unique with reference to the following features. (a) The project would be a self remunerative one with tolerable stresses and strains on public finances i.e. demand of the revolving fund or initial seed capital of Rs. 20 million to start this project and then re-use the same money in other projects of urban renewal. (b) Most of the earlier projects were implemented totally with Plan funds of the GNCTD without asking any contribution from beneficiaries who took advantage of the liberal attitude of the Government and did not pay even any licence fee or rent of the flats occupied and used by them. In the 1980s the Government took a decision to liquidate all the 20,000 slum tenements constructed thereupon and convert them to the policy of the hirepurchase system. In this project also it is proposed to follow the policy of the hire – purchase system. It is also made clear that in the development and construction of urban spaces in the project, the public, private and cooperative sector funds would be used and later on management and maintenance would also be done by the beneficiaries, of course after constituting and establishment cooperative societies with the help of nonGovernment organizations. (c) The system adopted in earlier projects was to shift the families for intermediate periods to transit accommodation, develop and construct urban spaces at the project site in question and then again resettle them which were shifted to transit accommodation. This system gave rise to many difficulties and the projects took four to five years in implementation and many times disputes remained. (d) In this project land has been taken as owned by the Government and has been treated as a free commodity to make the project economical and viable. The project would have numerous benefits to the society. (e) The existing physical infrastructure i.e. water lines, sewer lines, electric lines and storm water drains have been retained to a large extent. Internal smaller lines would be abandoned and the existing lines on the peripheral streets would be augmented based on the necessity and design for the population. (f) The entire project is proposed to be implemented in four phases. Land for the first phase would be made available by shifting the existing tannery godowns and noxious/nuisance industries. Once the first phase development and construction of urban space is over then families at present residing in second phase would be shifted and likewise other two phases would also be implemented. (g) Trunk physical infrastructure and construction and improvement of roads on the periphery would be from Plan funds of the Delhi Government and by the concerned departments of the Municipal Corporation of Delhi. In this case, the concerned departments are (i) the Delhi Water Supply and Sewage Disposal Undertaking (ii) the Delhi Electric Supply Undertaking and (iii) the Municipal Corporation of Delhi. (h) Demolition will not cost any amount, as the value of the salvaged material would offset the cost of demolition, clearance and transportation. 41.4.2

Phasing of the Project

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Implementation of the scheme in phases would be desirable because of (i) constraints of financial resources (ii) limited organizational capacity (iii) elimination of transit accommodation; and (iv) minimum disruption to normal life of the families living there. Since the scheme envisages a massive re-building programme requiring Rs. 141.6 million over a period of five years, it is uncertain at this stage whether such funds would be readily available. In view of these limitation, it is better to implement the project of phase I to get experience and not to repeat learnt mistakes in other phases. Once Phase I is implemented then residents would get confidences and would be prepared to help in other three phases. Phase I has been selected in such a way that no existing private residential accommodation is effected except shifting of non-confirming uses like skin godowns, non-confirming industries etc. Phasewise demolition and construction has been given in Table 41.3

Table 41.3: Phasewise demolition and construction

Phaselactivity

First Phase

Second Third Phase Phase Hac. Demolition/clearance 1.06 Hac. 1.10 Hac. 330 1.05 DUs 315 DUs Skin godowns Housing 340 DUs 320 DUs 340 DUs Construction Construction of Comer shopping/worksheds Shops – Shopping

Development Institutional plots

of -

Comer Shops Comer II + Shops - III I – Construction of shopping complex -

Fourth Phase 1.85 Hac. 251 DUs Disposal of 104 surplus DUs Constn. Of work sheds/shops disposal of commercial complex Development and disposal

Most of the construction of Dwelling units, shopping centre and work spaces would be completed in the first three phases. The last Phase No. IV is for the development of institutional plots. 41.4.3

Location of Activities and Distribution (a) Residential flats: It is proposed to develop, construct and allot only 18 sq.mt. carpet area flats to the occupants designed on the basis of the living style of the people with spillover activities either in the courtyard on ground floor or the terrace on upper floors. The dwelling units are clustered around organized open spaces. 498 R.G. GUPTA -–1995 www.rgplan.org

(b) Commercial centre: Commercial use is proposed on 24 mt. r/w Jhandewalan Road with shops and commercial offices. It is proposed to have basement parking for 100 cars and surface parking for 50 cars in the area. (c) Institutional plots: It is proposed to have eight institutional plots on 30 mt. r/w Mundewalan Road with access from 13.5 mt. r/w internal road, area varying from 500 sq.mt. to 800 sq.mt. (d) Social facilities: As per the norms prescribed in the Master Plan of Delhi – 2001, sites for a nursery school, two primary schools, one community room, one religious building, milk booth, convenience shopping centre, park and playground have been provided in the layout plan at suitable locations. 41.4.4

Proposed Layout Plan

Part of the strip along Idgah Road is affected in the increased r/w of the road from 24 mt. to 30 mt. As such, a green strip of 6 mt. has to be taken from the existing complex. After providing areas for r/ws of roads, net available area remains 6 hect. with the following proposed landuses: Table 41.4: Proposed Landuse of Mundewalan Complex

(a) (b) (c) (d) (e)

Residential use Commercial use Institutional use Circulation Miscellaneous retained Total

2.6 hect. 1.3 hect. 0.6 hect. 1.25 hect. 0.25 hect. 199

= 43.34% = 21.71% = 10.02% = 20.87% = 4.06% = 100.00

Commercial use has been given a higher percentage to earn sizable surpluses and then use the same for the subsidized sector of housing. 41.4.5

Zoning of the Complex, Emerging Landuse has been shown in Map 41.4 (a) (b)

(c)

(d)

Existing two commercial built up plots and the DESU substation at Jhandewalan Road have been retained, as it is. Institutional uses like museum, cultural centre etc. mainly concerning the Walled City have been located on 30 mt. wide Mundewalan Road. A strip of 1.3 hect. at the crossing of Mundewalan Road and Jhandewalan Road has been proposed for high level commercial use. Surpluses from this use would be a financial inputs to deal with the project. The balance area has been proposed for residential use flats with social infrastructure, namely, one primary school, one 499 R.G. GUPTA -–1995 www.rgplan.org

(e) (f)

41.4.6

work space centre, three convenient shopping centres, one barat ghar etc. Institutional plots should be designed by a Public Authority to achieve uniformity in design and urban form. Full parking provisions have been made for residential, commercial and institutional use.

Detailed Design of the Housing Cluster As shown in Map 41.5, residential dwelling units have been proposed in three storeyed structures. Each dwelling unit is in 18 sq.mt. with private courtyard for the ground floor family and terraces for the families on first and second floors. In each dwelling unit, W.C. has also been provided with entry from outside to maintain cleanliness. An alternative design has also been given in Chapter 40 (Housing in Slum Area)

41.5

(iii)

Economics of the Project (i) Land Acquisition: Land acquisition forms a major part of costing. In this case, from local enquiries, it was found that the occupants are not the owner and the land is owned by the Government. However, this fact needs to be verified from Government records and primary surveys. Following two different types of arrangements can be worked out depending upon the ownership. (a)Land owned by the occupants: If the land is owned by the occupants, then the owners would be getting a shar of their holdings in the new redevelopment scheme, thus avoiding the burden of acquiring the land. In the case of godown owners also, since they would be getting an alternative piece of land at another suitable location, the question of compensation to the owners does no arise. However, the cost of acquisition and development of land which would be allotted to the godown owners would be included in the costing of the project, though the land would fall outside the project area. (b)Land owned by the government: If the land is owned by the Government, as a general policy the occupants would be given 18 sq.mt. space irrespective of their holdings. As in the earlier case, the cost of acquisition and development of land for shifting of godowns would be included in the costing. However, while disposing off, these godowns plots may be priced though not at market rates but to recover at least the entire cost of development of land. Assumption for land ownership: For the present, it is assumed that the land is owned by the Government, hence no expenditure towards land acquisition would be included. Physical infrastructure: Physical infrastructure includes water supply, sewerage, storm water drainage and power. The major peripheral services, such as water supply, drainage and storm water drains, area already existing along the major roads. However, it is felt that their 500 R.G. GUPTA -–1995 www.rgplan.org

augmentation will be inevitable with the development which is proposed to be initiated. It is estimated that the cost of such augmentation for an area of 6.0 hect. shall be Rs. 24 million @ Rs. 400 per sq.mt. of built up area. The internal services, roads, street lighting, street furniture etc. have been included in the cost of development and construction of different urban spaces. (iv)

Cost of construction of urban spaces and internal development: (a)

Residential urban spaces – The cost of construction of a residential area, including construction of urban spaces and buildings, internal services, roads and paths, electrification, development of parks and open spaces etc. shall be Rs. 140 million @ Rs. 4000 per sq. mt. of built up space with a break up of Rs. 3600 per sq.mt. for construction of buildings and Rs. 400 per sq.mt. for internal and peripheral development.

(b)

Commercial urban spaces – The cost of construction and development of commercial spaces including construction of buildings, internal services, road and paths, electrification, development of parks and open spaces shall be Rs. 65 million @ Rs. 5000 per sq.mt. of built up space with a break up of Rs. 4500 per sq.mt. for construction of buildings and Rs. 500 per sq.mt. for internal peripheral development.

(c)

Institutional urban spaces – The cost of development of plots for institutional area shall be Rs. 3.0 million @ Rs. 500 per sq.mt. of built up space. It is proposed that vacant institutional plots would be allotted/disposed off to government semi-government agencies and registered societies and construction would be carried out by the allottees themselves with their own funds.

(d)

The cost of construction of basement for parking, storage and services etc. in an area of 6500 sq.mt. shall be Rs. 29.25 million at Rs. 4500 per sq.mt.

(v)

Shifting and rehabilitation of the godowns: The cost of development of plots for shifting and rehabilitation of the godowns having an area of about 10,000 sq.mt. (not forming part of the scheme), would be Rs. 8.0 million at Rs. 800 per sq.mt. of built up space. Thus, the total cost of the project would be Rs. 269.25 million.

(vi)

Cost Recovery: It is proposed to recover the full cost of the scheme by disposing off different types of urban spaces on pre-determined price, but the commercial spaces in the open market.

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(vii)

Pricing policy for Dwelling Units: Past experience in Delhi has shown that even after providing low priced and affordable dwelling units, cost recovery from the allottees has always been a failure and the dwelling units practically go free of cost to the allottees. However, after going deep insight into the people’s attitudes towards owing a residential unit needs the pricing policy will be decided on the assumption that the newly constructed dwellings would be given to the existing households on ownership basis and it would have to be designed in such a manner as to make the housing ownership very attractive and on 50% actual cost of development and construction and cost of land as free.

(viii)

Pricing policy for commercial space and institutional plot/spaces: Pricing policy for the commercial plots/spaces would be designed to generate maximum surpluses for cross-subsidising the construction of residential units required for rehabilitation purpose. The commercial space will be sold in the open market through competitive bidding. The price, therefore, will depend upon what the market can bear. The institutional plots would be leased as per the pricing policy of the Delhi Development Authority for this area at that particular time.

(ix)

Sources of finances: The following are the sources of finance to fund the project: (a)Plan Funds, Govt. of National Capital Territory of Delhi. (b)Housing and Urban Development Corporation (HUDCO) (c) National Housing Bank (NHB) (d)Other financial institutions (e)Private funds i.e. of beneficiaries

(ix)

Cost of urban renewal:

Cost of the project of Urban Renewal million 1. Land Acquisition 2. Physical infrastructure (peripheral) 3. Demolition/Clearance 4. Cost of construction and internal development: - Residential 140 - Commercial 65 - Institutional 3 - Basement 29.25 5. Re-siting of godowns 6. Total cost of the scheme

Amount in Rs. 24 237.25

8.0 269.25

(x)

Recovery from the Project of Urban Renewal: Recovery of Cost 1. Allotment of commercial space at the rate of Rs. 20,000 per sq.mt.

260.0 502

R.G. GUPTA -–1995 www.rgplan.org

2. Allotment of institutional plots at Rs. 1400 per sq.mt. 8.4 3. Allotment of residential flats to present households at 50% of the 70.0 Cost of development and construction 4. Amount of 104 surplus dwelling units at Rs. 2 lakh per dwelling unit 20.8 Total recovery 359.2 Surplus = 359.2 – 269.25 = 89.05 million This is a cushion and can be used if cost of development and construction is increased and also if the cost of the land is added. While working out economics of the project it should be kept in mind that cost of land has been kept as nil. (xi) A tentative layout plan has been prepared and placed as Map 41.6.

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PART SIX CONNECTED ISSUES WITH HOUSING

42 Planning of Shelter and Low Cost Specifications

42.0 42.1 42.0

Housing Consists of Shelter/Structure with Physical Social and Economic Infrastructure, Services and Circulation Level or Quality of Shelter, Infrastructure and Services Housing Consists of Shelter/Structure with Physical, Social and Economic Infrastructure, Services and Circulation Housing does not mean only construction of houses for different income groups along with internal and external infrastructure; but development of parks, playgrounds, open spaces, buildings of various community facilities and shopping centres in a hierarchical order. In short, we can say that housing is a complete system of a neighbourhood having all the facilities of day-to-day needs of man, which are biological, physiological and psychological.

42.1

Level or Quality of Shelter, Infrastructure and Services These are measured by the following five components, which have been described in this chapter (i) Physical indicators (ii) Social indicators (iii) Status of the area (iv) Space standards for different indicators (v) Cost aspects of development and construction

42.1.1 Physical Indicators These are of 20 in numbers and each of them is important in terms of location, dimensions, shape and form. (i) (ii)

Electrical poles, electric pylons and overhead electric wires, traction system for electric trolley buses, electric trams and electric trains. Telephone poles, public telephone booths

504 R.G. GUPTA -–1995 www.rgplan.org

(iii)

Tree plantation with tree gurads along roadsides, landscaping of roundabouts, landscaping of channelizers, landscaping of footpaths along roadsides. (iv) Dustbis, (dhalaos), garbage depots, special types of vehicles for collection and disposal of garbage. (v) Bus queue shelters, bus terminals, bus depots. (vi) Street furniture, road signs, street numbering, hoardings, painting of roads, zebra crossings, neon signs, types of advertisements on structures. (vii) Street lighting of different intensity on various roads and special illuminations at busy intersections. (viii) Milk bars, milk booths, water huts (Piao) (ix) Car parking, scooter parking, rickshaw parking, slow vehicle parking, taxi stands, including booths and fare boards. (x) Public toilets and conveniences. (xi) Covering of storm water drains (nallahs), design of railings along these drains. (xii) Measures and physical barriers to control noise pollution, smoke and vibration. (xiii) Control on nuisance of non-conforming and incompatible uses, till they are shifted to proper places. (xiv) Speed breakers and their paintings at frequent intervals. (xv) Aesthetics of public and semi-public buildings and also shopping centres of different hierarchy. (xvi) Sculpture pieces at suitable locations with or without water fountains and other attractive features. (xvii) City information system with TV rooms (xviii) Special grounds for exhibitions, fairs and festivals (xix) Development of parks, playgrounds, open spaces along with railings, sitting benches, tree plantation, etc. (xx) Informal sector 42.1.2

Social Indicators

Standards given under are for Delhi as per MPD-2001 and not necessary that these may hold good for other metropolitan cities. These can be used as guidelines in formulating norms for other metropolitan cities. (i)

Health: (a) General hospital One hospital for 250,000 population Capacity Area (b) Intermediate hospital (category-A) One hospital for 100,000 population Capacity Area (c) Intermediate hospital (category-B)

500 beds 6.00 hect.

200 beds 3.70 hect. 505 R.G. GUPTA -–1995 www.rgplan.org

(d)

(e)

(f)

(ii)

Education: Up to senior secondary level (a)

(b)

(c)

(d)

(e)

(f)

(iii)

One hospital for 100,000 population Capacity 80 beds Area 1.00 hect. Polyclinic with some observation beds and Intensive Care units One Polyclinic for 100,000 population Capacity 25 to 30 beds Area 0.20 to 0.30 hect. Nursing Home, Child Welfare and Maternity Centre One for 45,000 population Capacity 25 to 30 beds Area 0.20 to 0.30 hect. Dispensary One for 15,000 population Area 0.80 to 0.12 hect.

Pre-primary, nursery school One for 2500 population Area per school 0.08 hect. Primary School (class I to V) One for 5,000 population Strength of the school 500 students Area per school 0.40 hect. Senior Secondary School (VI to XII) One for 7,500 population Strength of the school 1000 students Area per school 1.60 hect. Integrated school without hostel facilities (class I to XII) One for 90,000 to 1,00,000 population Strength of the school 1500 students Area per school 3.50 hect. Integrated school with hostel facility One for 90,000 to 1,00,000 population Strength of the school 1000 students Area per school 3.90 hect. School for handicapped One for 45,000 population Strength of the school 400 students Area per school 0.50 hect.

Higher Education – general: (a)

(b)

College One for 125,000 population Strength of the college Area per college University campus

1000 to 1500 students 4 hect. 506 R.G. GUPTA -–1995 www.rgplan.org

(c)

(iv)

Area New University One in the urban extension Area

10 hect.

60 hect.

Technical education: (a)

Technical Education Centre (A) One such centre provided for every 1 million population to include one Industrial Training Institute and One Polytechnic Area per centre 4 hect. (b) Technical Centre (B) One provided for 1 million population to include one ITI, one Technical Centre and one Coaching Centre Area per centre 4 hect. Professional education: (a) New Engineering Colleges Two to be provided in urban extension Strength of the college 1500 to 1700 students Area per college 60 hect. (b) New Medical College Two sites each of 15 hect. in urban extension This includes space for specialized general hospital

(v)

Communication: (a) Telephone Exchange of the capacity of 40,000 lines One for 4 million population @ 10 telephone lines per 100 population. Area 0.80 hect. Administrative Office floor area 9210 sq.mt. (b) Telephone Exchange to be provided at the city level preferably One in North and the other in South in urban extension Area 4 hect. (c) Depot-cum-workshop: For maintenance and repair of about 800 vehicles to be provided At the city level in an industrial area Area 1.00 hect.

(vi)

Departmental Telegraph Office: (a) Booking counter One for 100,000 population 507 R.G. GUPTA -–1995 www.rgplan.org

(b)

(a)

(b)

(c)

(vii)

Booking and delivery office One for 0.5 million population Floor area Postal facilities: Post office counter without delivery office One for 10,000 to 15,000 population Floor area Head post office with delivery office 1 for 250,000 population Area Head post office and administrative office One for 500,000 population Area

1700 sq.mt.

60 to 85 sq.mt.

600 sq.mt.

2500 sq.mt.

Security: (a) Police Station One for 90,000 population Area inclusive of essential residential accommodation 1.15 hect. (b) Police Post One for 4000-5000 population ( not served by a Police Station0 Area inclusive of essential residential accommodation 0.16 hect. (c) District Office for Police Battalion One for 1 million population Area 4.80 hect. (d) Police Line One each for North, South, West and East Delhi Area 4.00 to 6.00 hect. (e) District Jail: One for 1 million population in urban extension Area 10.00 hect. (f) Civil Defence and Home Guards: One for 1 million population in urban extension Area 2.00 hect.

(viii) Distributive services: Standards for LPG godowns are given as under: One Gas Godown for 40,000 population Capacity 500 cylinders for 8000 kg. of LPG 520 sq.mt. (20m x 26 m) Inclusive of chowkidar hut.

(ix)

Socio-cultural facilities: (a)

Community room One for 5,000 population Area

660 sq.mt. 508 R.G. GUPTA -–1995 www.rgplan.org

(b)

(c)

Community hall and library One for 15,000 population Area Recreational club One for 100,000 population Area

2000 sq.mt.

10,000 sq.mt.

42.1.3 Status of the Area Irrespective of type of structure, utilities, services and social infrastructure in a housing complex, status of the cluster where it is situated also matters to a great extent. For example, a good housing if it is situated in a slum area or near a shanty (jhuggi) cluster would not be liked by the people as much, as it would have been in a good environment. For this, status of an area in Delhi can be divided into 10 parts: (i) Shanty (jhuggi) cluster; (ii) Slum area; (iii) Urban village; (iv) Rural village; (v) Unauthorised colony; (vi) Unauthorised regularized colony; (vii) Government staff colony; (viii) Public housing; (ix) Private housing; (x) Cooperative Society Housing. 42.1.4 Space Standards for some other Indicators including Houses There cannot be any hard and fast rules on the subject. These standards vary with the size of the city, status/order of the city and nature of problems. (i)

Built-up areas for different types of houses: (a) (b) (c) (d)

(ii)

Community Service Personnel and EWS = 12.5 to 18 sq.mt. Low Income Group = 22 to 40 sq.mt. Middle Income Group = 40 to 80 sq.mt. High Income Group = 80 to 120 sq.mt.

Size of residential plots: (a) (b) (c) (d)

Community Service Personnel and Economically Weaker Section of the society = 15 to 21 sq.mt. Low Income Group = 25 to 40 sq.mt. Middle Income Group = 45 to 100 sq.mt. High Income Group = 120 to 200 sq.mt.

(iii) Size of different types of built-up shops viz. 6 sq.mt., 8 sq.mt., 10 sq.mt., 15 sq.mt., 20 sq.mt., 30 sq.mt. and 62 sq.mt. (iv)

Roads: (e) (f) (g) (h) (i) (j)

Express highway = 120 mt. National highway = 90 mt. Major arterial roads = 75 sq.mt State highway and arterial roads = 60 sq.mt. Major roads = 30 mt. and 45 mt. Sector roads = 18 mt. and 24 mt. 509 R.G. GUPTA -–1995 www.rgplan.org

(k) (l) (v)

Approach roads = 6 mt., 9 mt. and 13.5 mt. Pedestrian walk ways = 1 mt., 3 mt. and 5 mt.

Services: (a) Water supply @ 30 gallons per day per capita to 80 gallonsper day per capita. (b) Sewage disposal @ 24 gallons per day per capita to 64 gallons per day per capita (c) Storm water drain would depend upon site conditions. (d) Power per day per capita would depend upon the status of the colony. For a high standard colony requirement of power is 20 MW per 100,000 population.

42.1.5 Cost Aspects This would mostly depend upon the construction of houses for different income groups. A study of low cost housing was made in 1975 (details are given in Appendices 42.1 & 42.2) This study is based on 12 types of EWS houses, 13 types of LIG houses and five types of village houses. The author prepared three type designs which were selected and on these basis housing units were built. Details have been given in terms of the following aspects based on cost index of 1975: (i) Sponsoring agency; (ii) Plinth area of one DU in sq.mt.; (iii) Total cost of construction of a structure in rupees; (iv) Cost of construction per sq.mt. in rupees; (v) Cost of reduction than in a normal traditional construction; in terms of percentage; (vi) Density in terms of dwelling units per hect; (vii) Cost of land per DU @ Rs. 100,000 per hect; (viii) Cost of development of land per DU @ Rs. 250,000 peracre or 625,000 per hect; (ix) Administrative/supervision charges @ 10% of the total cost; (x) Total cost of a dwelling unit in rupees; (xi) Cost of a dwelling unit per sq.mt. including all expenditures in rupees. Three types of low Cost Houses displaved in the exhibition have been shown in Photograph 42.1, 42.2, 42.3

510 R.G. GUPTA -–1995 www.rgplan.org