Urban Expansion & Regeneration Plan Studio | Master of Urban Planning | CEPT University | Monsoon 19

Creating Self-Sufficient Sub-Cities ENHANCING DEVELOPMENT MODEL IN M.P. THE CASE OF AEROCITY, BHOPAL Urban Expansion and Regeneration Planning Studio

Sameer Kumar | PG180865 Monsoon Semester | 2019

Preface This portfolio is a compilation of the work done as part of the Urban Expansion and Regeneration Planning Studio (Monsoon 2019 semester). The primary objective of the Studio was to equip students with the skills to develop micro-level plans, including various statutory and non-statutory microlevel planning mechanisms.

The programme was conducted in four iterations, each being a stage towards developing a nuanced micro-level plan – starting with the study of the existing situation, followed by conceptual proposals, formulating a subregional master plan, and lastly, creating a micro-level plan. The students were categorised into groups of 3 or 4 members, with two groups working on the same study area. Half of the batch worked on formulating plans for brownfield development, while the other half focussed on greenfield areas. This exercise was preceded by a case study of the land development models used in India as well as in other countries, where I studied the model of Downtown Eastside Oppenheimer District (DEOD) in Vancouver, Canada.

Aerocity, Bhopal, was a unique site – with a town development scheme already in place, but unable to develop; thus, requiring solutions needed for both greenfield and brownfield areas. Two proposals were made in lieu of this – one to be applied for purely greenfield projects, and the other, to revive a dormant scheme. The former was similar to a TP Scheme made using the Gujarat model, while the latter was a new approach inspired by the same. The time constraint and the absence of plot ownership in the new scheme were the major limitations.

While being involved at every stage of the exercise, my major contribution was towards the formulation of the Development Regulations and the intricacies of valuation and financing of the proposed schemes. In terms of the assessment of the existing situation, my focus was on studying the economy of Bhopal and the statutory support with regard to the same.

CONTENTS Section 1 Case Study - DEOD Vancouver (Canada) Section 2 Micro-level Planning Exercise

01 Downtown Eastside Oppenheimer District “Sub-area Plan” .....................................................02

01 Understanding Bhopal .......................................................06 02 Existing Situation Analysis ................................................07 03 Master Plan Proposal .........................................................09 04 Implementation Mechanism ..............................................16

Section 3 Key Learnings

01 Key Learnings .....................................................................26

This page has been intentionally left blank

Section 1: Case Study of Development Model

Micro-planning Development Model

Downtown Eastside Oppenheimer District Vancouver (Canada)

Section 1

1.1 About the Scheme Area - 0.16 sq. km.

1.2 Planning Context Aerial View

Purpose To improve the lives of all those who currently live in the area, including lowincome and middle income residents, the homeless, seniors, women, children and families.

Sub-area Plan

Scheme Layout

Local Area Plan

Key Map City Plan

Zoning Regional Plan

DEOD sub-districts 2,3 & 4 layout Other sub-distrcits in DEOD CD-1 Zone DEOD Zone Heritage Zone

02

Section 1

1.3 Statutory Context

Purpose of the Act: Delineating the municipal boundary, listing the roles of the Municipal Authority

Plan-making Process 2 months

Asset Mapping

2 months

Finalising SIA Indicators

Review

Legislative Act Vancouver Charter Chapter 55 – Part XXVII

Tools Development & Testing

Public Consultation

1.

LAPP Committee

2.

Vancouver City Council

3.

Vancouver City Planning Commission

1.

LAPP Committee

2.

Vancouver City Council

3.

Vancouver City Planning Commission

1.

LAPP Committee

2.

Vancouver City Council

3.

Vancouver City Planning Commission

Key Sections

564 565 565 A 566 567

Development Plans Council’s pow ers pert aining t o t he of f icial Development Plan

4 months

Planning

•

• •

Strategies proposed Action Plans made On-going Projects Implemented

Public Consultation

Draft Planning Framework submitted to Planning Council

Acquisit ion of land Zoning By-law By-law s Amendment / repealing of zoning bylaw s

5 months

Rest rict ions – height of buildings, size of court s & yards et c

Scheme Prepared By: • Vancouver City Planning Commission • Local Area Planning Program Committee • City Council Developer: • Vancouver City Council • Private developers/ land owners Maintenance: • Public land - Vancouver City Council

Feedback

561 562

Tools and Policy reccomendations Implementation Meetings with stakeholders Local Area Plan submitted to Council

Public Consultation

No statutory provisions for making a TDS and implementing the LAP

Expropriation Act Section 6 Section 20 Sections 25 to 27 Section 31

Notice to be served on the land to be expropriated

Vancouver Charter Section 564

Council may acquire land for project shown in official development plan

Compensation - Advance payment to be made within 30 days after approval Compensation Procedures Basic Formula for compensation

03

Section 1

1.4 Land Development 1.5 Finance Model Model 100% Land Acquisition

Land acquisition (called “expropriatation”) is used, which in itself is not statutory

Public unbuilt covers merely 12% of the area under study

12% 39% 49%

The public realm is restricted to the streets and the centrally located Oppenheimer Park

Sources of Revenue:

Pros

•

Property tax and user fees (such as water and sewer fees and parking revenue)

•

LAPs made as per the unique characteristics of each area

•

Development contributions (including Development Cost Levies, voluntary Community Amenity Contributions, and connection charges)

•

Public consultation and bottom-up approach to planning ensures that the plan meets the requirements of the local community

•

Partner contributions from provincial and federal governments

39% of the area is built Finance Mechanism 3.1

Permissible (Average of all zones taken)

•

Public consultations after every stage makes the process tedious and timeconsuming

•

Local area plans are not statutory, eliminating any boundations for implementation.

• To fund infrastructural Property Tax improvements

Consumed

Community Amenity Contribution

• For rezoning of plots

Aerial view of intended development in DTES

04

Cons

Comparing with Kolkata Model

1.5 1.6

1.6 Inferences

Vancouver

Kolkata

Zoning

Zoning is sector-based

Zoning based on land-use

Statutory Provisions

LAPs are not statutory

LAPs are statutory plans

Land acquisition (expropriation) for public purposes can be made by private developer as well

Land acquisition only by government

 Rate of compensation is not fixed

Fixed rate of compensation

Land Acquisition

Development Cost Levies • For new development / growth

Compensation

Section 2: Micro-level Planning Exercise Chapter 1 Understanding Bhopal Chapter 2 Existing Situation Analysis Chapter 3 Master Plan Proposal Chapter 4 Implementation Mechanism - Town Development Scheme

Section 2

01 Understanding Bhopal 1.1 Economy

1.2 Sub-cities

Manufacturing

Tourism

Education

Logistics

IT / ITeS

Bhopal is a tourism and educational hub of Madhya Pradesh. The city is witnessing growth in the Logistics and IT/ITeS sector

Unclassified

17.28%

Sales workers

6.57%

Artists & Farmers

Map showing sub-cities of Bhopal; Source: Swetha Kutty

9.20%

Professionals

Bhopal is divided into 7 sub-cities

10.40%

Technicians

11.88%

Clerks

14.50%

Legislators / Managers

29.99% 0%

5%

10%

15%

20%

25%

30%

35%

A majority of Bhopal’s citizens are employed in administrative and managerial jobs 06

Each sub-city is a self-sufficient unit with a distinct character; planned to cater to a population of 10 lakh. The major character of each is as follows:

Old City

TT Nagar

Misrod

BHEL

Section 2

02 Existing Situation Analysis 2.1 Contextual Analysis of the sub-region Development Plan 2021

Land Ownership

Legend Legend

Legend

Private Ownership General

Residential

General Residential

Public PSPOwnership

PSP

Commercial Sub Center

Commercial Sub Center

Spot zoning evident with majority of near airport allocated for residential use Air Funnel (CCZM)

Legend 12 m Permissible Height 24 m Permissible Height 36m Permissible Height

Height restrictions due to airport restrict vertical growth

32% land under public domain suggests possibility of consolidation of land for large projects Built-use

Legend Residential Institutional Logistics

Sparse institutional and residential development despite minimal connectivcity and poor infrastructural provisions 07

Section 2

2.2 Connectivity & Key Projects Good regional connectivity but poor local connectivity SH-86

NH-12

Regional Connectivity: NH-12 and SH-86 pass through the study area Local Connectivity: The area lacks in local connectivity with only one road leading to the core city, and no through connections within the site.

Public Transit: BRTS passes through the site.

The nearest station - 3 km from the site.

MRTS route proposed Stations near the airport and intersection of NH12 and Bhopal by-pass road.

Linkages and projects in the study area; Source: Swetha Kutty

Key projects in the region

08

Raja Bhoj Airport The airport forms the south-western edge of the study area

IT Park and EMC Unit The IT Park and EMC Unit constitute a signifacant part of the scheme (85 ha).

Townships / Development Schemes The Gondermau and the Aerocity Town Development Schemes form a large portion of the study area.

Logistics Hub / Cargo Terminal A cargo terminal is proposed near the airport.

Section 2

03 Proposed Master Plan 3.1 Delineating the Master Plan

Factors influencing the delineation of the master plan boundary; Source: Swetha Kutty

3.2 Conceptualising the Plan

Conceptualised Master Plan; Source: Swetha Kutty

A IT Park and Aerocity Scheme will be included in the master plan

•

Conserving natural features: A green corridor along the water bodies

B

•

Improved local connectivity: Connectivity is improved through provision of thoroughfares and walkable blocks.

•

Trigger projects: Land to be reserved for trigger projects

Major regional roads marked in the development plan shall envelope the master plan area

C The airport forms the western edge of the master plan

09

Section 2

3.3 Area Deduction

+ Reserve plots for key projects

+ Provide green buffer around bluescape

+ Reserve land for amenities

More detailed reservations to be done in Town Development Schemes

3.4 Delineating the Zones Improve

Provide

Connectivity in developed areas

Infrastructure to facilitate development

Create Parcels for urban expansion Delineation of Zones; Source: Swetha Kutty

10

Conserve Natural waterbodies

Section 2

3.5 Master Plan General Residential Zone 5.0 km Medium-rise zone with dominance of residential neighbourhoods

Business-IT Zone 2.58 km Medium-high-rise zone promoting business parks and ancillary activities

Airport Influence Zone 2.80 km Promotes airport-related activities such as logistics and hospitality

Agricultural Zone 6.80 km

Final Master Plan; Source: Swetha Kutty

Conservation of natural features, restricting urban growth 11

Section 2

Airport Influence Zone Larger plots to facilitate construction of large footprints suitable for logistics and other airport-related uses.

Area - 2.80

sq. km.

Max. FSI - 1.5 Max. height - 12 m

Key Map; Source: Swetha Kutty

Road Width

<24m

24m-30m

>30m

Min. Plot Area

500 sq. m.

1000 sq. m.

1000 sq. m.

Margins

3m

6m

6m

(Built-to-line)

60%

20%

Max. Ground Coverage

Min. Green Cover

Vertical Mix 3D view of the Airport Influence Zone; Source: Swetha Kutty

12

Rationale behind formation of AI zone; Source: Swetha Kutty

Section 2

General Residential Zone NMT Corridor running along residential neighborhood improves connectivity â&#x20AC;&#x201C; conserves green - provides public recreational spaces.

Area - 5.0

sq. km.

Max. FSI - 2.0 Max. height - 24 m

Key Map; Source: Swetha Kutty

Road Width

<24m

24m-30m

>30m

Min. Plot Area

250 sq. m.

500 sq. m.

500 sq. m.

Margins

3m

3m

6m

(Built-to-line)

60%

10%

Max. Ground Coverage

Min. Green Cover

Vertical Mix 3D view of the General Residential Zone; Source: Swetha Kutty

Rationale behind formation of GR zone; Source: Swetha Kutty

13

Section 2

3.6 Envisioning the built-form - Development Regulations Business and IT Zone Mixed use development following the principles of neighborhood planning.

Area - 2.58

sq. km.

Max. FSI - 3.0 Max. height - 36 m

Key Map; Source: Swetha Kutty

Road Width

<24m

24m-30m

>30m

Min. Plot Area

250 sq. m.

500 sq. m.

1000 sq. m.

Margins

3m

3m

6m

(Built-to-line)

60%

20%

Max. Ground Coverage

Min. Green Cover

Vertical Mix 3D view of the Business-IT Zone; Source: Swetha Kutty

14

Rationale behind formation of BIT zone; Source: Swetha Kutty

Section 2

3.7 Street Network & Blocks Street Sections

45m wide road

45m wide road 30m wide road

24m wide road

Proposed Road Network as per the zoning; Source: Swetha Kutty

300m X

400m 600m X

800m 600m X

800m

General Residential Zone Smaller blocks - more walkable residential neighbourhoods

18m wide road

Business-IT Zone Large blocks to facilitate construction of large employment centres Airport-Influence Zone Large blocks to facilitate construction of large footprints and respond to the lower FSI

12m wide road

Frontage Zone

Footpath

Furniture Zone

Cycle Track

Parking Zone

Carriageway

Buildings

15

Section 2

04 Implementation Mechanism

Town development Schemes form the lowest level of the Bhopal Development Model. A total of eight schemes have been proposed in the city. However, the schemes do not seem very viable form of development, with several instances of undeveloped areas.

16

The proposals, thus, needed to be more feasible. Thus, the proposal includes two approaches to local area planning in the city - one for developing areas afresh, and the other focussing on reviving the unsuccessful schemes. Both are modified versions of the land pooling mechanism

Greenfield Approach

Revival Approach

Hypothesis - no scheme has been proposed yet

An attempt to achieve a more flexible development model for existing schemes

Follows the Gujarat Model

The laid infrastructure is taken into consideration

50% land is returned to the owner

Amount of land returned depends on the Cost-Benefit analysis

Section 2

4.1 Principles for Reconstitution 50%

0%

60%

40%

70%

100%

30%

85%

Returned to Owner

â&#x20AC;˘ â&#x20AC;˘

15%

Built-up

100%

Deduction

Land deductions will be on the basis of the amount of ground coverage No deductions from land under defence/military ownership

4.2 Deductions 19%

Roads

4%

4%

5%

NHC

Sale Plot

(Residential)

Green

4% Sale Plot

(Commercial)

2% Public Utilities

1% SEWS

8%

40%

Plots for Sale

Total Deduction

(Revenue Generation)

17

Section 2

4.3 Reconstitution of Plots

Map showing Khasras (plots as per revenue records)

•

18

Map shoiwing Original Plots

Map showing final plots after reconstitution

Khasra

Original Plot

Final Plot

198

117

117

Plots mapped as per the revenue records

•

Khasra plots are converted to original plots based on ownership details

•

Plots reserved for key projects and amenities are marked first

•

Plots with same owner are amalgamated, if they lie in close vicinity to each other

•

Final Plot area is determined based on land deduction principles

•

The area of OPs is the same as that of the Khasra plots

•

FPs are given in the same or nearest block as the location of the OPs.

Section 2

4.4 Valuation Policy •

The location of the final plot and the infrastructural provisions in the scheme will impact the value of the plots.

•

The increase due to the infrastructural costs shall be equally divided among all the affected plots.

•

Additionally, the provisions in the immediate surroundings of the plots will further affect the property prices.

•

The base infrastructural cost rendered on each plot will be multiplied by a suitable factor, depending on the kind of amenity

Circle Rate of Land (per sq m)

+

[

Cost of Infrastructure (per sq m)

X

Green Space Increased rates

SEWS Decreased rates

]

Increment factor

•

Increment factor is calculated on the basis of number & width of access roads and presence of amenities in the adjacent plot.

•

The following table summarises the increment factor for each of the above categories:

Example of map showing impact of amenities on plots

Neighbourhood Centre Increased rates

Incremental factors used in the proposal Increase in value due to higher street hierarchy

20%

Increase in value due to additional access road

10%

Increase in value due to positive externality

30%

Increase in value for additional positive externality

5%

Increase in value due to negative externality

-10%

Increase in value due to additional negative externality

-5%

Public Utility Decreased rates Example of map showing impact of amenities on plots

19

Section 2

4.5 Valuation Exercise The Process Calculate value of the original plot

Example INR 34.50 crore

Based on Circle Rates

OP Value

Calculate the value of the plot after deduction

Based on new plot area, location & associated circle rates

1

INR 24.71 crore Semi-final Value

Add cost of infrastructure associated with the plot

Infrastructure Cost per unit area X

Plot Area

INR 47.40 crore

Final Value of plot: Account for the increase in plot value due to locational factors

Multiply the infrastructure rate by the increment factor

Calculate betterment charges owed by the plot owner

50% of increment in plot value

Net amount owed by the owner after deducting compensation for deductions

Increment + Betterment charge

-

Compensation

Final Value

INR 11.35 crore Betterment Charges 1

INR 12.90 crore Net Demand from AUthorit

20

Section 2

4.6 The Revival Approach How does BDA implement its scheme?

•

Deductions as per the calculations to recover scheme costs

•

Plots are readjusted; further, they are sub-divided by BDA based on the original number of owners.

•

The sub-plots may either be adjacent to each other (scenario 1), or far, depending on the choice of the owners (scenario 2)

The case of Aerocity: •

BDA deducted 70% of the land from the original plots, returning merely 30% of the plots to the owners.

•

29% plots were reserved for sale in order to recover the costs of development

•

The only cost-recovery mechanism is "sale of plots”; remaining cost is borne through grants and loans.

30%

29%

28%

Land Returned

Sale Plots

Roads

12%

1%

Open Spaces

Amenities

Final plot locations shown is for explanatory purpose, exact locations are not known.

BDA’s method of reconstitution of plots

21

Section 2

Need for a"Revival" mechanism

What should be the objectives of the development model?

• 8 years since the scheme was implemented • Sparsely developed • 29% The proportion of land returned is too meagre.

• Development is restricted by the small plot sizes -

developers/owners cannot construct apartments and other buildings with large footprints.

• Amalgamation of plots is not allowed •

Aggregate Plots

Improve

Increase

Facilitate flexibility in development

Distribution of amenities and public green/open spaces

the proportion of land returned to the owners

Dependence on external sources for finance - no concept of betterment charges

TAKING THE AEROCITY TOWN DEVELOPMENT SCHEME AS AN EXAMPLE...

22

Section 2

Transforming the Aerocity Scheme

1

Retain existing major roads

Highlight the existing roads Eliminate local streets, while retaining the major linkages passing through the scheme

2

3

Large blocks formed

The block size is increased, still forming a walkable neighbourhood This increases the land available for plot owners

Allocation of final plots in same block as original plot Overlay the blocks on Khasra map Final plots are allocated in the block on which the original plot lies

Keymap

23

Section 2

4

Amenities and Sale Plots allocated in each block Green spaces provided in each block with focus on conserving natural waterbodies

5

Summary

Narrowing down to a WinWin Scenario 50.5%

land returned

Land is reserved for amenities required

•

Fewer Sale Plots @ 12.5%

•

More land returned @ 50.5%

•

Minimal Betterment Charges @ 30%

Betterment charges introduced to increase revenue More equitable model - both owners and development authorities benefit Owners get more land compared to existing model INR 137 cr Infrastructure Cost

Keymap INR 161 cr Revenue Generated 24

Chapter Name

Section 3: Key Learnings

Section 3 01

01 Key Learnings

Creating a self-financing mechanism

Revenue

Development must be inclusive and equitable

Expenditure

Development

30%

land returned

50%

land returned

X Finance is a major concern pertaining to the implementation of development plans.

Development authorities are, thus, forced to depend on external sources to fund their schemes, adding to the liabilities to their exchequer.

Self-financing projects will reduce this load, while also adding to the authoritiesâ&#x20AC;&#x2122; revenues.

The concept of betterment charges and acquiring plots for sale in the given scheme are two methods of self-finance.

26

Micro-level schemes as tools to conserve natural resources

NMT Corridor and green - aimed to conserve waterbody

Planners must aim towards attaining a winwin scenario for both the development authority and the original land owners.

Development principles must not favour or harm any land owner.

Development should not be just about providing infrastructure. Instead, it should be about infrastructural provisions with minimal loss to the owners while also not incurring exhorbitant costs to the authority.

The given scheme utilised the provision of reservation of land to conserve the bluegreen matrix through provision of buffer and corridors.

Also, specific land owners did not have to face extra losses owing to the location of their plots - deductions for reservation are evenly distributed among all land owners.

Section 3

Failed efforts towards town planning can be rectified

Need for a bridge between citylevel and micro-level plans

Most cities lack a subregion /zonal plan

BDAâ&#x20AC;&#x2122;s proposed scheme failed to develop even after a decade since implementation.

A detailed analysis of the underlying reasons shall result in alternative proposals to revive the said scheme.

There is a wide gap between plans formualted at the city-level and the micro-level.

The given proposal led to more land being retained by the land owner while enjoying the same benefits; thus, facilitating development in the area.

Zonal level plans/plans for sub-regions within cities are needed to facilitate better formulation of city-level plans and their micro-level implementation.

27