Chapter – 5 : Land Management & Urban Growth
IL&FS ECOSMART Chapter – 5 Land Management & Urban Growth
CHAPTER - 5 LAND MANAGEMENT & URBAN GROWTH
5.1 INTRODUCTION
Delhi is located strategically on two National Highways (NH-2 & NH-8) that connect Delhi to Kolkata and Mumbai. NH-2 & NH-8 are two prime vertices of the Golden Quadrilateral Corridor of the National Highways Development Project. The city attracts a migrant population of 645 per day from various part of the country, mainly from the northern region. In order to control the unprecedented growth of Delhi, the approach of ‘planned decentralization’ has been suggested as per the MPD-1961 & 81 and NCR Plan 2001 & 21.
This chapter deals with the physical growth trends and planning efforts undertaken in Delhi. An attempt has been made to understand future growth trends and issues related to urban development. The approach at the NCR level is presented in the box below:
The NCR Plan 2021 has proposed a six tier settlement system i.e. Metro Centre, Regional Centre, Sub-Regional Centre, Service Centre, Central Village and Basic Village. Seven metro centers (Faridabad-Ballabhgarh; Gurgaon-Manesar, Gaziabad-Loni, NOIDA, Sonepat-Kundli, Greater NOIDA, Meerut) are proposed as potential growth nodes to attract capital functions and activities and help in population dispersal from the national capital. Because of their special functional status and size, a very high level of physical, social and economic infrastructure (better than that in the capital) is required to be developed within these towns/complexes. The respective participating states and their agencies would not only be required to create the necessary infrastructure themselves in these Metro Centers but also facilitate the private sector investment therein.
5.2 CONSTITUENTS OF DELHI
The National Capital Territory, Delhi (NCTD) area consists of the following three municipal areas-
(i) New Delhi Municipal Corporation (NDMC) area at the core. This is the imperial Delhi spread over an area of 42.74 km2 which was established in 1911. It comprises of government Offices & residential areas and commercial nodes with wide roads, parks and open spaces etc. The NDMC area is administered by an 11 member council comprising 3 MLA’s; five government officers and 2 civilians nominated by Central Government; and a chairperson appointed by Central Government. The Council reports directly to Central Government.
(ii) Municipal Corporation of Delhi (MCD) area, occupying 1397 sq. kms, or most of the area of the city. The MCD further comprises the following areas: • Old Delhi comprising of the walled city (Shahajahanabad) and densely built up areas between the Red Fort and the New Delhi Railway Station on the periphery;
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• Civil lines along the Ridge and Delhi University area in the North with large plots and open spaces; • New colonies, which have come up in last 50 years on the Southern and Western sides; • New development across the Yamuna river comprising of Shahadara in the North, Patparganj & Mayur Vihar in the South; • 728 squatter settlements, spread over an area of 9.68 km2 all over the NCT area. • Around 185 villages in outer Delhi area and 135 urban villages characterized by haphazard development with marginal municipal services etc. (outer Delhi is included in MCD limits and accounted for in the MCD area).
The MCD is administered by an elected council comprising ward councilors from each of the 137 wards in the area. (refer Section 13, “Institutional Arrangement”). The MCD reports directly to the Central Government.
(iii) Delhi Cantonment area between the Airport and the NDMC area, spread over an area of 42.97 km2. The cantonment area is administered by the Delhi Cantonment Board (DCB), which reorts directly to the Central Government (Ministry of Defence).
In 1999, the urban area of Delhi covered 701.62 Sq. Kms (Refer Table 5.1 and 5.2; and Figure 5.1).
Table 5.1: Constituents of National Capital Territory of Delhi Total Area Total Population Constituents in km2 in ‘000 (2001) 1981 2001 MCD AREA 1397.3 6899 11244 Walled City Area 11.6 582 570 Walled City Extension 23.0 568 624 Rest of MCD Area (including 1362.7 3768 8049 Urban Extn. and Rural areas) NDMC AREA 42.7 496 587 DELHI CANTONMENT BOARD 43.0 NA NA NCTD AREA 1483 - - Source: (i) Master Plan of Delhi-2001 & 2021; (ii) Status Report for Delhi-21, Delhi Urban Environment and Infrastructure Improvement Project (DUEIIP), January 2001
Table 5.2: Delhi Area Statistics S. Item Area (Sq. No. kms) 1. Total Area 1483 2. Urban Area* 701.62 (47.3%) 3. Natural Features to be Conserved** 195.09 4. Balance Area Available for Urbanisation 586.29 5. Addl. Area Proposed for Urbanisation (2021)*** 276.29 6. Proposed Urban Area (2021) 977.91 (66%) * As per IRS-IC LISS 3 Satellite Data ** Including. forests, ridge, rivers, wildlife sanctuaries, other water bodies and drains *** Preliminary estimate, MPD 2021
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Total Area of these Zones is These Zones are holding 20-22000 hectare. population more than Additional population of 2.5 assigned during MPD 2001. million to be accomm-odated in The activities such as these zones at a density of 250 wholesale Market; ISBT; pph. Vegetable Market et. can be P1 & P2 removed from these Zones to Urban Extns.
N M C H O E B A K1 & D G Re densification of the K2 zones with low density and L high land value has been F proposed
J
Figure 5.1: Planning Division in NCTD Area
5.3 EXISTING CITY ASSESSMENT
Delhi city region comprises of three components (i) Existing Urban Area; and (ii) Urban Extensions. The existing urban area has been classified as (a) Planned area; (b) Special Area; (c) Ecologically sensitive areas and (d) Unplanned areas. The descriptions of these areas are presented in Table 5-3.
Table 5.3: Description of Various Components of Delhi Urban Area
Components of Delhi Urban Description Area The planned area of Delhi include (i) Influence area along MRTS and Major Transport Corridor; (ii) Lutyens Bunglow Zone; (iii) PLANNED Chanakyapuri area; (iv) DIZ area; (v) Mata Sundari Area; (vi) Civil AREAS Lines Bunglow area; (vii) Other part of NDMC area;(viii) Planned built-up housing; (ix) Planned (Hierarchical) Commercial Area; (xii) Planned Industrial Area Special areas as defined on the plan cover about 2600 ha and have SPECIAL been divided into three separate parts (i) Walled City; (ii) Walled AREAS City Extension and (iii) Karol Bagh. These are characterized by a mix of different land uses and have similarities in built form. UNPLANNED The unplanned areas are distributed homogenously across the urban Client : Dept. of Urban Development, Govt. of Delhi 5-3 Consultant : IL&FS Ecosmart Limited
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Components of Delhi Urban Description Area AREAS form. These areas are (i) Slum & JJ Clusters; (ii) Resettlement Colonies; (iii) Urban Villages; (iv) Unauthorized Colonies; (v) Informal Shopping Areas; (vi) non conforming Industrial areas. These areas provide substantial housing stock; commercial and industrial development. The urban extensions are peripheral areas which experience pressure of development. These areas comprise of villages, unauthorized URBAN colonies and JJ clusters. As per MPD-2021, 29 lakh population EXTENSIONS already exists in these areas. The urban extensions where development processes have been initiated are Dwarka, Rohini Phase III, IV and V and Narela. Source: Compiled from Master Plan of Delhi, 2021
The development status of the city has been revised with respect to Existing Linear Development; Development in Special areas; Unauthorised / Unorganised Colonies; Housing Supply & Demand; Planned & Unplanned Commercial & Industrial areas and ecologically sensitive areas.
5.3.1 Influence Zone along Major MRTS and Major Corridors
The growth of Delhi over the years has been on a ring and radial pattern, with reliance on road based public transport. The development envisaged by previous plans was poly-nodal with a hierarchy of commercial centres located on either ring or radial roads. The proposed MRTS network has been acting as a development catalyst and has sizeable impact on the existing structure of the city.
5.3.2 Development Profile along Major Corridors
The road network can be categorized into four types i.e. Arterial roads, sub arterial roads, minor arterial road and collector roads. About 1100 km of road length are provided with right of way of 30m and above.
The road network comprising of ring and radial pattern has C.P. as a focal point with Mathura road, Lal Bhadur Shastri Marg, Aurobindo Marg, Rao Tula Ram Marg, Gurgaon Road (NH 8) Patel road, Shankar road, Rohtak Road, G.T Road (NH1), Loni road, Shahadra road, NH 24 bypass forming the radials while Mahatma Gandhi Road (Ring Road), Outer Ring road, Noida road- Bund road forming the prominent rings. These radial and ring roads serve as major arterials to carry bulk of traffic in the city.
These major corridors are high intensity development zones with planned and unplanned development along them. The predominant developments along the major corridors are presented in 4 & Figure 5.2.
Table 5.4: Development Intensity along Major Corridors of Delhi
Name of Characteristics & Type of Problem Corridor Development NH-2 (Delhi The length of NH-2 in NCTD is • Encroachments at Jaitpur & Kolkata): around 20km from Badarpur Badarpur intersection reduce Major arm of Border to Rajghat. It is one entry the carriageway width. Golden point to Delhi and has industrial, • Prone to water logging during Client : Dept. of Urban Development, Govt. of Delhi 5-4 Consultant : IL&FS Ecosmart Limited
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Name of Characteristics & Type of Problem Corridor Development Quadrilateral institutional and residential rainy seasons and lack of development. At the entry point suitable drainage it is characterized by haphazard infrastructure and unplanned growth residential • Bottleneck at the entry point & industrial areas in urban with industrial, commercial villages. development and Bus & Truck parking • Environmental degradation because of filling of water bodies and low lying areas for commercial uses such as petrol pump, Transport training institute, Sarai Kale Khan ISBT. NH-24 The length of NH-24 in NCTD is • The corridor passes through (Delhi- around 15km from Ghazipur to low lying area and the Lucknow): NH-2 intersection at IP Park. It development in the Yamuna Major was at Ghazipur which is a major Bed. It has unorganized Corridor fish & chicken market; and fruit development in villages such Connecting & vegetable market of Delhi. It as Khicripur, Pandav Nagar Important also has major garbage dumping etc. business site. It mainly traverses through • The corridor has been centres of haphazard development within encroached by JJ clusters. Uttar Pradesh urban villages and Patparganj & These clusters are devoid of to National Mayur Vihar society complexes. basic infrastructure facilities Capital The proposed site for common leading high interaction with wealth games is also in proximity the corridor. to this corridor. • Low lying areas along the corridor are used for dumping of HH and construction wastes.
NH-1 (Delhi The length of NH-1 from Samli • High density industrial; to Kanpur: border to TP Nagar Border is commercial and unauthorized Major around 40 km. It traverses development Corridor through Industrial areas • Truck parking near the TP traverses (Wazirpur, Jahangirpuri, Badli in Nagar border in east with through North and Jhilmil & Shahadara in transport operators located industrial East), Institutional area (Delhi along the corridor nodes of University, IP University, Old • Encroachment on the corridor Delhi and UP Secretariat), Resettlement due to unauthorized Colonies (Babarpur, Saleempuri, development have transformed Seemapuri et.al) the urban built form in the area along the corridor NH-10 (Delhi It is around 25km in length in • Development of resettlement to Rohtak): It NCTD extending from Savdar colonies and industrial areas at is an Ghevra to Sarai Rohilla. It the urban periphery has led to important traverses through the urban unauthorized and unplanned corridor in extensions of Delhi, which have growth of village settlements West Delhi potential for future development. in and around these areas. connecting It is connected to Dwarka and second order Rohini through ring roads. settlements of Haryana NH-8 (Delhi It is around 15 km in length in • It mainly has planned to Mumbai): NCTD extending from Rajokari development and high traffic Connecting Border to Daulakaun. It is one of volumes due to its linkage to the National most developed corridor of the planned residential areas, Capital to the city with industrial; residential Dwarka and IT city Gurgaon. Client : Dept. of Urban Development, Govt. of Delhi 5-5 Consultant : IL&FS Ecosmart Limited
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Name of Characteristics & Type of Problem Corridor Development Economic and commercial development. • Its proximity to the Airport Capital of the Most of the predominant leads to high interaction with Country and historical monuments are also Cargo and goods traffic. traversing accessible through this corridor. • It is also connected to through It has intense commercial institutional areas of Delhi and major development near Rajokri border traverses through intense industrial with large open spaces due to the residential development, nodes of the Airport and cantonment areas. It prone to landuse country connects urban periphery to New transformation. Delhi and Old Delhi Areas. Outer and The ring road is of 75 km in • Ring road has now become Inner Ring length connecting institutional part of the city transportation Road and industrial areas in the north network with high intensity to residential and industrial area commercial and industrial in the west; and historical sites & development. institutional area in south and east. Institutional The institutional corridor of the • It has experienced Corridor city is of around 45km in length transformation of residential and traverses through Pusa road, areas to institutional and Central Secretariat Complex, commercial areas --- eg. AIIMS, IIT, CWC and JNU areas Green Park; Hauzkhas; Pusa road etc. These Landuse transformations have led to pressure on physical infrastructure of the city. MRTS MRTS has been planned to cover • These nodes are vulnerable to Corridors the spread of Delhi and its encroachment by unauthorized peripheral area. The metro commercial development if station complexes at 2km not planned along with distance are nodes for schemes for corridor commercial development. development.
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NH-1
ROHINI RESIDENTIAL Ghaziabad AREA NH-1 NH-10 WALLED CITY &ITS EXTN NH-24 INSTITUTIONAL AREA
Low Density Area
DWARKA RESIDENTIAL AREA NOIDA
HERITAGE PRECINCT
Faridabad Gurgaon
NH-8 NH-2
Figure 5.2 : Major Transport Coordination
5.4 LOW DENSITY AREAS IN CITY
There is a large proportion of underused land with number of vacant sites or unutilized built areas within the central city. A majority of these are government lands having mostly low density (2 story structures) and old housing. As per the study, government is able to provide housing to only 30-35% of its employees within these areas. The gross densities in these areas are around 160 PPH against 350 PPH in the adjoining areas namely Safdarjang Enclave extn; Munirka; Bhikaji Cama commercial complex. Table 5.5 presents the development profile of low density areas.
Table 5.5: Development Profile of Low Density Area
GROSS DENSITY IN EXISITING AREA GROUND COVERAGE FAR PPH Lodhi Colony 222 18 37 RK Puram 190 17 35 Moti Bagh 145 15 31 Laxmibai Nagar 225 19 38 Source: Ravi Kumar Kakkar, Unpublished Thesis on Urban Design Strategies for Renewal of State Owned Housing Estates, Urban Design Department, SPA, 1992-93. Client : Dept. of Urban Development, Govt. of Delhi 5-7 Consultant : IL&FS Ecosmart Limited
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As per the provision of MPD-2001, the gross density of residential areas should be 350 PPH or 78 DU/ha with FAR of 33% against the existing FAR of 15%; whereas in commercial areas ground coverage of 25% and FAR of 100% is permitted. MPD-2001 & 2021 have recommended comprehensive planning for improvement and redevelopment of these areas in order to make the best use of land resources (Refer Figure 5.3).
Motibagh Lodhi Colony
Laxmibai Nagar RK Puram
Figure 5.3 : Low Density areas in Delhi
5.5 STATUS OF SPECIAL AREAS
The special area has been divided into three parts namely (i) Walled City; (ii) Walled City Extension and (iii) Karol Bagh. These are characterized by a mix of different land uses and have similarities in compact built form, narrow circulation space and low rise high density developments mainly accommodating residential, commercial (both retail or wholesale) and industrial uses. Therefore it is important that these areas, which are already established with identified uses, continue to play an active economic role (Refer Figure 5.4).
(a) Walled City Area: The traditional walled city area is a core of the business district. The area is prone to commercialization, particularly with improved accessibility due to the MRTS. Around 20% of the wholesale trade enterprises (37000 enterprises) of urban Delhi are located in the walled city accounting for 12% of the employment.
(b) Walled City Extension: Pahar Ganj, Sadar Bazar, Rosanna Road and their adjoining areas are called as walled city extension. These are old congested built-up areas mainly with mixed land use. For upgradation of the environment in these areas minimum level of infrastructure and parking are to be provided.
(c) Karol Bagh Area: Karol Bagh area has been one of the important commercial centres outside the walled city. The land use transformation
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from residential to commercial has led to increase in parking demand, reduction in available road width and pressure on other physical infrastructure. Therefore, this area is due for comprehensive redevelopment on the basis of mixed use concept with provision of parking and up gradation of facilities and utilities. The grid iron pattern is an asset to regulate and pedestrianise traffic movement.
CORE OF BUSINESS DISTRICT COMMERCIAL CENTRE Potential for Commercialization Provision of parking and up gradation of facilities and utilities Proposal to Shift Wholesale Trade Activity Grid Iron Pattern is to be treated as an asset to regulate and Special Treatment of Heritage pedestrians the traffic movement area Reconstruction & Redevelopment
WALLED CITY KAROL BAGH EXTN. WALLED CITY AREA AREA
MIXED LANDUSE Provision of minimum Level Infrastructure & Parking Facilities Redevelopment in term of comprehensive redevelopment scheme
Figure 5.4: Status of Special Area of Delhi
5.6 UNAUTHORIZED & UNORGANIZED COLONIES
The unplanned areas of the city include Slum and JJ Clusters, Resettlement colonies, unauthorized colonies and urban villages. Slum and JJ clusters have been discussed in detail in chapter 6. The section below presents in detail the status of unauthorized colonies and urban villages.
Unauthorized Colonies
The large scale land acquisition by DDA, unregulated growth of urban fringes and housing shortage are the genesis of unauthorized colonies in Delhi. There are around 1432 unauthorized colonies1 providing shelter to around 30 lakh people. In the past unauthorized colonies have being regularized only twice in
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Delhi. Once in 1961 when over 100 colonies were regularized and last time in 1977 when around 600 colonies where regularized.
Affluent unauthorized colonies included Sanik Farm; Anant Ram Dairy (near RK Puram), Mahendru Enclave (near Model town); other colonies include Zakirnagar, Jamianagar, Anand Parbat, Khanpur Extension, Viswas Nagar, Bawana, Madanpur Khader etc (Figure 5.4). Around 1000 unauthorized colonies are on private land developed by builders.
The infrastructure status in these colonies is marginally better than slums. No metalled road exists in any of these colonies, nor is there a provision of sewer lines and other facilities.
Urban Development Department, NCTD has been putting up various models for regularizing these against the resident’s demand of regularization without any charges (on the line of earlier regularization in 1977). The UDD proposals are presented in Table 5..
Table 5.6: Unauthorized Colonies Regularization Model
Facilities Charges (Rs per m2) Power Rs 6600 Per KV The cost for regularization of 100 sqm of plot is Rs 1 lakh. Delhi Government had Water Rs 220 per m2 invited application from residents
2 associations for all unauthorized colonies Sewerage Rs 355 per m in October 2004, through a public notice. Roads and The applicants were asked to submit their Rs 400 per m2 Drains area plans. 1153 applications were Total Fixed received out of 1432 unauthorized Rs 1060 per m2 Charge colonies.
5.7 URBAN VILLAGES
165 urban villages and 52 census towns form part of the National Capital Territory of Delhi (NCTD). These urban villages have undergone significant physical and functional transformation related to their specific location. Villages are characterized by a mix of different land uses and have similarities in compact built-up form, narrow circulation space and high density developments. These mainly accommodate residential, commercial, industrial and mixed uses. These areas, established with identified uses, continue to play an active economic role.
5.8 STATUS OF SHELTER IN CITY
Urban Delhi accommodated about 11.5 lakh households in different housing developments in 1981. The Housing shortage at the beginning of second plan (MPD-1981-2001) period had been estimated at about 3 lakh dwelling units which included (i) Squatter and shelterless, (ii) Families sharing houses in congested built-up areas; (iii) houses requiring immediate replacement. Therefore it had been estimated that 16.2 lakh DUs were required for the period of 1981-2001 as shown in Table 5..
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Table 5.7: Housing to be built (1981-91)
Year New Housing required Average per year 1981-86 323000 65000 1986-91 379000 76000 1991-96 434000 87000 1996-01 483000 97000 Total 1619000 81000 Source: A People’s Housing Policy; The case study of Delhi, Hazards Centre, January, 2003
As against this, Table 5. indicates the actual housing development in Delhi until 1995. This indicates that for the period of the second Master Plan (1981-2001), in fact DDA was able to provide land and housing for only 34 per cent of target.
DDA and cooperatives (42.5%) met their share of 43% and the site & services plots resettlement sites (23.9%) correspond to the 25%, but the allotment of plots for individual families (31.7%) significantly exceeded the 17% provision.
Table 5.8: Development of Housing
Type upto 1971 1971-81 1981-91 1991-95 Total %age DDA Flats 5600 60000 129000 57000 251600 23.5 DUs on individual 59000 82400 135600 63000 340000 31.7 plots DUs by Co- - 94661 72960 36000 203621 19.0 operatives Resettlement 35000 162700 40000 18300 256000 23.9 Schemes Slum Rehousing 9500 6000 4500 - 20000 1.9 Total 109100 405761 382060 174300 107122 100.0 DUs per Year 10910 40576 38206 43575 31506 Source: A People’s Housing Policy; The case study of Delhi, Hazards Centre, January, 2003
5.9 STATUS OF INDUSTRIAL DEVELOPMENT
As per economic survey of Delhi 2001-02, there were about 1,29,000 industrial units in Delhi in 1998, against 85050 units in 1991. An average unit employed 9 workers while 30% of units employed less than 4 workers. Units related to textiles products constitute the largest number followed by repair services and electrical machinery. Table 5.9 shows the growth of industrial units and employment.
Table 5.9: Growth of Industrial Units and Employment
Number of Employees per Year Number of Industries Employee Industries 1981 42000 568910 14 1991 85050 730951 9 2001 129000 1440000 11 Source: Compiled from MPD-2021
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i) Existing Planned Industrial Areas: Out of 1.3 lakhs industrial units in Delhi, only around 25000-30,000 are located in planned industrial areas (Refer Figure 5.5 & 5.6). The existing industrial estates are Bawana; Narela; Badali; Mangolpuri; Okhla; Patparganj and Shahdara. These industrial areas were developed in the 70s and over the years have deteriorated considerably in terms of physical infrastructure. The industrial estates in the city are owned by three agencies- Delhi State Industrial Development Corporation (DSIDC), Delhi Government Industries Department and DDA. These industrial estates have various problems such as pot-holed roads, overflowing garbage bins, lack of water supply, improper electricity installations and absence of banks, common facility centres and post office. All the 28 industrial estates are plagued with the following problems.
• Poor Water Supply: Water is supplied in these industrial estates for less than half hour per day leading to diminishing quality of the produce.
• Bad Roads: The poor road connectivity to industrial estates has made industries withdraw from the area, leading to low occupancy and poor cost recovery. Bawana industrial estate is spread over 1900 acres of land but only around 10 per cent plots are occupied.
• Garbage Disposal: Garbage is littered on the roads and overflows out of the dustbins. The collection system is unreliable.
• Freehold Issue: There is a duality in the policy of the centre and the state. While DDA gives plot on freehold basis, the Delhi government still has a leasehold policy which does not give full ownership of land to the unit owner.
• Encroachment: Several plots are encroached by slum dwellers. The estate manager does not have the power to evict these encroachers.
ii) Unplanned Industrial Area: A survey of residential areas with industrial concentration has revealed that only seven qualify clearly for regularization (as per the criteria of more than 70% industrial use). The remaining can get regularized only after considering godowns, commercial shops and commercial godowns as industrial activity (Refer Table 5.10)
Table 5.10: Percentage breakup of Unregularised Industrial Areas in Delhi
Industrial Comme Industrial Commercial Areas Concentrati rcial Total Godowns Godowns on Use Jawahar Nagar 75.18 75.18 Karawal Nagar 78.86 78.86 Haiderpur 76.06 76.06 Shalimar 80.70 80.70 Village New Mandoli 72.36 72.36 Basai Darapur 75.07 75.07 Khyala 70.22 70.22 Rithala 57.81 13.53 71.34 Mundka, Swarn 64.06 20.90 84.96 Park Mundka 48.35 25.87 74.22 Client : Dept. of Urban Development, Govt. of Delhi 5-12 Consultant : IL&FS Ecosmart Limited
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Industrial Comme Industrial Commercial Areas Concentrati rcial Total Godowns Godowns on Use Naresh Park 2.17 18.11 70.28 Extn. Peeragarhi 60.44 11.52 71.96 Nawada 69.31 5.29 74.60 Hastsal-Pkt A 63.38 18.99 82.67 Hastsal-Pkt B 66.47 11.76 78.23 Dabri 52.24 7.05 15.38 74.67 Libaspur 57.85 12.29 70.14 Sultanpur 41.29 20.32 8.70 5.01 75.32 Mazra
As per the Table above the maximum industrial concentration is in Shalimar village which has 80.70 per cent of the area under industries. Areas that do not qualify even after the inclusion of godowns include Tikri Kalan, Prahladpur, Viswas Nagar, Tri Nagar and Nangli Sakrawati. Two areas have more than 85 per cent industrial concentration (GT Karnal Road-80.64% and Kirti Nagar-95.83%) but do not qualify because the land area is less than four hectare land (Refer Figure 5.5)
Figure 5.5 : Location of Planned and Unorganised Industrial Areas
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5.10 ECOLOGICALLY SENSITIVE AREAS
Besides Delhi’s magnificent built heritage (discussed in detail in Chapter 7), there are natural and historical landscape features (Yamuna River Corridor, Delhi Ridge) and the associated protected areas of natural wildlife (Jasola Wildlife Sanctuary) that characterize the urban form of Delhi. The detail status of Yamuna River Corridor and Jasola Wildlife Sanctuary & Delhi Ridge are discussed below.
Areas Characteristics of Ecologically Sensitive areas YAMMUNA The river front in Delhi has lost its potential heritage, religious, RIVER pulic amenity and recreational value. It is surrounded by unplanned CORRIDOR and haphazard development of villages and JJ clusters in North; by Thermal Power Plants, Aksardham Temple complex, Commonwealth Game village etc in central part; in the south by Julenagaon; Taimur Nagar, Kalindikunj etc. The problem areas associated with river corridor in NCTD are listed below: • Though an interstate water sharing treaty exists, there is lack of an effective inter state river basin hydro-policy regime. This results in upstream pollution from agricultural pesticides and sub-optimal water extraction practices. • The presence of extensive, high density areas of informal low income housing generating large volumes of untreated sewage and solid waste that is discharged into the river. • A recent Supreme Court Order stipulates that industrial effluent must be treated to a prescribed standard before being discharged into the Yamuna. Making this order operational, through effective implementation, enforcement and monitoring will be critical to the environmental sustainability of the Yamuna. • Within the context of the Yamuna Action Plan, DDA has proposed to change the use of 260 hectare of land in the central tranche to public use. JASOLA The sustainability of the sensitive ecological habitat of the Jasola WILDLIFE wildlife area will also require the formulation and implementation AREA AND THE of a special case integrated area strategy that would be likely to RIDGE include Delhi Ridge as the environmental context and buffer zone to the sanctuary. The problems associated with this area are as follows: • Temporary incompatible use permissions granted for storage, assembly, temporary accommodation (e.g. exhibition related activities) have left behind residual materials. This despoils the area and renders it environmentally vulnerable. • Incremental quarry extraction activities have scared the ridge; and (post working) designation as wasteland by the DDA in its land-use plans has consolidated this abuse.
It is imperative to state that the development of Delhi Ridge and Yamuna City Regional Park System has to be comprehensively looked into to plan for better physical environment & ecological system of the city.
5.11 LAND DEVELOPMENT AND MANAGEMENT
A brief summary of the roles and responsibilities of central and state government agencies in land management are presented below.
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Department/Agency Roles and Responsibilities Land Record • Deals with Nazul-I lands transferred to DDA from Delhi Management, DDA Improvement Trust and Nazul-II lands acquired under the policy of large scale acquisition for development and disposal of land by DDA after 1957. • The functions of the land management department are to acquire land, allot sites for petrol pumps and gas godowns, maintain land records, protect land from encroachment and enforce Master plan section against misuse. DDA has setup six field zones for the purpose of protection of land. Land and Building • The revenue department acquires land on behalf of the Department/Revenue DDA/MCD/Slum department. The demand for land Department acquisition is placed by DDA to the land building department, which acquires the land for the DDA after getting approval from the LG; and after acquisition, places the same at the disposal of DDA, under section 12 of DDA act L&E Department of • The L&E department of MCD deals with records of land MCD and properties of the colonies/villages within the jurisdiction of MCD. The department also deals with collection of property tax and monitors its activities through the 12 MCD zones. L&DO GoI, UDPA • The department deals with the maintenance of land record of the properties of the GoI. The activities of construction and maintenance are with CPWD.
In NCTD area most of the lands are owned by the DDA, L&DO and central governments. Land under state ownership is limited and sectorally owned. Agricultural land is mainly privately owned and owners pay agriculture tax to the revenue department. However the private sector primarily comprises of individuals; families; trusts; institutions; families; trusts; institutions and firms/companies, which own or seek land or space built on land (refer Table 5.).
Table 5.11: Land Ownership in Delhi
Land Owning L&DO Cantonment Others (MCD, DDA Total Agency (NDMC) Board Railways etc) Area in hectare 25377.2 4270.0 114352.8 4300.0 148300 % to Total 17.1 2.9 2.9 77.1 100 Source: DUEIIP, Status Report for Delhi-21
5.12 EFFORTS OF PLANNED DEVELOPMENT
In order to encourage planned development in the city, the DDA prepared master plans for the NCTD Area. Various plans prepared for Delhi over the years include (i) Lutyen’s Plan for the New Delhi (the imperial capital) now NDMC area-1911; (ii) Interim General Plan for Delhi prepared by the Town Planning Organisation (TPO) in 1956; (iii) Master Plan for Delhi (MPD) with perspective of 1981 (based on Land use inventory TPO, 1958) prepared by DDA in 1962; (iv) Master Plan for Delhi with perspective of 2001 prepared by DDA in 1990; (v) National Capital Regional Plan (NCRP) with perspective of 2001 prepared in 1989; (vi) Draft Master Plan Delhi with perspective of 2021, prepared by DDA in 2005 (notification awaited) and (vii) National Capital Regional Plan (NCRP) with
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perspective of 2021 prepared in 2005. The salient features of these plans are discussed in the subsequent section.
5.12.1 Master Plan for Delhi (1961-81)
MPD-1981 has divided city into 8 planning divisions and planning districts with an objective to make these self contained in employment and community facilities. As per MPD-1981, these divisions were proposed to have populations ranging from 3 to 7 lakhs. Hence each division had 2-3 district centres, which are composite retail shopping centres with commercial and service uses. As per the plan, total land available for urbanization in 1981, was about 440 km2. Beyond this has the “Agricultural Green Belt” which was to be preserved for agricultural use. The proposed activities as per Master Plan (1961-81) are presented in Table 5.12 & Figure 5.7.
Table 5.12: Proposed Activities as per Master Plan (1961-81)
Land Uses Activities Acquisition of • In order to contain the likely population of about 6.0 million by Land and 1981, the following additional land areas were proposed to be Development developed under various uses: Residential: 30,000 acres; Commercial: 1900 acres; Industrial: 4800 acres; Government: 500 acres; Recreational: 25000 acres Residential • Medium and High Density residential development proposed in the planning division A & B (Old Wall City area & its Extension). • Average Residential Density ranges from 81 PPA in West Yamuna Canal area to 235 PPA in old walled city area. The average gross density in the Master Plan is about 97 PPA. • Redensification of low density areas such as Lodhi colony; RK Puram, Motibagh and laxmibai nagar. • Developing Low income housing-1,50,000 units; government housing-1,10,000 units and private housing-4,85,000 units Commercial • The Commercial area as per MPD 1981 works out to be 0.48 acres/1000 population. • The hierarchies of commercial area proposed were Central Business District (CBD); District Shopping Centre; Community Shopping; local shopping and convenient shopping. • Development of commercial area of 565 acres. Slum • 20 projects were to be developed upto 1981 for slum Improvements improvements. These slum areas are Kotla Mubarakpur; Sui & Walan; Kucha Pati Ram; Sarai Rohilla; Qadam Sharif; Shadipur Redevelopment Khampur, Ajmeri Gate etc. Industrial Area • Areas proposed for industrial development. The details are given as part of Table 5.. Recreational • It has been proposed to develop 25000 acres of land for Areas recreational use. • It was proposed to provide active recreational facilities such as open air theatres, libraries, museums, swimming pools, terraced gardens, landscaped vistas and botanical gardens. Plan for Rural • The rural towns proposed for the location of light and medium Delhi industries are Nangloi Jat, Bawana, Palam and Najafgarh • It was proposed to provide 17 local shopping centres for each cluster of villages (within radius of 3 miles from every village), 6 district shopping centres for bigger village groups (within radius of 5 miles from every village) and 3 mandis in more central location (Palam; Khera kalan and Kanjhawala). Source: Compiled from Master Plan of Delhi-1961-81 Client : Dept. of Urban Development, Govt. of Delhi 5-16 Consultant : IL&FS Ecosmart Limited
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Table 5.13: Proposed Wholesale & Specialized Markets (1981)
Market Proposed Location Area in Acre Fruit and Vegetable One mandi near Daya Basti railway station in 35 Markets Sarai Rohilla in North-west and another in South of Delhi at Okhla Wholesale Grain Market Site near Teliwara, in north of Sadar bazaar 17 was proposed Bicycle and accessories Jhandewalan area 10 Cloth Market Redevelopment & Modernization of Chandni 10 Chowk area and site west of church mission road Fodder Market Dayabasti near Najafgarh Road 6
General Merchandise Improvement and reorganization of Sadar 61 and hosiery Bazar-Old Bahadurgarh road Iron, steel and scrap Jhadewalan; reorganization of junk & scrap 15 metal market yards in Motia Khan Building Materials West Delhi adjacent to the railway line to 50 Rewari Source: Compiled from Master Plan of Delhi-1961-81
Table 5.14: Proposed Location of Industrial Estates and Zones (1981)
Industrial Area Total Industrial Area Total Industrial Total Land Land Area Land (in (in (in acres) acres) acres) A. Extensive manufacturing B. Intensive Manufacturing C. Service 355 Industries Najafgarh 716 Flatted industries 192 D. 106 Industrial Area inlying locations Extractive Industries Okhla Industrial 1241 Flatted industries 169 E. Special 165 Area outlying locations Industries Azadpur 743 Sub-Total 361 Sub-Total 626 Industrial Area Shahdara 3832 Industrial Area Rohtak Industrial 1034 Area Sub-Total 7566
Source: Compiled from Master Plan of Delhi-1961-81
5.12.2 Review of Master Plan Proposals
MPD-81 proposed to increase the residential use to 44% from 18% in 1961. However the residential use as per the MPD-61 was 30% which is far below the proposed use. Other uses such as recreational area, as proposed in MPD-81 were 24%, which got limited to 12%. The area under commercial land use was proposed to be 2% but it exceeded to 3.8%. Similarly, the area under Industrial land use was proposed to be increased to 5% but only 3.5% of the area was under this land use in 1981 (Refer 6 & 6 (a)). Client : Dept. of Urban Development, Govt. of Delhi 5-17 Consultant : IL&FS Ecosmart Limited
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Railways Agriculture Land 0.3% Proposed Transportati 2% 1981 on Facilities Agriculture Commercial 8% Railways Land 16 . 2 % Use 2% Residential 2% Use Indust rial Use 18 % Recreation Residential 2% Use Use 24% 44% Transport at ion Public & Facilities Semi-Public 25% Use P ublic & 25% Semi- Public Use Recreation Use 15 % 10 %
Commercial Existing Use 1961 Industrial Use 2% 5%
Figure 5.6: Proposed Landuse 1981 Figure 5.6(a): Existing Landuse 1961
Other departures from the proposed master plan measures include:
• As proposed the enhancement of existing CBD in MPD-81 did not take place. Connaught place & its extension and commercial areas in the walled city and its extension continues to function as CBD with all the associated problems of parking and traffic congestion etcl. • As per MPD-81, all non-conforming uses were to be shifted in stages to conforming areas; but no areas with non confirming uses were shifted out. • MPD-81 proposed industrial areas consisting mainly of flatted factories; light industries and extensive industries but no flatted factory area was developed except for Jhandewalan area. • MPD-81 estimated around 20000 informal sector units in 1981 which is limited to 15%. Moreover plan did not contain any specific proposal for integration of unorganized sector in development schemes. • MPD-81 targeted to construct government housing, Low cost housing and private housing as per details mentioned in Table 5.11. During the two decades, only 5.43 lakhs houses had been constructed against target of 7.47 lakh. • MPD-81 had proposed 15 district centres out of which only 3 had been developed in 1981 (Nehru Place; Rajendra Place and Bhikaji Cama Place. • Two wholesale markets namely Fruit & Vegetable Market (Okhla) and Iron & Steel Market (Jhandewalan) had been shifted out up to 1981; and two cycle & truck accessories markets were partially shifted. Most of the other markets continued to grow further in the walled city creating, further congestion.
5.12.3 Master Plan for Delhi (1981-01)
MPD-2001, was based on the basic premise of Balanced Regional Development, which emphasizes restrictive policy of employment generation. The main guidelines for this policy were: (i) only such new Central Government Offices which directly serve the Ministries of the Government of India be located in Delhi; (ii) Industrial Growth in Delhi be restricted to small scale and less labour intensive and (iii) Legal & Fiscal measures to restrict employment and distributive trade.
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The MPD-2001 projected a population of 12.8 million by 2001 for the entire NCT. However, the plan recommended to restrict the population to 11 million in NCT and divert the remaining 0.2 million to selected towns in the NCR. The population of NCT was however 13.4 million in 2001 Refer Figure 5.8.
(i) Spatial Strategies
The Master plan has come up with strategies for each of the constituents of the NCTD and DMA area. The proposed strategies as per Master Plan (1981-01) are presented in Table 5.15.
Table 5.15: Proposed Activities as per Master Plan (1981-01)
Constituent Proposed Strategy Area Acquisition of • 24000 hectare of land to be acquired up to 2001 Land and • Land development for residential purpose 12000 ha and Development industrial purpose 1600 ha • Revitalization of Walled City keeping in view the traditional character and style of the buildings • Redevelopment of Sadar Bazaar wholesale market by provision of necessary infrastructure and parking areas • Prohibiting all heavy commercial vehicles in walled city area Walled City- • Cars not allowed inside the walled city areas with provision of Special Area underground parking at Lal Quila, Delhi Gate, Ajmeri Gate, Turkman Gate, Mori Gate and Purdah bagh • One way traffic on all the streets of walled city • Planning tools such as conservative surgery to be adopted for city upgradation • New Concept of Partially built plotted housing has been introduced. This involves partially built housing on individual plots of 70-80m2. • Cooperative formation in 600 unauthorized colonies for Residential improvement of low level of physical & social infrastructure • Planned Development of Urban extension areas (Rohini, Dwarka and Narela) • Augmentation of housing at focused locations-Patparganj, Sarita Vihar and Vasant Kunj (4000 ha) • Existing CBDs-Old Wall City, Connaught Place and Karol Bagh two Sub CBDs, Proposed 2 Sub-CBDs (One in Trans Yamuna Area & other in the urban extension area) • Existing Five district centers; 22 new district centers proposed (14 in existing urban limits & 8 in the urban extensions) Commercial • It was proposed to develop four regional wholesale markets in different directions integrated with freight complexes. • 11 regional cum local wholesale markets as secondary wholesale markets are proposed to be developed in different planning divisions. • Provision of Hostel accommodation for single; minimum 25% as site and Services and 45% housing up to 2 rooms dwellings for Slum about 1 lakh LIG families Improvement & • Infrastructure up gradation in 44 resettlement colonies and Redevelopment provisions of income earning opportunities within or proximity of resettlement colonies • Provision of slum housing for 49000 families Industrial use • Industrial area redevelopment scheme for Anand Parbhat (Light
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Constituent Proposed Strategy Area Industrial Area); Shahdara (Light Industrial Area) and Shampur Badli (Extensive Industrial Area) • Provision of 16 new light industrial areas (Total area of 1533 ha) was to be developed in urban industrial extensions (UIE). Each UIE upto 5 units of about 20 ha. • Provision of 1.6 km wide green belt beyond urbanisable limits Recreational • Provision of Divisional sport centres-7nos; District level children Area parks-11nos; Development of lakes-2nos • Five villages were identified as higher order growth centre- Bakhtwarpur; Bawana; Jharoda Kalan; Dhansa and Chawala. Six Plan for Rural villages were identified as lower order growth centre- Jagatpur; Delhi Ghogha; Qutab Garh; Jaunti; Mitron; Gommanhera • Environment improvement of 120 villages and development of 11 central villages Channelisation • Development of river front considering all ecological and of River scientific aspects as project of special significance for city Yamuna
Table 5.16: Proposed Wholesale & Specialized Markets (2001)
Area in Market Proposed Location Hectare A. MARKET WITH WAREHOUSING Textile & Patparganj in east; Madanpur Khadar & Urban 70 Textile Products Extension in South; Urban Extension in South West Auto, Motor Patparganj in east; Urban Extension in South; Urban Part & 43 Extension in South West Machinery Fruit and Loni Road in east; Madanpur Khader & Urban Extension Vegetable 53 in South; Urban Extension in South West Market Hardware and Patparganj & Loni Road in east; Madanpur Khader & Building Urban Extension in South; Urban Extension in South 53 Material West Patparganj in east; Madanpur Khader & Urban Iron and Steel 25 Extension in South; Urban Extension in South West Patparganj in east; Madanpur Khader in South; Food Grain 32 Nazafgarh in South West Patparganj & Loni Road in east; Madanpur Khader & Timber Urban Extension in South; Urban Extension in South 112 West Plastic Leather Patparganj in east and Urban Extension in South West 19 and PVC Relocation of Patparganj in east 4 Junk Market Patparganj in east; Madanpur Khader & Urban Truck Terminal Extension in South; Najafgarh & Urban Extension in 219 South West Sub-CBD (Shahdara); Okhla; Rohtak Road District Centre; Shivaji Place District Centre in North; Wazirpur Regional cum District Centre; Rohini District Centre; Markets of 8- 157 local Markets 10hectare in each urban extension and fodder markets was to be developed in the rural areas
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Area in Market Proposed Location Hectare Integrated Madanpur Khadar (NH-2); Patparganj (NH-24); GT Road - Freight Complex (NH-1) and Bharthal (NH-8) Source: Compiled from Master Plan of Delhi-1981-01
• Review of Master Plan Proposals (1981-01)
Proposals which have not been completed as per the directions of the Master Plan are presented below:
o As proposed the enhancement of existing CBD in MPD-01 did not take place. Connaught place & its extension, and commercial areas in the walled city and its extension continue to function as CBD with all the associated problem of parking and traffic congestion etc.
o District centres at Jhanakpuri; Laxminagar and Shivaji palace are still in process of development
o As per MPD-01, all non-conforming uses were to be shifted in stages to the conforming areas but no areas with non-conforming uses were shifted out.
o No provision of Hostel accommodation for single workers; or minimum 25% as site and Services and 45% housing up to 2 rooms dwellings for about 1 lakh LIG families were made up to 2001
o Only 1 integrated freight complex at Gazipur is in development stage against the 4 proposed in MPD-01.
5.12.4 Draft Master Plan for Delhi (2001-21)
The land use plan 2021 has been prepared based on (i) the policies enunciated for different urban activities; (ii) requirement of additional social and physical infrastructure; (iii) Transportation and work centres; (iv) restructuring of land uses along the MRTS corridors. In order to control development; the areas have been designated as one of the 27 use zones. These zones have been classified into 10 categories2 as shown in Figure 5.9.
MPD-2021 projected a population of 23.0 million by 2021 for the entire NCT. However, the plan recommended accommodating 11.4 million people in zone A to H; and 3.9 million in Dwarka, Rohini phase-III, IV & V and Narela; and diverting the remaining 8.0 million in the planned new urban extensions. MPD- 2021 is in draft stage the detailed provisions and development strategy suggested in the plan will be presented once it is finalized.
5.13 PROVISIONS OF NCR PLAN 2001 & 21
Five towns were proposed in the Master Plan (2001-21) as DMA towns in the Delhi Metropolitan Area (DMA). These include Ghaziabad, Faridabad, Gurgaon, Kundli and Loni. A total of 3.5-lakh population was assigned by the Master Plan to these towns for the year 2011. Besides, specialized economic activities were
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proposed for each of these towns. A brief summary of the land use allocation strategies and provisions in NCR plan is discussed below:
Sectors Recommendations Development of • DMA Towns: Faridbad, NOIDA, Ghaziabad, Kundli, New Townships Bahadurgarh and Gurgaon • Priorty Towns (Regional Centres): Palwal, Khurja, Hapur, Meerut, Bulandshar, Panipat, Rohtak, Dharuhera, Bhiwadi, Rewari, Alwar • Counter Magnet Towns; Patiala (Punjab); Bareilly (Uttar Pradesh); Gwalior (Madhya Pradesh), Kota (Rajasthan), Hissar (Haryana) • Sub- Regional Centre: Shikarpur; Philhua; Tijara; Khairthal; Bahror; Bawal; Hathin; Hodal; Jhajjar and Sonipat Development of • Development Proposals: Regional Road Links Transport Sector • Elevated Expressway on Ring Road • Development Proposal-Regional Rail Industrial • Industrial Development through NCRPB assistance in Loni; Development Faridabad; Kundli; Gurgaon; Meerut; Barhi; Panipat; Manesar; Bhiwadi; Bawal; Neemrana; Alwar
5.14 ISSUES IN LAND & GROWTH MANAGEMENT
Some of the major issues emerge from the above analysis are presented below:
• Increasing gap between demand and supply of housing and infrastructure: The growth of unauthorized colonies and JJ clusters clearly indicate the housing status of the city. Consistently, targets for housing provision have not been met. Moreover, the poor have borne the brount of the shortfall. Overall, Around 5 lakh houses are to be constructed to fulfill past back logs, over and above the future demand of 20 lakh houses by 2021.
• Over crowding, haphazard development without basic services: There are 728 JJ clusters; 1700 unauthorized colonies and 165 urban villages accommodating around 60 lakh population. Of these, barely 25% of the population has access to physical infrastructure.
• Encroachments on agricultural land and urban villages: The urbanization area is expanding in an adhoc manner, often into the green area. Due to lax development regulations and control, rural areas are falling prey to unauthorized development. Original land owners have parceled their holdings and sold these at high prices to builders/developers. Urban villages have been over-run with haphazard developments
• Exploitation of Land for unauthorized development: Large portion of urban land in NCT is owned by government generally for public, community and government uses. Without programmed use and efforts for protection, these lands get easily encroached by both marginal groups and unregistered land speculators. This is further aggravated by insufficient official provision of land for various uses – be it residential, commercial or industrial.
• Non-Conforming Land uses: Around 1 lakh industries are located in non- conforming areas as per MPD. Efforts for relocation have failed due to the Client : Dept. of Urban Development, Govt. of Delhi 5-22 Consultant : IL&FS Ecosmart Limited
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inaccessibility to work-centre of the relocation site; lack of infrastructure; security of tenure & assets and affordability of the owner.
• Lack of Linkage of Physical Planning Strategy with Financial Planning: Successful physical planning should respond to economic realities; and support broader financial goals and strategies for the city. The link between these aspects, while strong in the first Master Plan, seems to have weakened substantially in subsequent plans. Failure of implementation has aggravated the situation further.
Figure 5.7 : L A N D U S E M A P 1961 – 81
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Figure 5.8 : L A N D U S E M A P 1981 - 2001
Figure 5.9 : L A N D U S E M A P 2001-21 Client : Dept. of Urban Development, Govt. of Delhi 5-24 Consultant : IL&FS Ecosmart Limited