Bimal Patel: Land Pooling and Land Reconstitution

Various Uses of Land Pooling and Land Reconstitution

in Gujarat

Bimal Patel

Ministry of Urban Development, GoI January 2015

Land Pooling and Land Reconstitution is a very versatile and effective

planning, plan implementation and plan financing mechanism that has been used in Gujarat since many decades

Land Pooling and Reconstitution mechanism is known as the Town Planning Scheme mechanism in Gujarat

This presentation shows how the Town Planning Scheme mechanism is used to address some urban challenges

Some challenges city administrators face in making cities more livable, healthy, comfortable, equitable, just, productive, efficient, safe, memorable. widening streets providing roads, parks, public amenities providing infrastructure water supply, drainage redeveloping older areas of cities managing peripheral urban growth providing housing for the poor finding money (or land) to do all of the above regularizing illegal construction curbing nuisances and regulating private development .. ..

Managing peripheral urban growth

1850 1940 1960

1980 1990 2006

The spread of Ahmedabad

Urban periphery

Source: Google Earth


Managing peripheral urban growth requires: reshaping plots providing access providing infrastructure providing amenities paying for all of the above! getting all owners to agree!! regulating private development !!!

Managing peripheral urban growth requires a sound system for planning, financing and implementing the transformation of agricultural land to land suitable for urban use

Land transformation methods 1. Laissez-faire development

let owners / developers take the lead

approve individual layouts/developments

require developers to provide roads/services

levy development charges

provide roads/services as an when possible


Land transformation methods 1. Laissez-faire development

let owners / developers take the lead

approve individual layouts/developments

require developers to provide roads/services

levy development charges

provide roads/services as an when possible

No planning, let the market prevail !


Land transformation methods 2. DP + laissez-faire development

make city wide plan zone growth areas and major roads

acquire land for roads

build major roads/ infrastructure

approve individual layouts

levy development charge

provide smaller roads/ services when possible


Land transformation methods 2. DP + laissez-faire development

make city wide plan zone growth areas and major roads

acquire land for roads

build major roads/ infrastructure

approve individual layouts

levy development charge

provide smaller roads/ services when possible

Some features are planned; market prevails elsewhere


Land transformation methods 3. Land acquisition + development

304

22

RANDESAN

PRA

LAWARPUR

15

22

6

1

ALAMPUR03

DD

BHUDIA06

acquire land compensate owners

take possession of land

plan development roads, amenities, plots for sale etc

raise money

build infrastructure

sell plots

acquire land compensate owners

take possession of land

plan development roads, amenities, plots for sale etc

raise money

build infrastructure

sell plots

No markets, everything is planned !

Land transformation methods 3. Land acquisition + development

304

22

RANDESAN

PRA

LAWARPUR

15

22

6

1

ALAMPUR03

DD

BHUDIA06

developer assembles land pays farmers/owners

government provides regulatory support and connective infrastructure in exchange for extractions

developer plans and builds development - roads, amenities, plots, etc.

developer sells plots

Land transformation methods 4. Private townships

developer assembles land pays farmers/owners

government provides regulatory support and connective infrastructure in exchange for extractions

developer plans and builds development - roads, amenities, plots, etc.

developer sells plots

Planners become regulators, competition restricted, planning function internalized by developers

Land transformation methods 4. Private townships

The DP-TP* mechanism is an interesting and relatively well functioning land transformation system for planning and managing peripheral urban growth

* Gujarati for Development Plan followed by Town Planning Scheme

Land transformation methods 5. The DP-TP mechanism

DP-TP mechanisms enabling legislation Gujarat Town Planning & Urban Development Act

Invented by the British First used in 1925 Improved continuously Tested in court

DP-TP mechanisms enabling legislation Gujarat Town Planning & Urban Development Act

DP-TP mechanisms enabling legislation Remember: there is no acquisition involved here!

Managing peripheral growth using the DP-TP mechanism is a 2 step process

1 Periodically, a city wide Development Plan (DP) is

prepared to identify areas for urban growth to define city level infrastructure


1 Periodically, a city wide Development Plan (DP) is

prepared to identify areas for urban growth to define city level infrastructure

2 Then, many neighborhood wide Town Planning Schemes

(TPS) are prepared to implement the Development Plan to detail out areas identified for urban growth to readjust plots to appropriate land for city & neighbourhood infrastructure to levy charges for building infrastructure to appropriate portion of increment in land value


Step 1: Preparing a Development Plan

Ahmedabad, 2002

Key features strategic city-wide plan delineation of new growth

areas delineation of city level

infrastructure roads water supply drainage .

development control regulations

Key features sequence of detailed

planning predetermined

Step 1: Preparing a Development Plan

Ahmedabad, 2002

A Simplified Example

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1 2 3 4

314 1 Ajaybhai 1300315 2 Harishbhai 2500316 3 Kantibhai 2700317 4 Chiragbhai 2200318 5 Maheshbhai 2400319 6 Kanubhai 2700320 7 Natubhai 2200

Total 16000


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1 2 3 4

314 1 Ajaybhai 1300315 2 Harishbhai 2500316 3 Kantibhai 2700317 4 Chiragbhai 2200318 5 Maheshbhai 2400319 6 Kanubhai 2700320 7 Natubhai 2200

Total 16000Road 1100

Infrastructure 800Garden 2100Total 4000

4000 sq mts (conveniently) happens to be 25% of the total area


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25 %

Ded

uct-

ion

1 2 3 4 525% of 4

314 1 Ajaybhai 1300 325315 2 Harishbhai 2500 625316 3 Kantibhai 2700 675317 4 Chiragbhai 2200 550318 5 Maheshbhai 2400 600319 6 Kanubhai 2700 675320 7 Natubhai 2200 550

Total 16000 4000Road 1100



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25 %

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Fina

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a (s

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)

1 2 3 4 5 625% of 4 4 - 5

314 1 Ajaybhai 1300 325 975315 2 Harishbhai 2500 625 1875316 3 Kantibhai 2700 675 2025317 4 Chiragbhai 2200 550 1650318 5 Maheshbhai 2400 600 1800319 6 Kanubhai 2700 675 2025320 7 Natubhai 2200 550 1650

Total 16000 4000 12000Road 1100



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1 2 3 4 5 6 725% of 4 4 - 5 Rs 25 * 6

314 1 Ajaybhai 1300 325 975 24375315 2 Harishbhai 2500 625 1875 46875316 3 Kantibhai 2700 675 2025 50625317 4 Chiragbhai 2200 550 1650 41250318 5 Maheshbhai 2400 600 1800 45000319 6 Kanubhai 2700 675 2025 50625320 7 Natubhai 2200 550 1650 41250

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 725% of 4 4 - 5 Rs 25 * 6

314 1 Ajaybhai 1300 325 975 24375315 2 Harishbhai 2500 625 1875 46875316 3 Kantibhai 2700 675 2025 50625317 4 Chiragbhai 2200 550 1650 41250318 5 Maheshbhai 2400 600 1800 45000319 6 Kanubhai 2700 675 2025 50625320 7 Natubhai 2200 550 1650 41250

Total 16000 4000 12000 300000Road 1100


We still need to address the issue of unequal distribution

of costs and benefits !!!


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1 2 3 4 5 6 7 825% of 4 4 - 5 Rs 25 * 6

314 1 Ajaybhai 1300 325 975 24375 175315 2 Harishbhai 2500 625 1875 46875 175316 3 Kantibhai 2700 675 2025 50625 200317 4 Chiragbhai 2200 550 1650 41250 200318 5 Maheshbhai 2400 600 1800 45000 200319 6 Kanubhai 2700 675 2025 50625 225320 7 Natubhai 2200 550 1650 41250 225

Total 16000 4000 12000 300000Road 1100



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Fil P

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1 2 3 4 5 6 7 8 925% of 4 4 - 5 Rs 25 * 6 5 x 8

314 1 Ajaybhai 1300 325 975 24375 175 56875315 2 Harishbhai 2500 625 1875 46875 175 109375316 3 Kantibhai 2700 675 2025 50625 200 135000317 4 Chiragbhai 2200 550 1650 41250 200 110000318 5 Maheshbhai 2400 600 1800 45000 200 120000319 6 Kanubhai 2700 675 2025 50625 225 151875320 7 Natubhai 2200 550 1650 41250 225 123750

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 1025% of 4 4 - 5 Rs 25 * 6 5 x 8

314 1 Ajaybhai 1300 325 975 24375 175 56875 450315 2 Harishbhai 2500 625 1875 46875 175 109375 525316 3 Kantibhai 2700 675 2025 50625 200 135000 600317 4 Chiragbhai 2200 550 1650 41250 200 110000 600318 5 Maheshbhai 2400 600 1800 45000 200 120000 600319 6 Kanubhai 2700 675 2025 50625 225 151875 750320 7 Natubhai 2200 550 1650 41250 225 123750 750

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 10 1125% of 4 4 - 5 Rs 25 * 6 5 x 8

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 10 11 1225% of 4 4 - 5 Rs 25 * 6 5 x 8 6 x 10

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6 438750315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0 984375316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0 1215000317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0 990000318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0 1080000319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3 1518750320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3 1237500

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 10 11 12 1325% of 4 4 - 5 Rs 25 * 6 5 x 8 6 x 10 (6x10) - (6x8)

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6 438750 268125315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0 984375 656250316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0 1215000 810000317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0 990000 660000318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0 1080000 720000319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3 1518750 1063125320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3 1237500 866250

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 10 11 12 13 1425% of 4 4 - 5 Rs 25 * 6 5 x 8 6 x 10 (6x10) - (6x8) 7 - 9

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6 438750 268125 -32500315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0 984375 656250 -62500316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0 1215000 810000 -84375317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0 990000 660000 -68750318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0 1080000 720000 -75000319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3 1518750 1063125 -101250320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3 1237500 866250 -82500

Total 16000 4000 12000 300000Road 1100



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Dem

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1 2 3 4 5 6 7 8 9 10 11 12 13 14 1525% of 4 4 - 5 Rs 25 * 6 5 x 8 6 x 10 (6x10) - (6x8) 7 - 9 50% of 13

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6 438750 268125 -32500 134063315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0 984375 656250 -62500 328125316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0 1215000 810000 -84375 405000317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0 990000 660000 -68750 330000318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0 1080000 720000 -75000 360000319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3 1518750 1063125 -101250 531563320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3 1237500 866250 -82500 433125

Total 16000 4000 12000 300000Road 1100



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1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 1625% of 4 4 - 5 Rs 25 * 6 5 x 8 6 x 10 (6x10) - (6x8) 7 - 9 50% of 13 15 + 14

314 1 Ajaybhai 1300 325 975 24375 175 56875 450 2.6 438750 268125 -32500 134063 101563315 2 Harishbhai 2500 625 1875 46875 175 109375 525 3.0 984375 656250 -62500 328125 265625316 3 Kantibhai 2700 675 2025 50625 200 135000 600 3.0 1215000 810000 -84375 405000 320625317 4 Chiragbhai 2200 550 1650 41250 200 110000 600 3.0 990000 660000 -68750 330000 261250318 5 Maheshbhai 2400 600 1800 45000 200 120000 600 3.0 1080000 720000 -75000 360000 285000319 6 Kanubhai 2700 675 2025 50625 225 151875 750 3.3 1518750 1063125 -101250 531563 430313320 7 Natubhai 2200 550 1650 41250 225 123750 750 3.3 1237500 866250 -82500 433125 350625

Total 16000 4000 12000 300000 2015000Road 1100


A Real Example

An area of approximately 100 to 150 hectares is taken up for planning

A Real Example

The area is surveyed

A Real Example

Boundaries of the detailed planning area are defined and statutorily declared

A Real Example

Ownership details of every plot are reviewed and collated

A Real Example

Ownership, plot size, land value details tabulated

A Real Example

Original plots are marked on the survey

A Real Example

Roads are laid out

A Real Example

Plots for amenities, revenue generation are carved

A Real Example

Final plots are delineated

A Real Example

Final plots are delineated; original plots become irrelevant

A Real Example

Final plot sizes & land value increments are tabulated

A Real Example

Betterment levies tabulated

A Real Example

A Real Example

The TPS is presented to the land owners

A Real Example

Objections & suggestions are accepted

The TPS is altered as necessary

A Real Example

A Real Example

Roads are taken possession of Infrastructure is built

A Real Example

A quasi judicial officer hears grievances

The TPS is altered as necessary; State Government sanctions the TPS

A Real Example

A Real Example

Final plots are handed over Betterment levies are collected Private plots are developed as permitted

Urban growth has been managed effectively since many decades using the DP-TP mechanism

The First TPS of Ahmedabad, 1925

The First TPS across the River, 1946

Some challenges that a city administrator face in making cities more livable, healthy, comfortable, equitable, just, productive, efficient, safe, memorable. widening streets providing roads, parks, public amenities providing infrastructure water supply, drainage redeveloping older areas of cities managing peripheral urban growth providing housing for the poor finding money (or land) to do all of the above regularizing illegal construction curbing nuisances and regulating private development .. ..

Earthquake devastated Bhuj was re-laid out using the DP-T P mechanism

DARGAH

34

6

7

5

2

8

PLOTS OF RELIGIOUS USE

GOOD CONDITION

FAIR CONDITION

POOR CONDITION

1

FORT WALL

CITY SURVEY PLOTS WITH

EXISTING ROAD CITY SURVEY BUMBER

3467

EXISTING BUILDINGS

PROPOSED 12 Mts WIDE ROAD

PROPOSED 9 Mts WIDE ROAD

PROPOSED PARKING AREA

EXISTING CITYLEVEL PRECINCTS

Proposed layout

9 M

T S

. W

I D

E

R O

A D

4.5 M T S. W I D E R O A D

4.5

M T

S.

W I

D E

R O

A D

R O

A D

3 M

T S

. W

I D

E

R O

A D

6 M T S. W I D E R O A D

6 M T S. W I D E R O A D

4.5

M T

S.

W I

D E

R

O A

D 4.5 M T S. W I D E R O A D

3 M

T S

. W

I D

E

3 M

T S

. W

I D

E R

O A

D

4.5

M T

S.

W I

D E

R O

A D

3

M T

S.

W I

D E

4.5

M T

S.

W I

D E

R O

A D

W I

D E

4.5 M

T S.

Existing layout

EXISTING BUILDINGS PROPOSED 12 Mts WIDE ROADPROPOSED 9 Mts WIDE ROADEXISTING CITYLEVEL PRECINCTS PROPOSED PARKING AREA

EXISTING MARKET STREETS

PROPOSED PUBLIC PURPOSE USE

STANDING BUILDINGS

EXISTING RELIGIOUS USE

PROPOSED OPEN SPACES

DARBAR GARH

For plots built up to 100%, no deduction has been done.

Sr. No.

Area of plot (square metres)

Deduction (%) 1

0 30

0

2

30 100

10

3

100 200

20

4

200 500

30

5

More than 500

35

6

Government plots

50

POLICY TO DEDUCT LAND

Soniwad, January 20 , 2004

The DP-TP mechanism was also used to plan and implement Ahmedabads Ring Road

Ring Road

76 kms long

60 m wide

Why does the Land Pooling and Land Reconstitution (T P Scheme) Mechanism Work?

1. The mechanism is specified in a single robust enabling legislation

2. It is simultaneously a technical and legal mechanism

3. It is a mechanism that interweaves planning, plan financing and plan implementation

4. It addresses details and allows micro level planning

6. It provides considerable flexibility costs and benefits can be valued and allocated in the form of land, location, or money

7. It focuses on an area and takes a comprehensive approach roads, infrastructure, buildings etc. are dealt with together

8. It is inexpensive

Why does the Land Pooling and Land Reconstitution (T P Scheme) Mechanism Work?

9. The mechanism is based on a profoundly pragmatic approach

Property rights are respected

Costs are distributed - all owners loose same amount in the form of land or money

Benefits are shared all owners keep substantial portion of developed land and increment in land value

Here urban planning uses the land market not against it

Public inputs are sought; grievances are redressed

10.The mechanism is perceived to be fair and equitable

Land Pooling and Land Reconstitution is a versatile city planning and plan implementation tool that can be

used to address many challenges that we face in transforming our cities

The Land Pooling and Land Reconstitution mechanism can be thought of as a structured

statutory framework for the state to negotiate with private landowners to create public benefits

The Land Pooling and Land Reconstitution mechanism can drastically reduce dependence on

Land Acquisition particularly in urban areas

How can the TPS Mechanism be Improved?

Act allows too long a period to prepare and implement schemes Government is allowed unlimited time to review and sanction schemes Coordination with revenue department can be better Schemes do not sufficiently address urban design concerns Rationale underpinning land valuation and appropriation polices can be

much improved The unbridled powers of quasi judicial officers need to be constrained The entire process of planning can be made far more transparent and

participative Urban planning capacities of local bodies can be improved and

augmented

Land Pooling and Land Reconstitution is not a Gujarat invention

19th Century British Town Improvement Schemes

[Before Implementation]

Source: Ministry of Agriculture, Forestry and Fisheries, Chugoku-shikoku Regional Agricultural Administration Office " Home Page

[After Implementation]

Agricultural Land Consolidation Law Promulgated in 1899 Aim: To promote redeployment of arable land in order to arrange shapes of land for

effective production and to construct agricultural infrastructure including roads and waterways.

Function: To organize landowners cooperatives to implement projects

133

Introduction Establishment of Statutory System

1983 JICA LR Training Course 1987-1991 JICA Project on Technology for making City Plan

1989 The 5th International Seminar on LR and UD (KL, Malaysia)

1991 The 6th International Seminar on LR and UD (Bangkok, Thailand)

1992-1993 JICA Development Study on Application of LR

1992 DTCP assigned as a responsible organization for LR by Cabinet

1992 National LR Committee established 1993 LR Fund established

1994 Draft Act on LR submitted to Ministry of Interior

1995 Draft Act approved by Ministry

1997 The 9th International Seminar on LR and UD (Bangkok)

2000-2001 4 Pilot Projects launched

2003 Draft Act approved by Cabinet

2004 LR Act promulgated

2008-2010 8 Pilot Projects approved

2005-2009 JICA Project on DMAD (Development of the Method of Urban Development)

2009-2014 JICA Project on Self-sustainability and Dissemination of LR System

Pilot Projects Dissemination

History of Introduction of LR into Thailand

Source: Mr.Takeo OCHI

1990 The 1 st LR Seminar in Thailand

Thank You

Presentation prepared by:

Bimal Patel and Shirley Ballaney

Contact information:

Environmental Planning Collaborative Paritosh, Usmanpura, Ahmedabad

Ph: 079-27550102, 27550875, 27552442; email: [email protected]
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Documents

Bimal Patel: Land Pooling and Land Reconstitution