2Plan Formulation

Spatial development planning is a continuous, time-oriented, cyclic process and should be seen and practised as a process where planning, implementation, monitoring, review and plan updating go on as a dynamic process. In this process, the decision to prepare a plan is outside the cycle of planning process. The following diagram portrays the general process of planning.

Following are the stages of planning process:

■ Determination of Aims and Objectives

■ Identification of site needs

■ Identification of projected needs

■ Plan formulation

■ Inclusive planning

■ Statutory obligations

■ Decentralisation of plan approval process

People's participation

■ Plan modification

■ Review and revision of plans.

The aim of the plan is a broad and general statement indicating the decisions of the policy makers, aspirations of the people and needs of the community. For example, ‘To provide job opportunities for all’ is a statement of aims.

Objectives are specific statements indicating the ways and means of achieving the set aims taking into account the potentials. For example, for the aim related to job opportunities, the objectives could be:

■ Provision of jobs through development of industries / commerce or trade;

■ Provision of incentives and inducements (specific) to industries;

■ Provisions of informal sector economic activity sites as part of commercial areas, and such others.

The aims and objectives formulation exercise comprises the following steps:

1. Identification of values cherished by and needs of various stakeholders including citizens, administrators, professionals, politicians, and other group of people.

2. Identification of aims incorporating the values.

3. Identification of criteria that further defines each aim to form basis for formulation of objectives.

4. Formulation of objectives, which could be further defined as design objectives and implementation objectives.

For comprehensive spatial planning and integration of the sectoral development, site specific needs are to be identified in the beginning of the planning process. The report of the Working Group on Urban Strategic Planning (12 $^\{th\}$ Five year plan), states that due to ‘Lack of Comprehensive Planning Approach, haphazard growth and proliferation of slums around industrial locations, peri-urban areas and randomly located new developments such as SEZs and township has taken place’.

Diverse ground conditions and interrelationships in settlements require different strategies for spatial planning. The growth potential and special functions performed by the urban centres such as marketing, industrial, tourism, pilgrim centres etc. need to be explicitly recognized.

At this stage of the planning process, the site needs should be identified based on the typology of urban development- such as port city, old city, industrial townships, peri-urban areas, corridor development, regional development and accordingly the vision needs to be prepared. Table 2.1 throws light on some site-specific features for studying urban and regional settlements while planning. The list is comprehensive but not exhaustive.

Table-Error! No text of specified style in document.1:Site Specific Needs of Few City Types

The stage of identification of site needs should be taken as baseline study phase. As this stage has implications on the following stages, a broad based study should be done for identification and incorporation of as much as elements that are specific to the settlement and are likely to have impact on the future development of the settlements to prepare sound proposals.

After identification of site needs, the next stage in the process of planning is identification of projected requirements of various activities, supporting infrastructure and land as the basic input for plan formulation. It is this stage of planning which would require most of the time. Thus, there is need to minimise the time taken at this stage. In this context, it is emphasised that primary surveys and studies should be rationally chosen so that it saves time and minimises delays in the process. The choice of technique of surveys, analysis, synthesis and projections should also be such that it is effective and time saving(refer Chapter 7 for choosing the planning techniques).

2.1.3.1 Gaps and Projections

Expansion or development of settlement necessarily requires corresponding provision of infrastructure to support residents and economic activities. Thus, infrastructure gap analysis should be carried out mandatorily while preparing the plan. Infrastructure gap can be assessed on the basis of remaining life of existing infrastructure and coverage of infrastructure against benchmarks. Special focus must be paid to the transport infrastructure at this stage. Detailed study/ research of different modes of transportation and their corridors should be carried out to find about travel demand and patter of the planning area. Using public consultations and carrying capacity techniques (further elaborated in the Chapter on Simplified Planning Techniques), current or future requirements in infrastructure can be identified. The background study of standards and guidelines for disaster mitigation should be completed to find out the gaps that may exist in city infrastructure, landscape and administration.

Aims and objectives of the study should also be considered at this level for setting up priorities of development. To incorporate the element of sustainability in human settlement planning and development, environmental and infrastructural carrying capacity study of the planning area must be carried out at this stage. The capacity to hold the population is an indicator for infrastructure projection.

Population projections can be carried out based on past trends, employment and induced growth (of the future proposed economic activity of the land). The corresponding needs of the human settlements on infrastructure are to be projected (refer Chapter 8 on infrastructure norms). Priorities for planned development are identified through norms and standards for buildings, provision of services and infrastructure provided by national agencies, national and state level programmes and policies.

2.1.3.2 Consultation

Public participation is the key to planning exercise and hence different group of stakeholders should be consulted to know the needs and finalise the priorities for projections. Different demographic, social, economic categories of stakeholders can be prepared for wide-ranging public participation such as representatives from agencies and institutions involved in planning and development of the area, elected representatives, associations, experts in the sectors and the resident public.

Figure- 2.2: Identification of Projected Requirements

Based on planning techniques, planning theories/principles, norms and standards - multiple alternatives of urban planning concepts must be prepared. This level of plan formulation also requires vision development. At all scales of

planning, land and transport integration is suggested at this stage of planning, wherein a comprehensive mobility plan is to be formulated. All transportation surveys and studies should be undertaken independently by the transport department or jointly under JnNURM or other schemes before this stage.

2.1.4.1 Visioning Exercise

The focus of the plan preparation exercise should be on ensuring adequate stakeholder participation to arrive at a shared vision for the settlements, with regard to economic development and quality of life. The vision thus arrived should form the guiding principle for the Regional or Development plan. These would include inter alia:

■ Economic Development Objectives (Increase in GDP, Income, Employment and such other)

■ Transportation Objectives

■ Utility Services (levels and coverage) Objectives

■ Social Infrastructure Objectives

■ Safety and security of the citizens

■ Growth Pattern/Design Objectives

■ Investment Program/ Sustainability Objectives, others, if any.

Planning and Development Authority should clearly mention in a plan as to how the plans are likely to benefit the dwellers in economic terms and in this context, the calculation of economic benefits is given in Chapter 7.

Figure- 2.3: Plan Formulation Process

2.1.4.2 Preparation of Alternative Concept Plans

The outcomes of the first three stages would yield a digital updated base map and land information system, a complete report on status of the region/city establishing existing situation with regards all elements of development, identification of areas of concern, a shared vision and development goals and objectives. This should form the input for formulation of the Plan. The planning

horizon for the planning period should be identified based on the recommended planning system and the components should include:

■ Estimation of land requirement for different uses (refer Chapter 5 & 9 for detailing).

- Land suitability analysis: Environmental sensitive areas, social, economic and others (refer Chapter 7 for further context).

■ Delineation of developable area based on environmental land suitability and growth trend.

■ Preparation of a general activity structure.

■ Preparation of a conceptual land use plan as per the required scale (refer Table 7.7).

As projections are estimations of an envisioned pattern, deviation from the projection are always possible and hence projected figures should not be always treated as absolute. Here it is required by planners to build alternative scenarios and situations which may highlight the extremities as pessimistic or optimistic.

The following key remarks to be focused while formulating the plan:

a. Land is limited and a very important natural resource and must be utilized vigilantly. Care should be taken regarding inter-relation of various activities and land uses with each other. Land use to be planned most solicitously. New concepts like compact cities, mixed land use etc. can also be explored, if not for the entire jurisdiction, then for the upcoming zones at least.

b. Deteriorating traffic conditions due to faster increasing travel demand in cities have impact not only on environment but also on economy by wastage of man-hours. Thus, to reduce the trip generation, land use and transport integration should be made at the initial stage by incorporating TOD and mixed land use concepts.

c. As a part of the plan implementation, a study regarding quality and quantity manpower should be done and suggestions be made concerning human resources requirement for effective implementation of all the aspects of the plan.

d. Vertical mobility of the vulnerable sections of the population must be integral to the planning goals. Inclusion of the women and population involved or dependent on the informal sector must be consulted while preparing plans.

e. To prepare and implement all the aspects of the plan for the whole plan period requires steady flow of finance, otherwise the optimum outcome of the plans cannot be realized. Thus, it is imperative to plan and map out all the financial sources in the beginning of planning process so that plan proposals and milestones targeted can get maximum results. It should include financial aspects not only for plan implementation but also for plan preparation. At this stage, revenue generation capacity of plan itself should

also be defined with measurable milestone against which plan could be monitored and reviewed from time to time.

Other parameters, based on which plan is prepared and projected for plan period should be provided with distinct measurable milestone against which plan must be intermittently reviewed at interval of 5 years and finally evaluated at the completion stage. This will work as input for next planning process from the previous plan period.

g. Remote sensing and GIS technologies should be used to speed up the plan formulation process. Large amount of spatial and attribute data can be processed through these platforms and alternate concepts of planning settlements can be prepared in shorter time span. The data available with the NRSC, SRSAC, Bhuvan and NUIS can be utilised for the plan preparation (refer Chapter 7 for methodology).

h. Other elements like planning legislation, development promotion rules and urban design features should also be incorporated to prepare alternatives, which will be further detailed as the proposed plan.

i. Green areas and related non-economic activities to be preferably proposed on Government land to avoid loss of economic benefit of the private landowners. In case such activities are proposed on privately owned land, the local authority preparing the plan should provide a fair compensation as per law to the land owner.

2.1.4.3 Selection among Alternatives

The next level of plan formulation requires evaluation of all the alternatives to reach one selected alternative that would be elaborated to prepare plan for the settlement. At this stage, focused group discussions or selected representative's discussion can be arranged as appropriate. Usually evaluation of alternatives result into another newly developed concept, which derives the best from all the options.

Inclusive development as perceived by Central Government in 12$^\{th\}$ and 13$^\{th\}$ five year plans focuses on broad based improvement in the living standards of all residents of the country. 11$^\{th\}$ five year plan's approach was “Faster and more inclusive growth” while 12$^\{th\}$ five year plan called for “Faster, more inclusive and sustainable growth”.

Inclusive planning means infusion of varying aspects, which lead to growth of whole society into development process, such as integrated trunk infrastructure, sustainable development, poverty elevation, decentralised decision making with special emphasis on women, elderly and disabled friendly infrastructure and

financial planning. These facets of development were not traditionally recognised distinctly. Thus, for overall development of residents of human settlements in India, inclusivity in planning must be fundamental feature.

Inclusive development in planning should have focus on the following parameters; other such features to promote inclusivity in development process can be identified based on the needs and requirements of settlements and time $^\{1\}$ :

■ Inclusive governance: entire system must function in a manner, which is seen to be fair and inclusive.

Inclusive Sustainable development: Development is a qualitative indicator rather than quantitative. Development of human settlements should not be uni-directional causing environmental degradation in the process. To direct growth on sustainable manner Environmental Impact Assessment should be essential part of development plans and projects.

■ Inclusive access to healthcare and education.

- For inclusive employment and regionally balanced growth, MSME should be promoted through Plans.

■ Developing capacities of Infrastructure: Infrastructure plays an important role in growth and development of cities. It also promotes inclusivity in the society by means of easy access to services.

Agriculture has been identified as very important for promoting inclusivity. Various Laws, Policies and Guidelines make provisions that agriculturally fertile/ multi-cropped land be acquired as last resort. Same provision should be followed while planning for human settlements too.

For holistic development of entire population, issues concerning the people employed in informal sector, besides, women, elderly and the disabled, must be included in the entire process of plan preparation.

The Plan should aim at creation of wealth and employment, in an inclusive and sustainable manner.

Numerous laws and policies made by the Central and the State Legislature and Governments impact spatial plans. Missing out on one or more of these could create serious impediment for implementation of the Plan at a later stage. Therefore, at the stage of plan formulation, a study would need to be conducted to list out all legislations and their impact on the Plan formulation and implementation, to ensure affirmation with all the relevant laws.

Following the spirit of the 74 $^\{th\}$ CAA and also recognising the fact that the current process of approval of urban development plans is time consuming resulting into delays, it is recommended that the plan approval process be decentralised as follows:

Table-2.2: Decentralised Plan Approval Process

Once the authority approves the draft plan, it can be put in public domain as per the State Town & Country Planning Act for inviting objections and suggestions from the public and various stakeholders.

The approach of planning should be shifted from top-down to bottom-up approach to make planning process more inclusive, comprehensive, and sustainable. Greater public acceptability is desirable, to ensure that plans are relevant. People can participate in the development process in the following realms:

■ Pre-plan participation in decision making in vision development, for identification of development priorities.

■ Post-plan participation before finalisation and implementation of development programmes and priorities.

■ Participation during implementation and evaluation of development programmes and project.

■ Participation and sharing the benefits of development, managing the assets etc.

e-Platform and crowd sourcing are coming up as new modes of obtaining feedback speedily.

Taking into account the interest, attitude and behaviour of the people, role of urban development professionals and obligations of local authority, a system of participatory plan approach has been suggested as under:

Table- 2.3: Participatory Planning Approach

Source: Community Planning Assistance Program, Arizona Department of Commerce and UDPFI Guidelines, 1996.

The suggested indirect participation of the people is ensured through elected representatives in the municipal council / corporation and ward committees. The direct participation can be through individuals, citizens, neighbourhood, business, consumer, and other such groups.

There are several mechanisms and avenues for people's participation available today, few of these have been presented below. Such mechanisms and avenues can be used to bring wider and more interactive participation of public in planning and developmental process$^\{2\}$:

Community Design Charrettes $^\{i\}$ (see endnote): It is a multiple-day interactive meetings, workshops and site walks/visits that fosters diverse and community-sourced ideas;

Advisory Committees: Committees made up of representatives guide planning efforts over an extended period of time while regularly meeting during the planning process;

- Low-Cost Demonstrations and Transformations: Use of blocks and day to day objects to create a low cost model of proposals for visual understanding. Relatively inexpensive temporary transformations are made to test the project and experience changes.

■ Focus Groups: allow small groups of stakeholders to provide their knowledge of a project area and discuss their concerns and issues with local authority staff, planning consultants etc.

- Other: Citizens report card, participatory mapping and participatory budgeting etc.

Once the plan is formulated, a draft is to be submitted to the State Government for comments. After incorporating comments in the plan, Draft Plan is published to invite Objections and Suggestions (O&S) from the public. The process of inviting O&S leading to final notification should be based on the provisions of the State Town & Country Planning Act.

2.1.9.1 In between the period of Plan formulation to finalisation

Currently there is no legal provision by many of the State to control or record landuse change in the period between preparation of Existing land use map and Gazette Notification of the approved Proposed land use plan. The conversion of the land use is done according to the provisions of Town and Country Planning Act and Urban Development Act of States. The process and time frame varies from State to State.

The State of Kerala has provision to monitor landuse change between the mentioned period of planning. According to the Kerala T&CP Ordinance, 2013, Interim Development Order may be published by the local authority with the objective to control the interim development of land included in any planning area notified. The expression ‘Interim Development’ means development during the period between the date of notification of intention to prepare a plan and the date of coming into operation of the plan. Such orders must be approved by DPC or MPC. Further, the plan preparation time should be adequate to support Interim Development order.

Figure-2.4: Plan Modification Process

A Regulatory body (Urban/ Regional Planning & Development Regulatory Authority) at State level should be established to regulate and monitor the functioning of Urban and Regional Development Authorities/ Agencies. This regulatory body should assess and monitor planning, observe and evaluate impacts of planning, quicken the process of approval of plans in the States.

Plan evaluation after every five years must be built in as permanent process, and be mandatorily done at the completion of the planning period. The parameters for evaluation of plan must be predefined in the early stages so as to have a set of parameters as benchmarks towards the end of plan period. The basic parameters are provided in Table 2.4, besides these, other specific predefined plan related evaluation parameters could be added.

Table- 2.4: Parameters for the Evaluation of Plans

The basic objective of the review/ evaluation would be to assess the progress and identify area of success, failure and conflicts to guide/correct the future course of action. This is an important step in the dynamic planning process, which hitherto has not been effectively utilised. This activity should be made mandatory under the respective T&CP Acts.

The following sections provide more details of various stages of this process.

The plan monitoring parameters should be standardised by Urban/ Regional Planning Development Regulatory Authority for third party evaluation and monitoring report to be submitted annually. The key aspects of monitoring (apart from Table2.4) are suggested as:

■ Institutional set-up of the authority in place (parameter may include adequate staff and required qualifications, health & safety norms followed)

- Change in the jurisdiction of the planned (parameter may include extent of the area)

- Change in the density (parameters may include population density, built-up density)

Infrastructure development (parameter may include actual infrastructure works vis a vis the proposed targets or benchmarks)

■ Decongestion (parameter may include reduced travel time)

- Investments (parameter may include proposed investments under various heads and actuals)

■ Public Participation (parameters may include formulation of citizens' charter and its functioning)

■ Indicators of success and indicators of failures

Monitoring of performance is detailed in Annual plan given in section 2.2.6.

The Perspective Plan, Regional Plan, Development Plan, Local Area Plan, Special Purpose Plan including the Comprehensive Mobility Plan and City Sanitation Plan, are prepared usually for duration of 20 years, though some States have attempted even for 30 years. However, in the context of fast evolving social, economic and technological developments, it would be desirable to review these plans regularly, at the interval of 5 years or so. Such reviews should also incorporate the changes in legal framework and government policies, as are notified from time to time. Care should, however, be taken, that the process of revision does not take too long and is completed within 6 to 10 months.

As regards Annual Plans, there would normally be no need to undertake any review per se. However, a review of previous year's annual plan should be included in the exercise of annual plan preparation. Performance of the projects/schemes implemented by the local authority, as contained in the annual plan of the previous year should be reviewed in terms of achievements of the physical and fiscal targets. This would ensure a continuous monitoring and review of actions taken by local authority. Results of the review should provide input for perpetration of next annual plan. The monitoring of the plans/projects should be regular so that time taken in review and formulation of annual plan is minimised.

The Projects / Research should be reviewed even during the project/ research period, to ensure that the data sources, research methodology and analysis are realistic and do not suffer from infirmities.

The approved plan should consist of a report, supplemented by the existing and proposed land use plans. The Report should include list of tables, list of illustrations and annexures, which should be appropriately referenced. More

importantly, the aims and objectives, scope of work, limitations and methodological framework should be highlighted.

The contents of various plans could be as follows:

The Perspective Plan should be driven by the vision and mission of the exercise being undertaken. Whereas the vision may refer to the end state, the mission should clearly focus on the steps to be undertaken to achieve the end state. At the same time, the perspective plan must take into cognizance the relevant policies and statues of the Central and State Governments and projects/ schemes being implemented at National, State, District, Region and Town levels. Based on the foregoing analysis, clear strategies should be worked out for urban and regional planning and development including for the peri-urban areas, environmental protection, heritage conservation and the linkages between these aspects.

Surveys and analysis form the core issue both in terms of spatial and attribute data sets. Based on this analysis, alternative strategies for development may be worked out and the most appropriate strategy for development indicated for detailing out further. Accordingly, the contents of a perspective plan shall broadly encompass the following:

■ Existing Scenario in overall terms.

■ Projected requirements for the horizon year based on the total quantum of land available and that can actually be used for development.

- Specific planning studies related to setting, linkages both socio-economic and physical, and likely challenges. In addition climatological studies, identification of areas prone to hazards, environmentally sensitive zones.

■ Population projection for the horizon year based on past trends and other statistical methods to arrive at assigned population for the horizon year.

■ Economy and employment levels, both existing and projected.

- Shelter-including shortfalls in various categories of housing stock and the total requirement

■ Transportation-analysis of the existing network, projected requirement based on detailed OD surveys.

- Institutional uses both existing and required for the horizon year in terms of education, health, socio-cultural, religious, and distributive services like police, fire, telecom etc.

■ Infrastructure in terms of water, underground sewerage, drainage, and solid waste management.

■ Resource base- monetary resources required to implement plan proposals vis-a-vis financial health of the local body/implementing agencies.

- Manpower resources both existing and proposed as per requirement.

Given the extent of the planning area and the assigned population to be accommodated, physical proposals may be drawn up driven by transportation and activity nodes.

It is important to ensure that projects/schemes are identified at this level itself including their costing and modalities for implementation.

Regional Plan is to be prepared for the area identified as formal or functional region, which could be state/ interstate/ district/ inter-district, investment region or special area. If region so identified is interstate, all such states will need to prepare sub-regional plans for their respective areas. For a regional plan for a normal region, the following key contents to be included:

1. Introduction of the Region

2. Analysis of regional resources

3. Projected requirements

4. Major proposals and projects

5. Implementation Plan

For regional planning for an Investment Region or Special Region, ‘delineation of the region’ to be included in the above given contents (refer chapter number 4 for content details).

1. Introduction of the Region

■ About the Region

- Constituted areas: Region, Sub-region, Functional areas, Growth centres etc.

■ Ratio of Urban and rural development

■ Region Morphology

2. Analysis of Regional Resources & Project Requirements

3. Physical setting

■ Administrative profile

- Connectivity and Economic linkages

2. Geography of the Region

Topography

■ Geology & Geomorphology

■ Hydrology (Surface and Ground water)

Climate

■ Minerals & resource mapping

■ Study of State Land Utilisation Policy

3. Demography (Region and Sub-region wise)

■ Population and its distribution,

■ Population density

■ Age-sex composition and literacy rate (trend analysis)

■ Growth of population (natural and migratory)

■ Population projection based on scenarios (refer Chapter 7)

4. Settlement pattern

■ Urban and Rural settlement

- Peri-urban areas and analysis of existing key developments

■ Hierarchy of settlements (refer Chapter 4)

■ Density of settlements

5. Transportation

■ Mode of transportation - by road, rail, air, water as the case may be

■ Network of roads, railways, waterways and their interrelationship with major activity nodes

- Traffic volume

- Pattern of movement

■ Transport Corridors & terminals

6. Physical and Socio Economic linkages

Education

■ Health care (multi-speciality hospitals, health centres)

■ Recreational

Religious

- Gap assessment and requirement for the projected population

Physical Infrastructure

Water

Energy

- Drainage, sanitation and refuse and solid waste disposal

■ Communication

■ Police protection, fire protection

■ Disaster Management cell

■ Cremation and graveyards

■ Gap assessment and requirement for the projected population

Heritage & tourism

■ Flow of Tourist (season wise and origin wise)

- Mapping of Natural heritage and Man-made heritage

■ Tourism infrastructure analysis and gap assessment

■ Major Economic sectors

■ Distribution of workforce in formal and informal sector

■ Workforce participation ratio

Occupational structure

■ Economic nodes

Shelter

■ Housing scenario

■ Housing stock & supply

■ Housing need assessment including typologies

- Low cost housing

- Night shelters

- Slum settlements

7. Environment

■ Agro-climatic zone

- Eco-sensitive zones- Protected or restricted areas such as National parks and Wildlife sanctuaries and eco-sensitive buffers around it

Rivers, water bodies and wetland

Coastal/ hill zone, if any

■ Green & Forest cover

Environmentally sensitive areas- Hazard prone zones such as earthquake, floods/ flash floods, high winds, cyclone, fire, land slide, tsunami, vulnerability and risk assessment of the region.

■ Pollution levels of water, soil, land, air

3. Major Proposals and Projects

4. Regional policy & Development strategy

■ Policy for zones of development

■ Growth poles & Satellite townships: strategy of development of settlement system

■ Recommendations on Urban centre jurisdiction changes, if any

■ Development corridors and TOD zones

■ Economic activity and fiscal policy

■ Major economic thrust sectors& its identified markets (focus on encouraging economic activities for formal and informal for women empowerment)

2. Regional land use and Development Controls

- Land use proposal: built-up area, agriculture, protected areas, waste lands, water bodies etc. conforming with State Land Utilisation Policy and State Perspective Plan

■ Proposed hierarchy of settlements - Priority towns and Counter magnet areas

■ Major economic hubs and industrial estates/ parks for cluster development

■ Development Control Regulations for various regional uses

3. Regional infrastructure

■ Mobility: Transportation proposal at Regional level (including locations for integrated freight complexes, multi modal hubs among others)

■ Major proposed institutional areas and policy on its location in peri-urban areas

- Proposals for other infrastructures for water supply, sanitation, decentralised treatment and for health, education at regional level (proposal to ensure that facilities and infrastructure are easily accessible to female population and differently abled / physically challenged / disabled).

- Earmark spaces and norms for services like communication (postal and telephone), protection (police, fire) and others at regional level

■ Preferred locations for power generating activities

- Preferred locations and norms for regional landfill site

4. Disaster Risk Mitigation measures as per NDMA guidelines (refer Chapter 6)

5. Tourism: locations for promotion (even if seasonal) and proposed circuits

6. New and Modified Policies

- Alignment with State Policies for Environmental, Land Utilisation Policy etc.

■ Plan for Slum free City

■ Rationalization of Floor Area Ratio (FAR) for villages/ transitional towns

■ Policy on Tribal Settlements

■ Proposals for MSME clusters or recommendations for separate studies

■ Policy and action plan for decentralisation/ dispersal of hazardous and polluting industries and allocation of suitable land for industries clusters

■ Policy and priorities for informal residential areas/ slums and unauthorised colonies.

■ Other Issues that need New Policies, Incentives and disincentives.

4. Implementation Plan

■ Implementation strategies for the region for land and resource mobilisation

Coordination of local bodies and authorities and integrated management structure for the region

■ Estimation of the Fiscal requirement phase-wise and source of fund. Specifying projects to be taken up under PPP

■ Capacity building for manpower and preparation of its work plan as per State policy

- Priorities of the developmental projects and further detailing of plans

- Framework of monitoring and its mechanism

This part recommends the contents of development plan document, which would include the written document as well as the map showing the spatial plan and other supporting charts and diagrams. Major heads and sub-heads to serve as a guide for formulation of development plan of an urban centre are given below.

Contents of Development Plan should be formulated in accordance with statutory provisions of the relevant Act. With the view of saving time and also developing a participatory system of planning, necessary information from secondary sources should be utilised, as far as practicable, and primary surveys should be conducted only when it is unavoidable. Conceived within the framework of the perspective plan and adjusted as per the Regional District Plan, a Developmental Plan is to be prepared for a period of 20-30 years. While preparing Development Plan, special attention must be paid on safety, security and participation of women, the elderly, and other segments of society requiring special needs.

The Development plan should contain the following major heads:

1. Existing Conditions and Development Issues

2. Assessment of Deficiencies and Projected Requirements

3. Vision and Mission

4. Development Proposals

5. Implementation Plan

The details of each of the major sub-heads of developmental plan are given in the following sections.

2.2.3.1 Analysis of Existing Scenario and Development Issues

1. Background:

- Location, regional setting and connectivity

■ Brief history of development of the town

City influence and its characteristics including settlement pattern, rural-urban relationship and fringe area developments

- Physical setting – Topography, Climate, Soil (profile and condition), Geology & Geomorphology, Lithology, Neo-Tectonics, Micro-Seismic zones and Hydrology, - Sub-surface aquifer system

2. Demographic Profile

■ Existing population and distribution

■ Population growth and its composition of

- Natural growth

- Migration pattern/

- Jurisdictional changes

■ Floating population

■ Age-sex composition and literacy rate (trend analysis)

■ Workforce participation

■ Population density (net and gross)

■ Household characteristics-household sizes

3. Land Profile:

Jurisdiction changes and efforts of planned development

■ Existing land use map with revenue level details (map scale as per Table 7.7)

■ Developable and non-developable area

■ Peri-urban areas and urban villages, if any

■ Existing zoning and development within zoned area (including inner city area)

■ Built floor space, floor space permitted

■ Particulars including - vending zones, Heritage (sites, buildings and areas)

■ Land development and management (Central & State Government land)

4. Economic Profile:

Primary:

- Agriculture, horticulture & forestry

- Sericulture and/or Fishing

- Mining & quarrying

Secondary:

- Manufacturing - large, medium and clusters of MSME

– Household industries

- Construction

Tertiary:

- Trade (whole sale / retail trade)

– Tourism, Hotels and Restaurants

- Transport, Storage and Communication

– Financial services such as Banking, Insurance etc.

– Real estate and Business services

– Public Administration

- Others services

- Informal sector as informal trade, commerce.

■ Work force and Occupational pattern (Employment data to be analysed gender wise and age wise)

■ Employment generation / Major work areas

5. Infrastructure Profile:

Transportation:

■ Mode of transportation - by road, rail, air, water as the case may be.

■ Network of roads, railways, waterways and their interrelationship with major activity nodes

■ Transport Corridors & terminals.

■ Trans-intra city transportation facility

■ Pedestrian and bicycle

■ Network of city-level non-motorized routes and zones

- Goods movement system

■ Transportation land use integration

Parking

■ Signage and way findings

Facilities like:

■ Education: schools, technical institutes, universities,

■ Health care: Dispensary, health centres, hospitals

■ Recreational spaces, Parks and open spaces

Religious spaces

■ Socio-cultural facilities

■ Water supply: network, existing demand and supply scenario, water transmission, reservoirs and distribution

■ Energy: existing demand and supply scenario, transmission and distribution network

Drainage, sanitation and solid waste disposal: existing demand and supply scenario, generation and collection system, transportation, treatment and disposal of waste

■ Communication

■ Police protection, fire protection

■ Cremation and graveyards

■ Disaster management centre

6. Environmental Profile

- Eco-sensitive zone - Protected or restricted areas such as National parks and Wildlife sanctuaries and eco-sensitive buffers around it

■ River, Water bodies and wetlands

Coastal/ hill zone, if any

■ Green & Forest cover

- Pollution levels - air, water, noise, soil pollution

■ Disaster Management

- Hazard prone zones such as earthquake, floods/flash floods, high winds, cyclone, fire, land slide, tsunami

- Disaster mapping - vulnerability and risk assessment of the region

All environmentally sensitive areas

7. Shelter (both formal and informal)

■ housing scenario

■ housing stock & supply

- mapping of slums, squatter settlements/JJ clusters, other informal settlements

■ housing supply mechanism,

■ housing need assessment including typologies

- Low cost housing

- Affordable Housing

- Rental Housing

- Night shelters

– Public housing

- Slum settlements

- Squatter settlement

8. Administrative profile:

■ Legal framework

■ Institutional framework & manpower

■ Fiscal: Sources of revenue, streams of expenditure – existing, required

■ Major policy issues

■ Key issues in governance

■ Grievance Redress

■ City level reforms

9. Maps & Plans

■ Existing land use / utilisation plan

Historical city growth map

Infrastructure maps

■ Environmental sensitive zones map

- Disaster maps

10. Gap analysis

- Based on the existing conditions and the projected requirements of the planning area, a gap analysis is suggested to be done and issues be identified.

2.2.3.2 Projected Requirements

Assessment of projected requirements should be for a period of twenty to thirty years and it should further be classified under periods of 5 year in line with State five-year plans. Such classification would help in preparation of annual plans and budget.

1. Population

- Projected population: should be guided by environmental and infrastructure [especially drinking water], sustainability and holding capacity of the city. Dispersal of economic activity may also guide population projection

- Floating population, age sex composition, literates

2. Economic base and employment

■ Hierarchy of commercial areas, dispersal of commercial activity and related activities

■ Dispersal of industries, environmental restriction on industrial development

■ Urban poverty and its alleviation.

■ Work force, employment in different sectors of economy: formal and informal sectors

- Proposed hierarchy of trade and commerce area

3. Shelter

- Informal sector housing, slum up-gradation and resettlement strategy,

■ Housing need and requirement

4. Transportation

- Mass transportation system and its integration with activity nodes/facility centres and land use pattern

- Need for Airport, seaport (as the case may be)

■ Travel demand forecast, Road length, hierarchy of roads, transport terminals

■ Projection of parking requirements

■ Proposed network of city-level non-motorized routes and zones

5. Social Infrastructure

■ Education: schools, technical institutes, universities

Health care: Dispensary, health centres, hospitals

■ Recreational: Parks and open spaces, theme based parks

Religious

Socio-cultural: museum, cultural centres

■ Cremation/ Burial grounds

6. Physical Infrastructure

■ Water: projected water demand, water treatment plant

■ Sewerage: estimation of generation and treatment capacity

■ Power demand and supply gap

Drainage: estimation in case of change in jurisdiction, developable area or major change in land use share

- Gap assessment & projection of other utilities

7. Land use requirement for

■ Residential areas

■ Commercial areas

■ Manufacturing area

■ Public and semi-public

Parks, Playgrounds and Open Spaces

■ Transport and Communication

■ Special areas

Agriculture

■ Water-bodies

8. Assessment of Disaster management infrastructure to meet the requirement of prescribed in the District Disaster Management Plan

2.2.3.3 Development of Vision

The plan, at this stage is to formulate Vision based on existing conditions and development issues and stakeholder consultation. Goals and objectives related to dispersal of activities, environmental and infrastructure sustainability, mass transportation and informal activities, Information and Communication Technology, women and poorer sections to be incorporated if not already included.

It should consist of the guiding planning principles for the plan formulation. Like whether the city development strategy is for Compact city/ green city/densities/ particular zones of density. Also, if it is a tourist city, heritage city, educational hub, industrial city etc.

2.2.3.4 Development Proposals

The proposal sub heads are enlisted as:

1. Land use Plan:

- Hierarchy: Concept of hierarchy of planning units and spatial development of various activity nodes, facility centres and network of roads

■ Proposed land use plan (scale of the plan as per Table 7.7)

■ Zoning regulations for proposed land use categories (refer Chapter 9 for details for the land use classification) including:

- Residential areas

- Commercial areas

– Manufacturing area

– Public and semi-public

- Parks, Playgrounds and Open Spaces

- Transport and Communication

- Special areas

- Old built-up (core) area

- Heritage and conservation areas

- Scenic value areas

• Disaster prone areas / Eco sensitive area

– Primary activities

- Water-bodies

2. Comprehensive Mobility Plan:

■ Mass transportation system and land uses interfaces.

■ Integration of proposed Comprehensive Mobility Plan

3. Infrastructure Plan/ Utility Plan:

- Layout of plan of trunk infrastructure of each infrastructure and utility at the scale of the proposed land use plan

4. Special Area Planning:

■ Plan for Renewal and redevelopment areas or recommendation for the further detailing of Urban Redevelopment Plan for the earmarked area

■ Provisions for Heritage and conservation areas

■ Regulations for the Hazard zone and protected areas

■ Proposals for development of women and vulnerable population

5. Development Promotion Rules / regulations

To regulate and develop land use as mooted under the Development Plan, development promotion rules / regulations should be mentioned in this section

6. Annexures:

■ Detailed scaled maps of existing conditions

■ Detailed scaled maps of existing Land use

■ Detailed scaled maps of proposed Land use

■ Detailed scaled maps of proposed infrastructure plans and social services

■ Detailed scaled maps of proposed Special purpose plans

2.2.3.5 Implementation Plan

Following inputs from preceding stages and prevailing Statutes, a seamless plan implementation schedule must be prepared for Development Plan. It should contain roles and responsibilities of all stakeholders, resource mobilisation framework and phase-wise implementation schedule for planned project activities. The key aspects to be covered in the Implementation framework should be in line with aims, objectives and prioritised projects and schemes. Implementation framework may include the following:

■ Priorities of projects and research

■ Phasing of developmental activities

■ Proposal for land resource mobilisation

■ Investment Strategy and Promotion

■ Institutional set-up

1. Priorities: Classify various projects identified as a part of development proposals by priority as under

■ Essentials (top priority)

Necessary (2$^\{nd\}$ priority)

■ Acceptable and desirable (3 $^\{rd\}$ priority)

- Deferrable (4$^\{th\}$ priority)

Projects and research should be identified by phases and implementing agencies (including private and corporate sectors) to be given as per the institutional set-up.

2. Phasing: Development Plan should advisably be in phases of 5 years to coincide with the State Five Year plans. The targets set for each phase can be assessed as the mid-term review against the achievements at the end of each phase. For Greenfield area phasing could include a 'Zero' period for approvals, institutional set-up, initial land pooling and revisiting any strategy.

3. Proposal for land resource mobilisation: Implementation mechanism detailing approaches for land polling and development in lines with the suggested mechanism in the State Perspective Plan

4. Investment Strategy: Proposals for fiscal resource mobilisation including:

■ Internal revenue

Grants & Aids

■ Institutional finance

■ Market borrowing

■ Private sector finance

5. Institutional Set-up to clearly provide Stakeholders' role and responsibility and organisation chart.

Once the Development plan is prepared, its proposals can be further implemented by preparing local area plan. Local area plan can be either Zonal Development Plan or Local Area Scheme and these can have the following contents:

2.2.4.1 Contents of Zonal Development Plan

1. Introduction

A brief introduction to the city comprising its regional setting, functional character growth trends.

■ Development plan / Master Plan context

■ Interdependence of Zone on other parts of the city

2. Site Background & Analysis

■ Land use distribution and analysis

■ Population and density

■ Built-up area, character, extent and delineation

■ Transportation: Circulation network, traffic flow (people and goods) and terminal facilities

■ Physical and social infrastructure

Land ownership

Slope analysis

■ Micro zoning hazard mapping

■ Green cover: parks/open spaces, forest, orchards, green belts, etc.

■ Site potentials and constraints

■ Security mapping: specifying relatively safe and unsafe areas, streets etc.

■ Types of housing subsystems: low cost housing, affordable housing

3. Conceptual Framework

- Planning parameter

- Planning concept & hierarchy till community level

■ Projected requirements

■ Urban design framework

4. Proposals and development strategy

- Land use plan (scale of plan as per Table 7.7)

■ Proposed circulation system

■ Proposals for physical infrastructure

■ Proposals for community facilities

■ Strategy for new development, redevelopment and improvement

■ Proposal for integrating and developing urban villages

■ Proposals for informal sector

■ Strategy for rehabilitation/regularization of unauthorized colonies

■ Strategy for maintenance of services

■ Provision for facilitating physically challenged and disabled in urban development

- Proposals regarding vending zones: Transit-oriented markets and market streets can be pedestrianized or only NMVs and buses be permitted in vending zones.

5. Conservation and Improvement of Environment

■ Conservation and Improvement of land profile

- Proposals for conservation and improvement of rivers streams, water-sheds.

■ Conservation and Improvement of green cover and landscape.

■ Conservation of heritage areas/zones.

■ Energy-efficient and environmentally sustainable development

■ Provision for rainwater harvesting & common infrastructure at LAP level

■ Integration of proposals regarding air water and noise pollution control.

■ Security mapping: Focusing on provision of appropriate street furniture including lighting, spacing of police booths. Consideration is recommended for providing security for women.

6. Compliance of Government Policies

■ State Land Utilisation Policy

■ State Perspective Plan and/or State Urbanisation Policy

■ State Urban Housing or Affordable Policy

■ Township and Integrated Township Policy

■ Rainwater Harvesting Policy

■ Energy Policy

■ Disaster Management Policy

■ Industrial and Service Sector Investment Policy

■ Barrier-free Environment for Physically Disabled

Information Technology Policy

■ Tourism Policy

■ Other Policies

7. Zoning Regulations

■ Definitions of various use zone premises

■ Use restrictions (uses permitted, conditionally permitted and uses prohibited)

■ Proposal for mixed land uses

■ Strategy for non-conforming land uses

■ Strategy for hazard zone and regulations

- Proposals for meeting women's needs: mixed use development with focus on street activities/TOD/ spaces for street vendors/ encourage areas to be active at various times of the day and night

8. Development Regulations

■ Building regulations and building bye-laws

■ Urban Design of major hubs, if required

■ Architectural Control, if necessary.

- Specific development controls for heritage areas and other special areas traditional areas as defined by the local authorities if any may be provided.

9. Resource Mobilization and Implementation

■ Institutional set-up for Implementation

■ Physical Infrastructure development cost including annual and 5 year phasing

■ Resource Mobilization for implementation through public private and other sectors

10. Implementation framework

■ Phasing and prioritization of development

■ Development Management

11. Annexures:

■ Detailed scaled maps of existing conditions

■ Detailed scaled maps of existing Land use

■ Detailed scaled maps of proposed Land use

■ Detailed scaled maps of proposed location of infrastructure and social services

■ Detailed scaled maps of vending zones in the planned local area

Any other proposal necessary for the development of the zone or ward or area.

2.2.4.2 Specific Contents of Urban Redevelopment/Renewal Plan

Urban redevelopment or renewal plans have following distinct contents, apart from the local area plans' contents as provided in the preceding section:

1. Development gaps & projected requirements

2. City Revitalisation Strategy

3. Development proposals: Typology of the urban development- transportation, infrastructure, congestion areas revitalisation, heritage resources, utilisation of Government properties

4. Restructuring of Institutional set-up, if required

5. Annexure

6. Local Area Plan (Ward Plans) shall be aggregated at the Zonal Development Plan Level coterminous with the Administrative Divisions/Boundaries and Zonal Development Plans shall be aggregated at the Development plan level.