Land use planning is understood as a systematic and iterative procedure carried out in order to create an enabling environment for sustainable development of land resources which meets people’s needs and demands.
Land, including the benefits arising from it are finite. Any country, under usual circumstances, has finite land resource. India being the seventh largest country in the world, land resource management is becoming very important. India has over 17% of world’s population living on 2.4% of the world’s geographical area.
Given the economic situation and its demographic resource, development is inevitable, and such expansion demands land as the primary resource. In a high density country like India the use of land must be juudicious to achieve equity.
According to the Entry No. 18 of the Seventh Schedule (the State List) of the Constitution of India, land including assessment and collection of revenue, maintenance of land records, land management and alienation of revenue etc. fall under the purview of the State Governments. “Land” being a State subject, falls under the legislative and administrative competence of the States. Land use planning falls, therefore, under the responsibility of the State Governments.
As per Article 39 of the Constitution: (1) the ownership and control of the material resources of the country should be so distributed as best to serve the common good; and (2) the operation of the economic system should not result in a concentration of wealth or a means to production to
the common detriment.
As per Article 243ZD(1) of the Constitution, “There shall be constituted in every State at the district level a District Planning Committee to consolidate the plans prepared by the Panchayats and the Municipalities in the district and to prepare a draft development plan for the district as a
whole”. While the Constitution provided for spatial planning, the National level activities currently are focused to evolving policies, guidelines and model laws for adoption by the States, disbursing and monitoring assistance/grants/funding, and formulating development plans and
policies for Union Territories. The Constitution (Seventy-fourth Amendment) Act, 1992 provides for District Planning and Metropolitan Area Planning that consolidates plans of both panchayats and municipalities having regard to spatial (land use) planning. The District Plans prepared currently, in general, do not cover spatial (land), environmental as well as urban concerns.
The current land use profile in the country is conflicting and competing. “Conflicting land uses” are those that are in conflict with the existing land use. Certain land uses cause impacts on other land uses nearby. “Competing land uses” are those that compete for the same parcel of land for their location. Both, competing and conflicting land uses frequently are also the reason for social conflicts between the local population and the authorities and prospective investors.
Impacts of improper land use has led to reduction in forest cover from 40.7% to 22.6% between 1950/51 to 2007/08. Other issues include soil erosion, encroacment, fragmented implementation of water resource projects, and risk to biodiversity.
Core issues
- Unregulated land use shifts: Impacts of improper land use has led to reduction in forest cover from 40.7% to 22.6% between 1950/51 to 2007/08
- Reducing per capita land resource: Due to growing population in India, the per capita availability of land has reduced from 0.89 Ha in 1995 to 0.27 Ha in 2007/08. It is estimated that by 2030, India will become the most populated country on earth with 17.9% of world’s total population.
- Meeting the demands of rural and agriculture sectors and the impending Malthusian Trap.
- Protecting lands under natural resources and ecosystem services: India comprises seven climate regions and nine bio-geographic regions.
- Meeting urbanisation demands: According to the world population prospects by the United Nations, 55% population of India will be urban by the year 2050.
- Meeting Economic Demands: Industrial and Mining growth is expected to grow at least at 8%.
- Meeting transport sector demands to suppport the Population and Economic development.
- The developmental activities require land and they have potentials to displace people, exploit natural resources and cause negative environmental impacts as well as other land use conflicts.
- Protection of the vulnerable population and their rights in India.
- Inadequate land use planning capacities in the form of lack of relevent database and manpower with the state.
The current land use planning under the UDPFI guidelines consists of perspective plan, Development plan, Annual plan and plans for specific projects and schemes. These plans are supported by Industrial investment zone planning, Eco sensetive area planning, Mining area planning, watershed management, Coastal zone planning, land use boards, etc.
Guiding principles for National Land utilisation Policy
- Human beings are at the centre
- Inclusive growth, poverty eradication and gender equality – equal opportunities.
- Balanced development and intergenerational justice.
- Efficient utilisation of resources and mitigation of impacts
- Integrated and comprehensive development planning
- The states are custodian of the land.
- Harmonization with existing policy, legislative and regulatory framework.
Objectives of the National Land Utilisation Policy
- Protection of agricultural lands from land use conversions so as to ensure food security and to meet consumption needs of a growing population and to meet livelihood needs of the dependent population.
- To identify and protect lands that are required to promote and support social development, particularly of tribal communities and poor section of society for their livelihood.
- To preserve historic and cultural heritage by protecting, places/sites of religious, archaeological, scenic and tourist importance.
- To preserve and conserve lands under important environmental functions such as those declared as National Parks, Wild Life Sanctuaries, Reserved Forests, Eco Sensitive Zones, etc. and guide land uses around such preserved and conserved areas so as not to have land use conflicts or negative environmental impacts.
- To preserve the areas of natural environment and its resources that
provide ecosystem services. - To promote properly guided and coordinated development in a sustainable manner of all developmental sectors including agriculture, urban, industrial, infrastructure and mining so as to minimise land use
conflicts or negative environmental impacts. - To suggest a general implementation framework for implementing
- land utilisation policy by all concerned at different levels, viz. national, state, regional and local, and undertaking capacity building.
Overall approach
- National Land Utilisation Policy shall serve as a guiding framework for preparation of state land utilisation policies.
- The lands in the country will be divided into Land Utilisation Zones (LUZs) based on the predominant use of those lands.
- For the purpose of land management, the Land Utilisation Zones are to be divided into various “Land-use Management Areas” (LMAs) to ensure protection, regulation, control and guided development or even reserve lands in accordance with legal provisions and priority needs of various sectors.
- The Land Utilisation Zones (LUZs) are to undergo Land Use Planning for preparation of Plans.
- The National Land Utilisation Policy suggests an implementation strategy taking into consideration the fact that “land and its management” is a State subject.
Identification of Land Utilisation Zones (LUZs)
- Predominantly Rural and Agricultural Areas: areas characterized by extensive agriculture land use;
- high productivity soils, viz. Class I, II or III soils classification;
- high agriculture production areas;
- command areas of irrigation projects;
- major share of population (say at least 80%) of the area is
- dependent on agriculture as the major source of livelihood; and
- tribal areas, rural development zones.
- Areas Under Transformation:
- Rural component of metropolitan regions - the rural component of large city-regions (functional influence area of such cities) and highly urbanised districts comprising both rural and urban areas are experiencing changes in land use. These should be recognized as regional planning categories, as these areas will benefit from proper land use planning;
- Peri-urban areas of large cities.
- Development corridors comprising the intervening area
- connecting two metropolitan cities;
- Highly urbanizing districts.
- Predominantly Urban Areas
- National/State Capitals (approved planning area as per Master Plan/Regional Plan);
- Metropolitan urban agglomerations (million-plus population) (approved planning area as per master plan / metro-regional plan if any); and
- Urban corridors.
- Predominantly Industrial Areas
- Mega industrial infrastructure projects such as Industrial Corridors (e.g. Delhi Mumbai Industrial Corridor);
- Special industrial regions (SIRs);
- Petroleum, Chemicals and Petro-chemical Investment Regions (PCPIRs);
- Areas with major industrial estates/complexes, viz. Special Economic Zones (SEZs); Industrial Estates etc.;
- Such other areas.
- Predominantly Ecological and Natural Resources Areas/Landscape Conservation &Tourism Areas/Heritage Areas
- “Predominantly Ecological and Natural Resources Areas” -include environmentally sensitive/fragile areas such as reserved/protected forests, biosphere reserves, national parks, wild life sanctuaries and coastal regulation zones etc. that are protected by various environments and forest Acts. These provide various ecosystem services. These areas may also include natural resource areas including water bodies (rivers, creeks, lakes), areas with important mineral resources and other natural resources areas other than those covered under environmentally sensitive/fragile areas.
- “Predominantly Landscape Conservation & Tourism Areas” – areas with high share of attractive landscapes and scenic beauty;
- “Predominantly Heritage Areas” - historic areas, places of religious importance, areas with monuments of national/state level importance, areas with world heritage sites etc.
- Major Hazard Vulnerable Areas
- Areas with “Major Accident Hazard” industries (as defined under the Major Hazard Accident Rules, 1997)
- Areas with major accident hazard activities, other than industries:
- Areas prone to natural disasters – include areas with high-risks of floods, tsunami, earthquakes etc.
Land-use Management Areas (LMAs)
The “Land-use Management Areas” (LMAs) are to be identified within the identified Land Utilisation Zones, during the planning process, so as to ensure proper management of various land uses.
- Protected Areas The “Protected Areas” include land uses with a clearly defined geographical space that is recognized, dedicated and managed through legal or other effective means to achieve long-term protection from misuse or abuse other than the use that has been defined or designated as per legal or other effective means.
- Regulated Areas The “Regulated Areas” are the areas that are not legally restricted as in the case of “Protected Areas”, but have important functions associated.
- Reserved Areas The “Reserved Areas” include areas within the Land Utilisation Zone that are/will be under pressure of development, which can cause significant land use changes in the Zone. Such changes may go beyond the planned land uses.
- Guided Development Areas: “Guided Development Areas” include rest of the lands that are not covered under above three types.
Key Considerations for Planning & Management of LUZs
- Sustainable utilisation
- Reasnable restriction on acquisition of agricultural land
- Protection of scheduled areas and lands for tribes
- Protection of historic and cultural heritage
- Protection of natural resource areas
- Preserve areas of natural environment
- Promote guided and coordinated development
- Land use shift to be regulated
- Regional approaches for urban planning
- Minimising areas put up for exclusive industrial estates and modifying or improving existing industrial areas for optimum output
- Avoid mineral extraction in environmentally sensetive areas
- Land bank for compensatory afforestation
- integration of state/regional/district transportation plans for maximum utilisation.
Implementation Approach
- Development of State Land Utilisation Policy
- Identification of Land Utilisation Zones
- Planning of Land Utilisation Zones
- Institutional setup at National, State and District levels
- Legislative support required
- Supportive technical agencies
Housing Policies and Programs
The housing condition is a complex interplay of economic and social dynamics. With regard to housing, policy makers have also faced dilemmas such as
- whether housing is a productive or nonproductive sector of the economy, and
- whether housing is a public or private good.
The economic and political ideologies and priorities, and demographic trends, have played an important role in shaping public policies and programs in India. The housing policies and programs during the four phases of political and economic growth in India are:
- Post independence (1947–1964), here termed the Nehru Era;
- Influx of refugees post partition
- Institutional setups
- scattered attempts at planning
- top down approach
- 9th schedule
- Integrated Subsidies Housing Scheme (1952) for industrial workers and economically weaker sections.
- Low Income Group Housing Scheme (1956)
- Slum Improvement Clearance Scheme (1956-1972)
- Green Revolution (1965–1990), termed the Gandhi Era;
- HUDCO
- National Slum Development Programme (1966)
- Environmental Improvement of Urban Slums (1972)
- Indira Awas Yojna (1985)
- Night Shelter (1988-89)
- First National Policy for housing was announced in 1988.
- Scheme for Housing and Shelter Up-gradation (1989-1997)
- Privatization phase of the economy (1991–2000), termed the Post-Liberalization Era;
- 73rd and 74th Amendment, 1992
- National Policy for housing revised in 1994.
- New Housing and Habitat policy (1998)
- Maharashtra Tenancy Act (1999)
- Economic globalization phase (post-2000).
- Valmiki Ambedkar Awas Yojana (2001)
- Rajiv Awas Yojna (2011)
- RERA, (2016)
- PMAY-U (2015): Ministry of Housing and Urban Affairs
- PMAY-G (2016): Ministry of Rural development
- Schemes like AMRUT, SBM, Smart City,
Conclusion
- Capacity building for all players at different levels is an important pre-requisite to achieve housing for all by 2022.
- States have an important role to play as ‘housing and urban development’ is a state subject. States must prepare a comprehensive housing plan articulating the institutional and legal structures for enabling the ecosystem to achieve this ambitious task.
- Innovation in the housing sector needs focused attention, where practices of low-cost housing and rapid-paced construction technology can be incorporated.