Development of Commercial Areas: A Review of Master Plans of Mr. Mukesh Yadav1, Ms. Anika Kapoor2

Abstract: Land development is one of the determinants of sustainable urban development. In urban areas, Master Plan is one of the many tools to regulate the efficacy of urban land uses. Among the land uses, commercial land use has played a vital role in city’s economy and its development. In many of the urban centers, commercial development has been planned in a hierarchical manner to fulfill the demand of the growing population. In the study, Delhi is selected as a case and Master Plan of Delhi has been appraised as a planning mechanism in the development of the commercial centers in Delhi. The researchers have attempted to trace the historical development of commercial areas in Delhi, subsequent changes in planning norms of commercial areas over the successive Master Plans and analysed planning approach towards commercial development in Master Plans of Delhi. The study offers opportunity for the future research with respect to development of commercial areas in metropolitan setup and opens prospects for those who intent to peek in the planning mechanism, policies and byelaws related to commercial development. Keywords: Commercial Hierarchy, Master Plan, Urbanization, Planning Norms, Development Controls 1. Introduction Urbanization has been the main characteristic of land development post 20th century in capital city of Delhi. Land development can be optimized through judicious utilization of land resources under various land uses in the urban context. Land use refers to the utilization of land for the different purpose to fulfill the human needs. In context of Master Plans, the land is sub divided into uses like residential, commercial, industrial, recreational, transportation etc. Amongst the different land uses, commercial use is considered as an essential and vital component for urban economy and its improvement. Delhi being the major commercial and business center of north , commercial progression and development plays a dynamic role in the economic growth of the country at large. Due to rapid growth of population, economic and social characteristics of Delhi have changed over the years. This has shown a dramatic impact on the demand and supply trend of a commercial uses of land. Through the understanding of the characteristics and underlying mechanisms of commercial development, the economic development pattern for cities can be identified. This can be used to determine the effective policy framework for ensuring sustainable economic and commercial development of the cities. This makes “Commercial Land use”, a vital component for understanding and formulating the urban development policy. With this background, the authors have attempted this study with the aim to analyze the characteristics and hierarchy of commercial centers in National Capital Territory of Delhi. The paper intends to trace the historical development of commercial areas in Delhi, subsequent changes in planning norms of commercial areas over the successive Master Plans and analysed planning approach towards commercial development in Master Plans of Delhi.

1 Indian Institute for Human Settlements, 110001, India 2 Urban Planner, New Delhi 110002, India

2. Historical Evolution of Commercial Areas in Delhi The city of Delhi has been chronologically over layered by events and outcomes of great historical importance through the ages. The present city displays an amalgamation of all the layers, not only from architecture point of view, but also with reference to political, social, economic and others characteristics. Figure 1 and subsequent explanation shows the evolution of commercial development in Delhi schematically since pre-independence era. Figure 1: Historical evolution of commercial areas in Delhi  Delhi in pre- independence period:

In early 19th century, Delhi began to gain importance in handicraft, in terms of arts, craft, textile and handloom. By the end of the 19th century, Delhi became northern India’s manufacturing hub. Trade and commerce played a vital role in shaping the development of Delhi’s economy. As a result of the commercial development, the city witnessed growth of commercial centers. Connaught Place emerged as the commercial center (Shrey, et al., 2002). In the latter half of 19th century, industrialization changed the face of Delhi and this resulted in extension of city limits beyond its wall covering Firozabad on its north and many other thriving suburbs namely Sabzi Mandi, and Sadar Bazar. Later on Sadar Bazar, Sabzi Mandi and PaharGanj took the form of well-organized shopping areas of that time catering to the specialized needs of the walled city as well as others parts of the city.3  Delhi in post- independence period: Delhi’s growth after independence was very dramatic owing to the influx of lakhs of refugee immigrants from Pakistan. As a result, the post- independence Source: Authors

3&2 Fanshawe, H.C. (1992) “Delhi Past and Present”.

growth of the city was haphazard which made it functionally unbalanced (Iizuka, 1991). There was concentration of shopping and office areas that resulted in congestion and traffic bottlenecks in city core4. Ministry of Rehabilitation had formulated immediate as well as long term programme for the perpetual settlement of refugees. Few new colonies were planned by government and private individual with proper incentives. As a result, several colonies sprang all around Delhi viz. Nizammudin, , , , Kalkaji, Rajender Nagar, West , Moti Nagar etc.5  Situation prior to master plan: In I961, about 968.48 acres of land in Delhi was under trade and commerce use, which was 2.5% of total urban area at that time. The area between Red Fort and Sadar Bazar chowk was the main commercial center. The wholesale cloth market was in "Katras, lying in the interior of . Another large wholesale market for general provision goods was and for the utensils and paper, Chawari Bazaar. At the end of Khari Baoli towards north of Naya Bazaaar and towards south on GB road was the grain market. Ajmal Khan Road was of Sub-Central Business District centre. It had all the retail shops having opening on the road. This implies that the walled city was the core commercial center of the city. Connaught Place housed business offices, banks, insurance companies etc. The area between Delhi Gate and Ajmeri Gate on Asaf Ali marg was developed by Delhi Improvement Trust as commercial and business centers (Kulshrestha, S.K. 2018).  Situation during the Master Plans: The Master Plan is a statutory document that envisioned for systematic development of urban areas for horizon year. It accommodates essential development including commercial activities and facilities in an integrated manner. In Master Plan, commercial is one of the vital use forms. It primarily expresses the abstract notion of buying and selling. In Master plan of Delhi, hierarchical system of commercial activities is envisaged. In addition, some components of commercial use are also provided under whole sale, mixed use, non-hierarchical commercial centres, and informal sector and in the selected areas along the MRTS corridor. To detail out the situation of commercial areas during the master plan period, the explanation can be classified into two major headings: A- Master plan’s vision on commerce and its hierarchical development

B- Master plan’s proposals for commerce

Master Plan’s Vision on Commerce and its Hierarchical Development First Master Plan of Delhi was prepared by Delhi Development Authority under the Delhi Development Act 1956, for the period between 1962 to 1982. The Master Plan implicitly suggested a restructuring of Delhi from bi- nodal (Chandni Chowk and Connaught Place being the existing nodes) to multi-nodal city. At that time, Chandni Chowk- Khari Baoli, Sadar Bazar was proposed to continue as center of Delhi business. The Master Plan also mentioned about hierarchy of commercial areas which are: Central Business District, District Center, Residential Planning area, Residential Unit & Housing Cluster. Second Master Plan was prepared for the years 1981- 2001. It proposed the five tier systems of commercial areas but in a more comprehensive manner than the previous one. Its basic focus was on the decentralization of the economic activities. It also deals with mixed use provision in the Master Plan. Third Master plan was prepared for the year 2001- 2021. This Master plan is the most comprehensive and structured of all and dealt with the decentralization of economic centers and transit-oriented

3 Master Plan of Delhi- 1962

development. Its major commercial hierarchies are: Central Business District, District Centre, Community Centre, Local Shopping Centre, and Convenience Shopping Centre. To achieve the above purpose Delhi Development Authority (DDA) has developed a concept of commercial hierarchy that proposes to have commercial & business center at all the level, from city level to neighborhood level. This concept has been developed first time in Master Plan of Delhi 1961 and since then, DDA has been trying to make the sustainable hierarchy to facilitate a well-organized and planned development of the city. Delhi Development Authority (DDA) has divided the entire planned commercial development into five tiers (Refer Figure 2). The following five-tier system of commercial areas is envisaged to accommodate required shopping, commercial office and other service activities like cinema, hotel and restaurant and various community services and facilities in an integrated manner. Figure 2: Hierarchy of Commercial Centers

CBD

District Center

Community Center

Local Shoping Center

Convenience Shopping Center

Source: Master plan of Delhi, 2021

1. Central Business District: CBD is a city level nodal business center and serves whole of the city. It is the commercial, official, retail, and cultural center of the city and usually is the center point for transportation networks also. 2. District Centre: The District Centers are meant to serve as the apex of the multi-nodal activities of the community, which should be conceived as major shopping centers, while serving the community with a reasonable variety of other services and facilities and also centers of socio- cultural activity where the community can get together. 3. Community Centre: It is conceived as shopping and business centres catering to the needs of the population at community level. These centres contain retail shops, government offices, and commercial, Cinema, hotels, restaurants, banquet halls, guest house, clinics and other community facilities. 4. Local Shopping Centre: The LSC caters to the day-to-day needs of the local habitants. It houses retail shops, grocery, clinic, grocery, vegetables, fruits, restaurants etc. 5. Convenience Shopping Centre: The CSC also caters to the day- to- day needs of local people. The basic difference between LSC & CSC is the ratio of grocery units, vegetables & fruits are more in CSC as compare to LSC. At present Delhi has two CBDs i.e. Connaught Place and its Extension and the Walled City and its Extension. There are ten district centers which are already developed or in an advance development stage, followed by 12 other district centers which are to be developed or in the process of development. Addition to this, Master Plan of Delhi has envisaged specific numbers of community centers, Local Shopping Centers and Convenience Shopping Centers, based on the population. Besides this, there are other existing non-hierarchical commercial centres, which play an important role in the economy of

Delhi and also provide services at city level.6. The preceding section of the paper elucidates the intent of the development authority in relation to the commercial area development through consecutive Master Plans.

Master plan’s proposal for commerce In the first Master Plan of Delhi, the commercial hierarchy was outlined from top as CBD, District Centres, Community Centre, Residential Planning Area, Residential Unit and Housing Cluster. Decentralization of commercial activity was proposed through the development of 3 Central Business Centres (CBDs), 15 District Centres, Community Centres, Residential planning area centers and Residential units (Convenient shopping). In the master of 2001, Delhi Development Authority (DDA) proposed to enhance the existing CBDs i.e. Walled city, Connaught Place, along with proposal of 2 Sub CBDs (Trans Yamuna area and Urban Extension area and besides seven district centers (, Rajendra Place, Bhikaji Cama Place, , , Shivaji Place & Jhandewalan), 22 new district centres were proposed (14 in existing urban limits & 8 in the urban extensions). Vision of the authority was to decentralize the city- centre which can decongest the traditional CBD’s of Chandni Chowk and Connaught Place by developing District & Community Centres. The development code also provided regulations for mixed use to be allowed in residential areas for the first time in MPD - 2001. In MPD – 1962, in residential areas, only 1% was dedicated for commercial activities. But there was no mixed land use proposal for any of the new areas to be developed. In the third and last Master Plan, the anticipated enhancement of existing CBDs did not take place. Connaught place & its extension and other commercial areas in the walled city continued to function as CBD with all the associated problems of parking, traffic congestion and lack of infrastructural facilities etc.(GNCTD, 2006). According to MPD - 2001, it was supposed to build up 623 hectare of commercial space in 22 new district centres by 2001. However, as per AMDA (2003) only three new district centres with only 250 hectares of additional commercial space was developed. 2183 streets have been notified for local commercial and mixed-use activities. Figure 3 shows the location and spatial hierarchical distribution of commercial centres in Delhi as per Master. Table 1 show the development of commercial areas in the three Master Plans of Delhi.

Based on the projection, area under commerce at master plan level has increased from 581 hectare in MPD 1962- 1981 to 3726 hectare in MPD 2001- 2021. Commercial area per lakh population has also increased from 13 hectare in MPD 1962-1981 to 16.2 hectare in MPD 2001- 2021. Other commercial areas increased from 1962 to 2021 include whole sale market, hotels, commercial near railway station and other areas.

Table 1: Change in proposed commercial areas in Delhi Master Plans At Master Plan Level Total NCT Total Commercial Commercial population urbanisable Commercial Commercial Hierarchy/ Non- hierarchy area per-cent area hec/lakh (lakh) area (Hec.) area (Hec.) in urban area population

CBD 154 MPD Sub-CBD 81 1962- 45.8 44717 District Centre 239 1.29 13 1981 Sub- District Centre 72 Other commercial areas 35

6 Master Plan of Delhi, 2021

At Master Plan Level Total NCT Total Commercial Commercial population urbanisable Commercial Commercial Hierarchy/ Non- hierarchy area per-cent area hec/lakh (lakh) area (Hec.) area (Hec.) in urban area population

Total 581 CBD 170 Sub-CBD 177 MPD District Centre 749 1981- 128 60152 Community centre 465 2.83 13.4 2001 Non-hierarchical commercial areas 35 Other commercial areas 118.2 Total 1714.2 CBD 170 Sub-CBD 177 MPD 97791 District Centre 912 2001- 230 Community centre 740 3.81 16.2

2021 Non-hierarchical commercial areas 35 Other commercial areas 1692 Total 3726 Source: Delhi Master Plan-1962, 2001 & 2021

Figure 3: Map showing location of Commercial Areas in MPD, 2021

3. Change in Planning Norms and Development Controls for Commercial Areas in Master Plans: Projections made in the Master Plan of Delhi- 1962, to develop the commercial centers in each rung of hierarchy were not implemented within the stipulated time frame due to its over estimations. From the table 2, it can be analyzed that, norms for area under each category of commercial centre has been reducing while, there is an increase in the threshold population. In the lower hierarchies of the commercial centers, ground coverage was kept higher and FAR was kept lower as compared to higher commercial centers in the hierarchy. Higher order centers were always higher in FAR and height to fulfill the demand of rapid growing population of Delhi. With the increase in area under commercial use, provision for parking space has been increased throughout the master plans. No restriction on maximum height is specified in higher hierarchies of commercial centers and is subjected to statutory clearances. Table 2: Change in Planning Norms and Development Controls for Commercial areas in Master Plans of Delhi. Planning Norms Development Controls Commercial Master Ground Parking ECS/100 Height (in Hierarchy Plan Area (Hec.) Population FAR Coverage sqm. of floor area meters) 1962 ** City level 25- 50% 250-400 2 NR Central Business 2001 ** City level 25% 150 2 37 District 2021 ** City level 25% 150 3 NR 1962 6- 33 1.5- 2.5 Lakh 25-33% 100-150 1.5 NR District Centre 2001 44 5 lakhs 25% 125 1.67 37 2021 40 5 lakhs 25% 150 3 NR 1962 6- 15 40,000- 50,000 35% 100 1 *** Community 2001 5.4 1lakh 25% 100 1.33 26 Centre 2021 4 1lakh 25% 125 3 NR 1962 0.80- 1.75 12,000- 15,000 40% 100 1 *** Local Shopping 2001 0.46 15,000 30% 100 1.33 15 Centre 2021 0.3 10,000 40% 100 2 15 *** Convenience 1962 0.20- 0.50 3,500 - 5,000 40% 60 1 Shopping 2001 0.11 5,000 40% 60 1.33 15 Centre 2021 0.1 5,000 40% 60 2 15 Source: Delhi Master Plan-1962, 2001 & 2021 Note: ** Pertains to already developed Central Business District *** Height shall be governed by the FAR applicable and the architectural control prescribed by the Delhi Urban Art Commission. NR: No restriction, subject to Statutory Clearances 4. Planning approach for Commercial Areas in Delhi Master Plans It can be interpreted that, decentralization of commercial areas is the major planning approach to manage the commercial establishment. With the increase of population and its demand resulted into increase in commercial land use. But due to increasing demand of commerce, informal sector, mixed use, and weekly markets have been emerged in master plan 2001 and become more significant in master plan 2021.

Table 3: Planning approach for Commercial areas in Master Plans of Delhi Aspects Master Plan for Delhi 1962 Master Plan for Delhi 2001 Master Plan for Delhi 2021

Bi-nodal to Multi- nodal: Central Business District, Sub- Metropolitan City Centre, Central Business District, Sub- Central Business District, District Centre, Local Central Business District, District Centre, Local shopping shopping centre, Commercial District Centre, Sub-District centre, Convenience shopping Convenience shopping Decentralization Centre, Community centres, centre. centre. Residential planning area centres, Convenience shopping. A few of existing commercial Non- hierarchy commercial Non- hierarchical Non- Hierarchical areas. areas were existing & commercial areas identified commercial areas identified. for improvement Identified old built up Identified additional areas & Further, Mixed use policy residential areas as shopping provision in Zonal & Layout refined by notifying mixed Mixed use streets. Plans as per Mixed use policy. use, Commercial streets & Approach Pedestrian Shopping Streets. Mainly in the old built- up Walled city and trans- Yamuna Spaces for informal sector areas. particularly showed these are provided in different activities. Municipal land uses according to Informal corporation of Delhi has planning norms. Organised introduced the user fee informal sector locations termed as the- bazari. were identified. Incorporated in use zones Relocation of existing & Provided for regional & local Wholesale to be Wholesale proposal of new Wholesale requirements decentralized at city and sub markets. city level Proposal of organized As per existing policy prior to For Weekly market location Weekly Market Weekly markets in different plan in MCD area. suggested. areas at different location. Source: Delhi Master Plan-1962, 2001 & 2021 5. Conclusion To sum up it is been observed that, Commercial development is the need of the population. As the population grows, the need and demand of the commercial activities increases. The historical evolution suggests that the nature of commercial activities have changed over the period of time and have been accommodated in subsequent master plans. Not only extent but the planning approaches have been changed many times to fulfill the demand of commercial use like decentralization of commercial centers, mixed use, commercial street, weekly markets etc., with the change of population socio- economic and cultural characteristics. The existing Master Plan of Delhi follows a top to-down approach which focuses on expansion-based strategies including hierarchical commercial centres. Major emphasis has been laid on the development of district and community centres. To meet the growing demand of commercial activities, liberalized provision of mixed use in residential areas has been adopted. However, this de-centralized planned hierarchical development seems to be in clear conflict with current city demands and ground realities, in the absence of the implementation model. Informal and mixed uses have been mushrooming with a rapid rate and on the other side planned commercial areas are lying unoccupied because of many veiled reasons. Few of the reasons elaborated in the literature are low paying capacity of local people, high land & rentals value in district centers, community centers, & local shopping centers, violation of development controls and building bye- laws, un- controlled development of mixed use and Commercial Street and many others. It is evident that Delhi has formal planning framework through Master Plan, land use policies and specific development controls. These are clearly reflected throughout the three master plans of the city. Hence, it shows a clear relationship between development controls (like ground coverage, FAR and height) and the demand of the infrastructure. Meagre preparation of a plan is not adequate, rather realistic estimations, timely implementation of plan, understanding of ground realities and issues

related to urban governance, simplification of rules and regulations for effective enforcement, institutional capacity building is critical measures in the present times. Since, commercial use plays a vital role in city development and growth; there is need to make strategies for three levels i.e. planning, infrastructural and implementation to ensure sustainable commercial activities that can support the overall development of the city. The study further offers prospects for the future research with respect to development of commercial areas in metropolitan setup and opens opportunities for those who intent to peek in the planning mechanism, policies and byelaws related to commercial development. References 1. Apte, P.M. (1995) The Master Plan: A search for alternatives, Ministry of Urban Development, Government of India. 2. Basu, S.(1993) Master Plan Approach: National workshop on Master Plan Approach- Its Efficacy and Alternatives. Ministry of Urban Development, Government of India. 3. City Development Plan Delhi 2006, Department of Urban Development, Government of Delhi. 4. Delhi Development Authority (1957), Master Plan for Delhi perspective 1962 (Prepared by DDA, approved by the Central Government under Delhi Government Act, 1957). 5. Delhi Development Authority (1990), Master Plan for Delhi perspective 2001. 6. Delhi Development Authority (2007), Master Plan for Delhi perspective 2021. 7. Dewal, S. (2006) Master Plan for Delhi: 2021 A Critical Analysis, CCS Working Paper, Centre for Civil Society. 8. Ghertner, D. A. (2011). ‘Rule by aesthetics: world-class city making in Delhi,’ in Ananya Roy & Aihwa Ong (eds), Worlding Cities: Asian Experiments and the Art of Being Global. Oxford: Blackwell. 9. Iizuka, K. (1991). The Shah Jahan's Concept of Town Planning in Delhi. Journal of the Islamic Environmental Design Research Centre. 1(2): 30-35 10. Jain,T (2002) Planning strategy for city level hierarchical and non-hierarchical commercial centres in Delhi, School of Planning & Architecture. 11. National policy on urban street vendors (2004), Department of Urban Employment & Poverty Alleviation Ministry of Urban Development & Poverty Alleviation Government of India. 12. Nijhara,V. (2008) Policy implication & responses: a case study of mixed land use policy, Delhi master Plan 2021, B. Planning, School of Planning & Architecture. 13. Report of the Tejendra Khanna Committee (2006) set up by Govt. of India, New Delhi. 14. Shrey, S., Kandoi S. and Srivastava S. (2002). Urban Planning in India – SOC 477 Project 15. Verma, V. (2006) Commercial areas in Delhi, School of Planning & Architecture. 16. Kulshrestha S.K. (2018) Urban Renewal in India: Theory, Initiatives and Spatial Planning Strategies, Sage publications India Pvt. Ltd.