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
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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