DELHI DEVELOPMENT AUTHORITY

MPD-2021
CRITICAL ANALYSIS W.R.T GROUND REALTY
& SHELTER ANALYSIS

SUBMITTED BY-
SUBMITTED TO- HIMANSHU SHARMA
UTTAM GUPTA SCHOOL OF PLANNING AND

DY. DIRECTOR ( MP&MPR) UNIT ARCHITECTURE, NEW DELHI

Master of Planning (Housing)
DELHI DEVELOPMENT AUTHORITY
Summer Research Internship
Programme 2015
 1

Executive Summary

Delhi is the capital city of India and home to a population of almost 17 million
people. It remains one of the largest urban agglomerations in the world. Therefore
it becomes important to look at the state of urban planning in the city and to
constantly evolve and evaluate the strategies for managing its growth and
development The Master Plan for Delhi is supposed to be the main policy document
for this purpose, a legally enforceable text which lays down the planning strategies
and development controls applicable to the city.
This Paper attempt to provide critical analysis of Master Plan, keeping in mind the
recent controversies regarding the various aspects like Regulation of Unauthraised
colonies . There is an attempt to deconstruct the provision of the plan in the face of
the ground realty, facing the residents and there is also a explanation of Housing
Scenario of Delhi, Population distribution, Supply of housing in Various sub system
like planned colonies, Resettlement, unauthorized/Regularized, Urban villages, JJ
cluster and Homeless. The paper also attempt the situation as now, Hurdles to
overcome and way forward in various subsystem and also talk about the Housing
Requirement in Delhi.
The paper conclude, housing scenario of east Delhi and residential development in
Restructuring and Up gradation/Redevelopment of the Existing Areas,
Unauthorized/Regularized Unauthorized Colonies, Villages, Redevelopment areas
along MRTS Corridors, and Mixed use and A case study of Jagrati Enclave, The area
is located in the Trans-Yamuna area of Delhi, under the planning Zone E, Sub-zone
11 of MPD 2021. The area encompasses the residential clusters of Jagriti Enclave,
Anand Vihar, Shreshta Vihar and Vigyan Lok apart from the Karkardooma Metro
Station. The paper address the demand the demands of the residents of the city.

Himanshu sharma
Date- 6-7-2015
 2

CONTENTS-
Introduction
SECTION - I ANALYSIS OF MPD 2021
MPD - 2021 The Contents
About Delhi, MPD 2021 and Significance
Shortcomings
An overview of urban planning in Delhi
SECTION - II SHELTER ANALYSIS OF DELHI , EAST DELHI & CASE STUDY
Housing Scenario in Delhi
1. Homeless
2. JJ cluster
3. Resettlement colonies
4. Regularized/ Un authorized colonies
5. Urban Villages
6. Walled City
Housing Requirement
Housing Scenario of East Delhi
Residential Development
Case study in Jagrati Enclave, Karkardooma, East Delhi
Conclusion
References
 3

Introduction-
India lives in its villages, but modern India resides in its cities. Cities are the centres
of growth to which the populace from all regions gets attracted to, whether to look
for new career opportunities, or in hope of finding a better life and escaping the
drudgery and poverty of stagnating rural areas. All across the world, any country
that has experienced the transformation to an economically developed nation has
experienced sharply increased urbanisation also, with cities emerging as centres of
trade manufacturing and sophisticated service providers. India is no different. With
an ever-expanding economy and sharp rise in the share of services in the national
income, India is experiencing urbanisation as never before. In total, some 108
million Indians, or 10.5 per cent of the national population, live in the country’s 35
largest cities. According to the 2001 census in all about 27% of the population lives
in urban areas with an urban to rural ratio of 39. Today Mumbai is the largest Indian
city and the third largest urban area in the world with a population of 18.84 million.
The National Capital Region of Delhi is the 6th largest urban area in the world with a
population of about 16 million people1. Cities of such huge magnitude, having a
population of over 10 million, are in fact now classified as ‘Mega Cities’.
But with the growth of such large urban areas also comes the problem of managing
them well to ensure good quality of life for the residents. The existence of such
large numbers of people densely packed into compact regions leads to ever-
increasing burdens on the resources available in the cities. Housing, waste
management, slums, transportation, have emerged as some of the most pressing
problems in urban areas along with the overall issue of effective utilisation of land.
It is in dealing with such problems that urban planning comes to the fore, in order
to provide a comprehensive development strategy for the city with a forward-
looking approach. The city may thus gets divided into administrative and uses based
zones with separate plans for the same along with an all encompassing master plan
for the city as a whole.
 4

This paper attempts to analyse these issues focussing on the document of the
Master Plan for Delhi till the year 2021 (MPD 2021). There has been a lack of
comprehensive analysis on this major policy document till now and at present there
is no research work available on the Master Plan. This work becomes all the more
relevant in light of the widespread protests and controversies that these plans seem
to generate. There is a huge urban planning quandary here. On one hand denizens
are protesting against the demolition drive launched by the Municipal Corporation of
Delhi against unauthorised constructions whereas on the other hand the
implementing agencies and judicial bodies are helpless who are saddled with the
task of ensuring the implementation of the existing provisions of the master plan.
The city is demanding a change in the draconian land use policy and requires an
urgent revision and formulation of a new Master Plan. Yet the new Master Plan is
not without its own shortcomings. The paper aims to provide a critical analysis of
the Master plan.
 5

SECTION - I ANALYSIS OF MPD 2021

The DDA website has the following definition of a master plan-
“A Master Plan is the long term perspective plan for guiding the sustainable planned
development of the city. This document lays down the planning guidelines, policies,
development code and space requirements for various socio-economic activities
supporting the city population during the plan period. It is also the basis for all
infrastructure requirements.”
There has been two previous master plan in the city. 1 st master plan formed 1962 to
ensure the organized and structured growth .Master plan revised 1982 to formulate
the MPD-2001 and re-revised in 2007 to from MPD-2021.
MPD 2021- The Contents-

The purpose of the plan is to transform Delhi into a “global metropolis and a world-
class city, where all the people are engaged in productive work with a decent
standard of living and quality of life in a sustainable environment” (MPD-2021). The
Master Plan establishes planning as the surest way of attaining this goal and
developing the city according to certain pre ordained guidelines as opposed to
‘uncontrolled and chaotic development’ which it believes would result if the city is
allowed to grow at its own organic pace and its own needs. The document is divided
into the following chapters:
1. Regional and sub-regional framework: It lists policy areas in and around
Delhi, the NCT, the Central National Capital Region (NCR), the rest of the NCR and
the Highway Corridor Zone, the area under each of them and the framework for
regional development.
2. Population and Employment: It describes the demographic profile of the city,
with data on population growth and migration, workforce, employment etc.
3. Delhi Urban Area 2021: It talks briefly about the land use policy in the city
with focus on special areas like the ‘walled city’ and the unplanned areas like the JJ
 6

clusters. The chapter also contains detailed description of the kind of facilities
needed at each level of housing- neighbourhood, community, district and zonal.
4. Shelter: It envisages housing needs of the city, the housing strategy in new
housing areas, the restructuring and up gradation of existing areas. There are
guidelines for redevelopment in unauthorised colonies, housing policy for the urban
poor. The chapter also outlines the development controls for residential use zones.
5. Trade and Commerce: It suggests activities that can be carried out at each tier
of commercial areas- district centre, community centre, local shopping centre, and
convenience shopping centre. The chapter briefly talks about the informal sector
and the number of informal units that can be allowed in each use zone.4 The
chapter lists out the complex set of development controls to which commercial
establishments are to be subject to.
6. Wholesale Trade: It gives some proposed locations for wholesale markets, sub
city level markets. It also talks of the development controls for wholesale markets.
7. Industry: It is a detailed classification of industries, the permissibility of
industrial units in different use zones, redevelopment policy for industrial areas and
the development controls for industrial areas.
8. Government Offices: It details on the optimum utilization of government land
and the proposal to move out some government offices to outlying areas of the city.
Also gives the development controls for government offices.
9. Environment: It shows the natural resource base of Delhi and the policies for
its conservation, especially the Yamuna river area and the Aravali ridge area.
Planning norms in terms of the approved area for parks are also listed.
10.Conservation and Heritage: It talks about the conservation of built heritage
and the strategy to be followed. Each local body is to prepare ‘special Development
Plans’ for the conservation and improvement of listed heritage complexes and zones
11.Urban Design: It gives the urban design guidelines for Connaught Place,
walled city and its extensions, the need for visual integration of the city. There is a
 7

mention of the policy on tall buildings in light of this. The chapter also talks about
the development of city gateways.
12.Transportation: It touches briefly upon different aspects of the transport policy
highways, arterial roads, local streets, urban relief roads, underground roads, metro
rail system, and provisions for bicycle and cycle rickshaws. The chapter gives
estimates for inter city passenger movement. It also talks about the norms for fuel
stations and parking provisions.
13.Social Infrastructure: It describes the planning norms and the development
controls for various social infrastructure like health facilities, education, sports
facilities communication facilities and other socio-cultural and community facilities.
14.Physical Infrastructure: It gives the projected requirements for water,
sewerage, power and solid waste management by the year 2021 and the policies for
meeting these requirements and providing for better civic amenities in the city.
15.Mixed use: It briefly talks about the need for mixed land use in certain cases
and permissible and non-permissible activities in this regard.
16.Land Use Plan: It talks about the division of the city into 15 administrative
zones and the zonal plans for the same.
17.Development Code: It lists out the division of the city into different use zones
and use premises and controls applicable to each. Part of the development controls
for the use zones are mentioned in the chapters specific to them.
18.Plan Monitoring: It gives the monitoring framework for reviewing the plan
progress every 5 years and the targets in different areas to be achieved by the time
of each review and the formulation and working of action groups to look at different
sections of the plan.
19.Land policy: It describe the Land Acquisition, development, disposal and land
pooling policy. the policy is applicable in the proposed urbanisable area of the urban
extensions and provide guideline principle and role of DDA/govt. and developer
 8

entity and also gives the norms for Land assembly/land pooling and development
control.
1. About Delhi, MPD-2021 and significance
MPD-2021 WINS THE ISOCARP AWARD 2008 FOR URBAN PLANNING.
Citation by ISOCARP on the award to the MPD-2021 team.
”For the Capacity to articulate a holistic Planning at one of the most
complex metropolitan area of the world, and facing key change that are in
common in many other megalopolis of the planet from shelter to trade and
commerce from industry to environment from conservation of built heritage to
urban design and from development code to plan monitoring".

 Capital of largest democracy and one of the fastest growing economics.

 Proposed driver of economic activity in the country.
 Stable political, social and economic eco system.
 Multi agency investment into Delhi - State, Center, Private, and others.
 New policy initiatives to accelerate real estate development.
 Plan to develop into a world class metropolis.
 Projected investment flow being the highest, amongst the Indian cities.
 Population grow forecasting from 138 lakhs to 236 lakhs by 2021.
 Public private community participation model of development mooted.
 Re-Structuring of the city based on mass transport influence zones, planned
zones along major road and MRTS corridors.
 Inclusion of New activity like IT, Soft, Industries, etc.
 Capital demand of million dwelling units. Projected (45000 families migrant
into Delhi every year)
 Land in Delhi is finite. Any commodity limited in supply & huge in demand,
the prices are bound to go northwards as per the laws of economics (& we’ve
witnessed that)
 9

 Great pressure on Land because of the pent up demand for dwelling units.
The projected population for Delhi for 2021 is 2.4 cr & as actual per 2011
census was 1.7 cr ( apart from the unauthorised colonies et all ). As per DDA
data, there is a shortfall of 24 lac dwelling units.
 With NCR realty prices reaching astronomical prices, the valuations do not
seem to make sense because of the speculation factor. It’s beyond reach for
a lot of people & it’s not Value for Money anymore.
 This is the last expansion of Delhi, after this there won’t be any Land left in
Delhi.
 There is no risk of acquisition by the Govt./DDA as Land Pooling policy is
approved. Prudent investing demands early entry for maximising the returns.
 Delhi will always be the preferred address because of the sheer fact that it’s
the capital of the country. Highest budgets for infrastructure development are
allotted to Delhi in comparison to other NCR districts.
 Delhi is governed by the Ministry of Urban Development & DDA (which
reports to the MoUD). So there is minimal role of State Govt. here.
 Since its Delhi Land, it’s a liquid investment. There are always ready buyers
as people want to lap it up.
 Big developers have already taken huge positions under the MPD. They
realise that it’ll be a goldmine in coming years.
 10

Source : www.certesrelty.com
 11

Source : www.certesrelty.com
 12

2. The Shortcomings
There are many areas where the plan falls short both in terms of content and focus as
well as overall layout and user friendliness.
a) Data insufficiency and contradictions
The first glaring insufficiency in the plan is lack of data and information. For a plan
that is supposed to chalk out the effective management of land resources in the
city, very little actual data is provided on the availability of land and the various uses
to which its being put to. The plan talks about the number of housing units or
commercial or industrial but there are no estimates given for the total land area
under each of these uses. Moreover, if at all the data is provided has not been
substantiated with reasons for using that particular estimate or the source from
which it has been obtained or the relevant year. The land use figures that have
been prescribed have not been substantiated with any line of reasoning as to why
such a distribution should be preferred over any other.
In terms of availability of Urbanisable land in NCT-Delhi 2021, there are clearly
severe limitations with respect to urbanisable land in Delhi. In the words of the Base
Paper for Preparation of Regional Plan 2021, there is specifically a “significant
shortage of land to accommodate the 2021 projected population within NCT-Delhi”.
In order to accommodate this projected population – estimated at 230 lac by the
MPD 2021 – in NCTD, a review of available land for urbanisation must be made.

Land Availability in Delhi

S.N. Land Use Area Percentage to
(Ha.) Area
1. Total Geographical Area – NCT Delhi 1,48,300 100
2. Built –up Area 70,162 47.31
3. Natural Features 19,509.10 13.16
Forest 303.56
 13

Wildlife sanctuaries 28.54

Ridge 7777.00
River Yamuna 9700.00
Other water bodies/drains 170.00
4. Sub- Total (Built-Up + Natural Features) 89,671.10 60.47
5. Balanced land available in NCT - Delhi 58628.90 39.53
6. Land to be kept reserved for:
(i) Disposal of Solid Waste generated up 10000 6.74
to 2051 (sanitary landfill, processing
&statutory green belts)
(ii) Metro Services /Utilities e.g. power 10000 6.74
plant, grid station water and sewerage
treatment plant, etc.
(iii) Agriculture zone in NCT Delhi 11000 7.42
including dairy farming, horticulture,
greenbelts etc.
7. Sub Total – 6 31600 20.90
8. Proposed/Actual Land available for 27628.90 18.63
urbanization (5-7)
9. Total Urbanisable area 2021 (including 97790.90 65.94
built up area 1999) (2+8)
10. Population, which can be accommodated
in 97,790.90 ha. @ 225 PPH = 220 lakhs
Source: MPD-2021

b) Tone of the document

The MPD is a legally enforceable document, supposed to provide clear guidelines on
urban planning and infrastructure yet this document reads more like a policy
document and not a clear legally enforceable text. There is an attempt made to
provide positive and enforceable guidelines. For example, on the issue of re-
densification of low density areas, the plan states, “There is a large proportion of
under used land with a number of vacant sites or unutilised built areas falling in the
central city the areas are recommended to be comprehensively planned for
 14

improvement and redevelopment in order to make best use of land resources as per
the prescribed norms.”
c) Abbreviations
The MPD makes extensive use of abbreviations without giving any information on
keys to decipher their meaning, which makes the document very difficult to
comprehend for a layman. Moreover no definitions are given for frequently used
technical terms like FAR (floor area ratio), plinth area, setback norms etc.
d) Ignorance of new theories and concepts in urban planning
Where world over there is a move towards the principles of New Urbanism and the
concept of transit oriented development and containing the unchecked growth of
urban sprawl, Delhi it seems chooses to go the other way. In trying to preserve the
old structure of the city it prescribes greater growth in the suburbs and shifting of
economic activities out to these areas to tackle the growing population. Whether
one chooses to live in the suburbs is a matter of personal choice but it is true that
increasing suburbanization leads to a large growth in the number of vehicles,
problems of pollution, congestion and parking. World over there is a trend to build
more ‘walkable’ communities and encourage the use of bicycles, public transport
etc. and re-develop, have higher density living in inner city areas. The master plan
also plays lip service to the notion of redevelopment and redensification of inner city
areas but falls short of stating any clear policy objectives in this regard. All the
space that this widely discussed proposal gets in the plan is one small paragraph.
e) Policy on Special Areas
In its policies for Special Area (Walled city, Pahar Ganj, Karol Bagh) and urban
villages, the plan in its eagerness to maintain their ‘essential character’ and preserve
this urban heritage, forgets to take into account the needs of the actual residents of
these areas. For example under MPD 2001 when the move to transfer industrial
units within the walled city to other areas was passed, the affected people were left
in a lurch. New shops and lands were not allotted to them on time, they did not
 15

have adequate infrastructure in the new areas, users were asked to cough up higher
rentals.
f) Slum Rehabilitation Policy
The 8th Report of the Standing Committee on Urban Development noted that DDA
had taken over possession of 67354.88 acres of land acquired through the Land
Acquisition Collector of Delhi, till March 2003. Till March 2005, DDA had acquired
land totaling up to 69,890 acres. While the Committee noted that acquisition of land
for planned development is an ongoing process, they were concerned to note that
about 1475.85 acres of DDA lands are under encroachment by JJ clusters. There is
no clear policy on slum resettlement given in the plan despite the figures revealing
that it is a chronic and growing problem.
TYPE OF SETTLEMENTS
S.no Type of Settlement Estimated population % of Total
in Lakh in 2000 Population
1. JJ Cluster 20.72 14.8
2. Slum Designated Area 26.64 19.1
3. Un-authorized colony 7.40 5.3
4. JJ Resettlement Colony 17.76 12.7
5. Rural Villages 7.40 5.3
6. Regularized-Unauthorized 17.76 12.7
Colony
7. Urban Villages 8.88 6.4
8. Planned colony 33.08 23.7
TOTAL 139.64 100

Source: Government of NCT Delhi. 2004. Economic Survey of Delhi, 2003-04.

Department of Planning

g) Lack of Financial Accounting

Last but not the least the plan almost completely fails to address the fiscal aspect of
the situation. There are no estimates provided for the additional expected cost of
 16

catering to the additional demands of the city and how this will be borne. There is
also no accounting for what kind of rents and revenues the state departments
expect to earn and how much of these are to be channelised into urban
development and how funds are to be distributed among the different civic and
planning agencies.
3. An Overview of Urban Planning in Delhi
Urban, city, or town planning is the discipline of land use planning which deals with
the physical, social, and economic development of metropolitan regions,
municipalities and neighbourhoods. It involves elements of architecture, landscape
architecture, urban design, infrastructure planning, transportation and many other
areas relevant to the growth and development of healthy and sustainable cities.
a) The History of Urban Planning in Delhi
Delhi is a focal centre for the northern region of India. It was the logical confluence
for travellers as well as invaders. It has been the capital city for many kings and
dynasties. From Prithviraj Chauhan to the Slave Dynasty, from the Lodhis to the
Mughal Empire, Delhi’s importance as being the political centre of the nation grew.
Later, the establishment of the city as the national capital by the British sealed its
fate as being one of the most important regions in the nation. After independence it
was retained as the national capital of the Republic of India. Today it is the second
largest city in the country and the seat of the Govt. of India.
Most of the Delhi metropolitan area lies within the National Capital Territory of Delhi
(NCT). The NCT has three local municipal corporations: Municipal Corporation of
Delhi (MCD) New Delhi Municipal Council (NDMC) and Delhi Cantonment Board. The
Municipal Corporation of Delhi is one of the largest municipal corporations in the
world providing civic amenities to an estimated 13.78 million people3. The capital of
India, New Delhi, falls under the administration of New Delhi Municipal Council
(NDMC). The Government of India in consultation with the Chief Minister of Delhi
elects the chairperson of the NDMC.
 17

The major land development authority in the city is the Delhi Development Authority
(DDA), established under the Delhi Development Act 1957. It is primarily the DDA’s
task to frame out policies for urban planning and the Master Plan in consultation
with other agencies like the NCR planning board, the Delhi govt (GNCTD), Ministry
of Urban Development, MCD, NDMC etc.
DELHI WOULD THROW ALMOST 60,000 HECTARES FOR DEVELOPMENT/
REDEVELOPMENT UNDER MPD-2021
OPPORTUNITY AND LAND AVAILABILITY
ZONE NAME OF ZONE AREA IN HA.
A Old city 1159
B City extension (Karol bagh) 2304
C Civil line 3959
D New Delhi 6855
E Trans Yamuna 8797
F South Delhi-I 11958
G West Delhi-I 11865
H North west Delhi-I 5677
J South Delhi-II 15178
K-I West Delhi-II 5782
K-II Dwarka 6408
L West Delhi-III 22840
M North west Delhi-II 5073
N North west Delhi-III 13975
O River Yamuna/River front 8070
P-I Narela 9866
P-II North Delhi 8534

Land is scarce commodity.

18
 19

The MPD-21 has a clear plan for the national capital in terms of residential,
industrial, commercial development, providing better infrastructure to the city,
maintaining green areas and preserving natural covers like water bodies, etc.

Residential plots are available in Zones J, K, L, N and P while agricultural

land is still available in Zones L and N. It is evident from the growth
trends of Delhi that land may not be available in these zones after a few
years to individuals for residential development. Industrial growth is expected in
zones P, K and F which is likely to drive in demand for residential real estate in
the surrounding areas. The area in the zone J is predominantly occupied by the farm
houses. It also houses several heritage and ecologically significant sites. The land
cost is higher in most parts of zones J and K while it is pretty low in zones L and N.

Farm houses will be monitored based on the farmhouse policy of the government.
The village abadi areas and unauthorized colonies would be dealt as per the
statutory provisions and policy decisions of the Government.

The Draft Master Plan 2021, notified in February 7, 2007, has to be reviewed every
five years once. The first review started early in September 2011 and the Union
Urban Development Ministry said that the Plan had failed to meet requirements of a
city like Delhi. According to DDA, the plan will be finalised by August with a
minimum of 100 changes.

Availability of urbanisable land in NCT-Delhi for 2021 is 1,48,300 Hectares. It is

estimated that the population of Delhi would be approximately 230 lakh by 2021.
Keeping this in view, the Plan looks to satisfy the requirement of land, provision of
infrastructure and transportation, etc.
 20

SECTION - II HOUSING SCENERIO IN DELHI

According to the MPD-2021-

“The policy regarding "Shelter" is based on the goal of ensuring 'Shelter for All' by
harnessing the potential of the public, private / corporate and household sectors. It
aims to ensure effective housing and shelter options for all citizens, especially for the
vulnerable groups and the poor, by creation of adequate housing stock on either rental
or ownership basis. It envisages the role of the public agencies as facilitator through
policy and strategic interventions..”
1. HOUSING SCENARIO IN DELHI
Housing type
Based on the morphology, living condition and legal status, housing in Delhi can be
classified into SEVEN types–
1. Homeless
2. JJ Cluster
3. Resettlement Colonies
4. Regularized & Unauthorized colonies
5. Urban Villages
6. Walled city and extension
7. Planned colonies
Population distribution across the types-

Population
Planned Colonies

Urban Villages

Resettlement Colony
Population
Homeless

0 1,000,000 2,000,000 3,000,000 4,000,000 5,000,000

# of people

76% of people in Delhi live in substandard housing Source-micro home solution

 21

SUPPLY OF HOUSING IN DIFFERENT TYPES- Rented and Owner

Renters vs. Owners

Planned Colonies
Walled City
Urban Villages
Unauthorized & Regularized Colonies
Renters
Resettlement Colony
Owners
JJ Cluster
Homeless

0 200000 400000 600000 800000 1000000

# of units

Source-micro home solution

37% of housing units in Delhi are rental

SAFETY HAZARD DUE TO SELF-CONSTRUCTION
• Delhi falls under Zone IV of the Seismic zones
• Poor quality of construction fall even without earthquake (majorly due to
unsafe and ill-equipped self-construction practices)
 22

Self-Construction
Planned Colonies
Walled City
Urban Villages
Unauthorized & Regularized Colonies
Resettlement Colony Self-Constructed Units
JJ Cluster Not-Self-Constructed
Homeless

0 200000 400000 600000 800000 1000000

# of units

74% of housing units are self-constructed

HOMELESS – Situation as of now
• 64 permanent shelters and 87 temporary tent shelters
Total existing = 151
Total required = 168 (As per MPD 2021 norm of 1 night shelter per 1 Lakh population)

HOMELESS – Hurdles to overcome

• Sustainable operation of homeless shelter
• Up-liftment of the homeless to the main stream
• Insulating the homeless from drugs and other socially degrading activities
HOMELESS – Way forward
• Permanent homeless shelter to be made:
– These shelters should NOT be free of cost. A minimal fee shall be
charged based on the location, and those who cannot pay, should have
an option of paying it in terms of labour. Paying in terms of labour will
ensure sustainability of the shelter and will make the food production,
cleaning and maintenance a lot more smoother.
• Employment opportunities should be linked to homeless shelters:
– The quality of life can be improved for homeless if the shelter
provisions could be linked to job opportunities. Shelters can be testing
 23

grounds for emerging concepts like urban farming and also for skill up
gradation projects.
• Shelter should include food and medical facilities:
– Food facility could be subsidized, but should be charged in a manner to
make it sustainable.
• NGOs already working in this sector should be involved
JJ CLUSTER– Situation as of now

Delhi urban shelter improvement board act 2010

DUSIB came in existence under Delhi Urban Shelter Improvement Board Act, 2010,
passed by the Legislative Assembly of the National Capital Territory of Delhi; came
in existence on 1st July, 2010.
Mandate of the Board to prepare schemes for :
Removal and resettlement of JJ clusters
Improvement of Slum clusters through provision of civic amenities
 24

Redevelopment of Slum clusters through community rehabilitation, relocation & In-

situ redevelopment.
Community participation through constitution of BASTI VIKAS SAMITI (Mohalla
Sabha/Samiti)
• Housing Economic Weaker Sections DELHI
Slum characteristics-
Number of slums : 685 JJ Clusters
Population : 3,05,000 JJ Dwellers (Estimated)
DDA is a land owning agency, 51% of total slum cluster (352) lies on DDA land.
JJ CLUSTER– Hurdles to overcome
• Improvement of quality of life
• Ensuring structural safety
• Discouraging future growth of slums
JJ CLUSTER– Way forward
RAY tries to address this problem, RAY is for the entire nation and Delhi being a
mega city posses different set of problems.
• Land title cannot be given to slums in Delhi as the densities in Delhi slums are
very high.
• Beneficiary contribution as per RAY is very low, which is fine at a national
level. Delhi slums have higher income levels and there are renters (10 to 15%
of the total population are renters in any given slum in Delhi).
• Cooperative housing societies should be constituted for in-situ redevelopment
of slums. And houses should NOT be subsidized.
• Clear property title should be given on the housing unit, which could be sold
or mortgaged.
• Rental units should be an integral part of any slum redevelopment program in
Delhi.
 25

RESETTLEMENT COLONIES – Situation as of now

With each subsequent wave,

resettlement colonies moved further
away from the city center creating
further problems including poor
housing, unemployment and
transportation issues

RESETTLEMENT COLONIES – Hurdles to overcome

• The main issue with a resettlement colony that the land is on lease to the
occupants and they are not allowed to sell it.
• Once trading is restricted they informally trade the land with PoA (Power
of Attorney), which is an accepted practice on ground, but is not acceptable
by formal institutions. Thus the new owners can’t have housing loans and are
bound to build in an unsafe manner by taking high interest housing loans
from the informal money lenders.
• This practice leads to social and economical degradation of the residents as
well as the houses built are very poor in terms of quality and safety.
 26

RESETTLEMENT COLONIES – Way forward

• Take the land rights form the dwellers and give them clear mortgage-
able/sellable right to the house.
• Allow land pooling for residential development, which will provide
option for the residents to pool in and make groups to approach an architect
(or urban designer) for a sustainable wholesome development plan.
• NGOs/CBOs should be contacted to create a community driven
redevelopment process financed by a formal Housing Finance Company.
The pooling of stake holders and subsidizing the processing cost would
encourage private developers and practicing architects to jump into this
sector without subsidizing the development and infrastructure cost.
• Associate the micro financing for housing with technical assistance so
that the construction could be safer.
REGULARIZED & UNAUTHORIZED COLONIES – Situation as of now
• All unauthorized colonies are to be regularized as per MPD 2021
• Since the buildings were never sanctioned, hence they are highly unsafe and
in most of the areas are not conducive for a healthy living.
REGULARIZED & UNAUTHORIZED COLONIES – Hurdles to overcome
• Rampant and dangerous rate of construction due to high demand for
affordable and rental housing.
• No compliance of the building codes and safety regulations stipulated by
BIS leading to highly unsafe structures and poor quality houses.
• Lack of infrastructure due to unaccounted density in any given settlement.
REGULARIZED & UNAUTHORIZED COLONIES – Way forward
• Ensure Safety of existing structures
• Ensure compliance with building byelaws for better quality housing.
 27

URBAN VILLAGES – Situation as of now

“The Delhi urban villages have some of these salient features, especially mixed-use
zoning. What has become more apparent, though, is how each urban village here
also differs from the other.”
Villages of Delhi-
 Rural villages: 227
 Rural population: 6.82% in 37.64% of land
 Urbanized Villages: 135
 Urban Population: 8.47 million in 1991 to 16.75 million in 2011 (more than
55% growth) putting pressure and increasing risks.
 Government in the process to urbanize the rural villages to reduce migration
and pressure thus instigating sprawl.
 Unplanned and haphazard urban growth.
According to census data from 2001, Delhi’s urbanization level was 93.01 per cent,
and numerous studies and governments documents reveal that more than half of
these residents live in unplanned settlements.
• No building byelaws are followed hence buildings are
– Structurally unsafe
– Poor living condition (lack basic amenities like ventilation and lighting)

The urban villages in Delhi

today are these “protected”
habitation lands which have
been exempted from the
urban development
authorities.
 28

URBAN VILLAGES – Hurdles to overcome

• High density unsafe construction
• Poor Quality houses
URBAN VILLAGES – Way forward
• Structural safety of all the existing buildings should be ensured
• Urban villages provide the maximum rental housing available in the market,
hence new rental units should be provided to decongest the urban villages
• New housing should be constructed to decongest the urban villages
WALLED CITY & EXTENSION – Situation as of now
• Special area plan still to be prepared.
• Reducing residential population
• Degrading living conditions
WALLED CITY & EXTENSION – Hurdles to overcome
• Reducing residential population
• Accommodating the huge agglomeration of unskilled and semi-skilled laborers
• Improving the living condition
WALLED CITY & EXTENSION – Way forward
• Huge agglomeration of un-skilled and semi-skilled laborers live in walled city and
its extension. Affordable rental units to be provided to them.
• Large number of floating population comes to this section, hence dormitory
accommodation needs to be provided
• Structural safety of existing buildings
• Plot amalgamation and cooperative housing development for reviving the
residential neighborhood
• Adaptive reuse of the defunct buildings
PLANNED COLONIES – Situation as of now
• Housing Deficit of about 5.6 Lakh units exists as of 2011
• 2 Lakh low income migrants move into Delhi each year (Ministry of Health and Family
Welfare, Government of India)

PLANNED COLONIES – Hurdles to overcome

 29

• Segregated housing development

• Missing options for affordable housing addressing all income groups.
– EWS & LIG
– Single working men/women
– Newly married couples
– Lower middle class
– MIG (options exists, but limited number) & HIG (options exists)
• Huge deficit for rental units
PLANNED COLONIES – Way forward
• Provide ‘rental’ and ’to be owned ’ units targeting all income groups.
• Incentivize the market to provide affordable housing to the poor.
• Increase density in government colonies (e.g Kidwai Nagar, R.K Puram,
Sarojini Nagar etc.) and promote mixed use development.
• Provide new housing stock along the MRTS influence zone with a judicial
mix of rentals and affordable units.
HOUSING REQUIREMENT
• Population of Delhi as per 2011 census : 16753235
• Decadal Growth rate : 40%
• Population by 2017 : 20774033
• Housing Deficit as of 2011 : 5.6 Lakhs (Deduced from MPD 2021)
• 2 Lakh low income migrants move into Delhi each year (Ministry of Health and Family
Welfare, Government of India)

• Housing requirement to be fulfilled by 2017 : 13.6 Lakh (2.72 Lakh

units per year) (54% for EWS) (Assuming 1 unit per 5 person of the growing
population + existing housing deficit)
• 30 % of the new housing should be rental
• New homeless shelters to be built by 2017: 57 (11.4 shelters per year)
(as per MPD norm of 1 homeless shelter per 1 Lakh population + existing deficit)
Rental units/dorm-beds need to be built every year: 2 Lakh
• Provide localized sustainable waste management systems
 30

• Storm water management at a local level by reducing runoff

• Fine grain fabric and integrated mixed use development along MRTS

HOUSING SCENARIO IN EAST DELHI

East Delhi (Trans Yamuna) is an administrative district of the National Capital

Territory of Delhi in India. It is bounded by the Yamuna River on the west, North
East Delhi to the
north, Ghaziabad
District of Uttar Pradesh state
to the east, and Gautam
Buddha Nagar District of
Uttar Pradesh to the south.

East Delhi has a population of

1,448,770 (2001 census) and
an area of 64 km², with a
population density of 22,638
persons per km².

Planning Zone comprises of

an area of 8797
hects.(approx.) It is
surrounded on the three
sides by the State of Uttar
Pradesh and on the fourth
side by river Yamuna.
 31

RESIDENTIAL DEVELOPMENT

Restructuring and Up-gradation/Redevelopment of the Existing Areas

In Zone-E, a large number of areas are ;old and are characterized by poor structural
condition of buildings, sub optimal utilization of land, congestion, poor urban form,
inadequate infrastructure services, lack of community facilities, etc.

The housing stock in both planned and unplanned areas can be enhanced through
various approaches as per MPD 2021. The areas for which redevelopment schemes
can be prepared are In MPD 2021 in the list of 57 pre-1962 built up residential and
rehabilitation colonies are mentioned out of which following colonies fall in Zone 'E'
DILSHAD GARDEN, GEETA COLONY, GANDHI NAGAR, SHAHDARA.

Unauthorized/Regularized Unauthorized Colonies-

Out of the list of unauthorized colonies identified by Govt. of NCTD which are under
the process of regularization, some of the colonies fall in Zone-E and shall be dealt
as per the policy for regularization of Unauthorized Colonies.

East Delhi 91 colonies approved for regularization

Villages

The Urban villages in Zone-E have experienced substantial socio/economic changes.

Village Redevelopment Schemes shall be prepared for villages giving the
development control parameters by the concerned local body. The redevelopment
plans shall ensure that the permissibility of mixed use zoning at property or within
the premise level is compatible to the predominant residential areas.

There are 39 villages, where land has been acquired by DDA.

Redevelopment areas along MRTS Corridors

In East Delhi 3 MRTS routes are proposed and work is in progress, these are as
follows -
 32

1. ISBT (Kashmiri Gate) to Shahdara - Apsara Boarder(partly operational upto

Shahdara Metro Station).

2. Vikas Marg (Laxmi Nagar) Anand Vihar Passenger Terminal.

3. Laxmi Nagar - New Ashok Nagar - Noida.

MPD 2021 provision had been made for planned areas Influence Zone along MRTS
and Major Transport Corridor. Since the population envisaged for 2021 for Zone 'E'
is 28 lacs as holding capacity i.e. only adding 2000 population in 20 years. Since
East Delhi already lacks in infrastructure and recreational areas, it will be
appropriate to utilize this provision of Influence Zone in East Delhi, only at the time
of preparation of local plans only.

Housing for urban poor

In East Delhi there is hardly any vacant area available where new housing for urban
poor can be considered. However, in MPD 2021 density categorization had been
done due to which EWS and lower category housing will be possible in the area to
be planned/redesigned.

CASE STUDY-1 [JAGRITI ENCLAVE, KARKARDOOMA, EAST DELHI]

The area of study is located in the Trans-Yamuna area of Delhi,

under the planning Zone E, Sub-zone 11 of MPD 2021. The area
encompasses the residential clusters of Jagriti Enclave, Anand
Vihar, Shreshta Vihar and Vigyan Lok apart from the
Karkardooma Metro Station.

Characteristics of Site.

The site is demarcated for Residential Land-use as per the

Master Plans of Delhi 2021 as well as 1991 and it was observed
that the area adheres to the notified land-use.
 33

Karkardooma Metro Station, which is a part of the site, is part of a pilot project
called Transit-Oriented Development started by the Delhi Development Authority
leading to a rise in commercial as well as residential projects around the Metro
Station.

Relation of the Area with Surrounding

The site is most easily accessible via Metro Rail, with Karkardooma Metro Station
falling within the site. Apart from Metro, the site may be accessed via Public and/or
Private transport via roads.
 34

The site is situated roughly 12 km from both the New Delhi Railway Station and the
Inter-State Bus Terminal at Kashmere Gate. Further, the site is roughly 27 km from
Indira Gandhi International Airport. The areas surrounding the site are also
demarcated primarily for Residential Land-use as per Master Plan of Delhi 2021 and
the same does follow.

Existing Land-use of the Area

The existing Land-use of the site is majorly

Residential, adhering to the proposal given in the
Master Plan of Delhi 021. The same was also
proposed and followed in the Master Plan 2001.
The Residential use utilizes roughly 60% of the
site. About, 25 % of the site is still vacant,
although a community centre and some group
housings are in the pipeline to develop this land.
While, green areas and open spaces constitute to approximately 8% of the site, the
institutional areas constitute only about 5% of the site. Although, commercial
activity prevails in the lower floors of the residences, the land allocated exclusively
for the purpose happens to be only around a mere 2% of the total site area.

Comparison of Existing Land-use with Master Plan & Zonal Plan

Although the Land-use existing at the site completely adheres to the Master Plan
2001, it has been observed that approximately 25% of the site is still vacant.
However, since no development in these vacant areas has been implemented yet,
the onset of the proposed Master Plan 2021 and the Transit-Oriented Development
Pilot Project of DDA has led to some changes in the Land-use of these vacant
spaces. Though, as per the Master Plan of 2001, an area of roughly 3.6 hectares at
the North-west corner of the site was demarcated as land for a hotel, it has now
been allocated for the construction of a community centre instead. In contrast to
this, the vacant land between Inderpuri and Karkardooma Metro Station which had
 35

been proposed for group-housing projects has not seen a change in its Land-use,
but remains vacant still. Page 6 It is also observed that though the land between the
Railway Colony & Vivekananda School falls under Residential Land-use, the same
has seen the growth of a Jhuggi Jhopri Cluster extending up to the Ghazipur Drain.

Building Heights-

Skyline of the site as viewed from Metro Station.

The site has an uniform skyline, with only certasin religious buildings and over-head
water tanks rising above the skyline. The Karkardooma Metro Station is the highest
built structure on the site, with its platform sitting at a height of 14m, which also
happens to be the highest Metro Station in Delhi.

About 72% of the structures on site are 4 storeyed, 14% are 3-storeyed and about
6% are 2-storeyed. Single storeyed structures consititute about 7.2% of all
structures, in contrast to only 0.8% structures which are more than 4 storeys high,
including the Metro Station complex. It is also interesting to know that although
most of the structures are 4 storeyed, the DDA Building Bye-laws does not put any
floor restrictions for the respective buildings, for upto five storeys.

Land / Property Values

Colonies in Delhi are categorized by the Municipal Corporation of Delhi for

evaluation of their circle rates. The area of study falls under Category-D of this
categorization, wherein the rate of land for purchase is about Rs 1,06,000 per sqm.
In contrast to this, the colonies surrounding the site, like Arya Nagar, has a circle
rate of about Rs 38,400 per sqm. Apart from circle rates, based on interviews with a
few property dealers located in the area, it came to light that the properties in the
 36

area of our study were sold/purchased at prices ranging from Rs 1,50,000 per sqm
to as high as Rs. 3,00,000 per sqm.

POTENTIAL ANALYSIS
The surrounding area harmony with the Good connectivity but accessibility need
atmosphere required for residential to be improved.
growth.
Well maintained parks and playground Encroachment need be checked for
are provided. better movement and space quality.
The infrastructure and services has been use of private services along with public
upgraded accordingly services provider has helped to provide
for the increasing population.
Good connectivity by surrounding by Encroachment need to be reduced to
public transport as well as Para transit decreased the traffic congestion
services, well maintained road and
service road.
The area has efficient physical Use of OHT and water supply from DJB
infrastructure. services the area. Covered drain
provided a hygienic environment.
Basic facilities are available in reachable Parking are need to be provide in the
distance. area.
There is ample open and green space The slum area need to be developed as
provided. it is creating unhygienic condition of
area.
 37

Conclusion
The new Master Plan for Delhi should ideally have been ready by the time the 2001
MPD expired. Yet it’s mid 2006 now and the MPD 2021 is far from finished. Till last
year the city was still operating under the provisions of the MPD 2001 and its zoning
regulations. According to these, almost 60-70% of the residential units and buildings
were in violation of permissible use. Over 55% of the city’s residents are living in
areas other than regularised colonies.10 The figures are rather surprising and yet
true, and it is in them that the sheer out-datedness of the plan provisions is
reflected. It seems that the city has moved ahead even as the policies have failed to
do so. Any regulations that declare the vast majority of people to be offenders
indicate that it is the regulations themselves that need review. The report of
Tejinder Khanna Committee, set up by the Government of India to look into various
aspects of unauthorised constructions and misuse of premises in Delhi, is to serve
as the basis for further changes and policy decisions. The committee feels that DDA
has failed to cater to the needs of residential, commercial and institutional space of
the city. It also feels that the multiplicity of decision-making bodies in the city leads
to more delays and confusions.

**********
 38

References
1. About New Urbanism. Accessed on 8 June at

http://www.nationmaster.com/encyclopedia/New-Urban

2. Gilroy, L. 2 May 2006. What Jane Jacobs Really Saw. Accessed on 30 May at

http://www.opinionjournal.com/la/?id=110008319

3. Government of India. 2005. Eighth Report of Standing Committee on Urban

Development. Ministry of Urban Development. Accessed on 13 June at

http://164.100.24.208/ls/CommitteeR/urban/8rep.pdf

4. Government of India. 2006. Report of the Tejinder Khanna Committee of Experts ,

Ministry of Urban Development.

5. Government of National Capital Territory of Delhi. 2004. Economic Survey of Delhi.

Planning Department, GNCTD. Accessed on 25 may at www.delhiplnning.nic.in

6. Krichel, T., Levine, P. 1997. The Welfare Economics of Rural to Urban Migration:

The Hariss-Todaro Model Revisited [paper online]. Accessed on 22 May at

http://www.econ.surrey.ac.uk/discussion_papers/RePEc/sur/surrec/surrec9702.pdf

7. singda Dewal - MPD-2021 analysis center of civil society www.ccs.in, CCS working

paper no. 160

8. Delhi Master Plan 2021 decoded by Ashish Raina.,www.slideshare.com

9. Gazette Notification (extraordinary) MPD-2021

10. www.delhimansterplan.com

11. www.certesrealty.com
 39

12.http://www.commonfloor.com/guide/analysis-of-master-plan-for-delhi-2021-

26314.html

13. Zonal development plan fors zone ‘e’

14.Area appreciation report of jagrati enclave by- Himanshu Sharma

15. Housing in delhi- Equal housing opprtunity, Slideshare.com

16. A report of Delhi urban shelter improvement board

17. Micro home solution

18.http://zeenews.india.com/business/realestate/latest-news/east-delhi-91-colonies-

approved-for-regularization-complete-list_59520.html

19.Verma, G.D. 10 February 2003. Delhi Master Plan / Revision. Accessed on 22 May

at http://www.architexturez.net/+/subject-listing/000118.shtml#list-cont,

20. http://dda.org.in/ddanew/housing.aspx

21. housingindelhi-120305011143-phpapp02.pptx
40