Land Management and Urban Growth

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;

Client : Dept. of Urban Development, Govt. of Delhi

Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

•
•
•
•
•

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
Constituents

MCD AREA
Walled City Area
Walled City Extension
Rest of MCD Area (including
Urban Extn. and Rural areas)
NDMC AREA
DELHI CANTONMENT BOARD
NCTD AREA

Total Area
in km2
(2001)
1397.3
11.6
23.0

Total Population
in ‘000
1981
2001

6899
11244
582
570
568
624

1362.7

3768

8049

42.7
43.0
1483

496
NA
-

587
NA
-

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.
No.
1.
2.

Item
Total Area
Urban Area*

3.
4.

5.
6.

Natural Features to be Conserved**
Balance Area Available for Urbanisation
Addl. Area Proposed for Urbanisation (2021)***
Proposed Urban Area (2021)

Area (Sq.
kms)
1483
701.62
(47.3%)
195.09
586.29
276.29
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
Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

Total Area of these Zones is
20-22000 hectare.
Additional population of 2.5
million to be accomm-odated in
these zones at a density of 250
pph.

These Zones are holding
population
more
than

assigned during MPD 2001.
The activities such as
wholesale Market; ISBT;
Vegetable Market et. can be
removed from these Zones
to Urban Extns.

P1 & P2

N
M
C

H

O
A

B

E

K1

Re densification of the
zones with low density and L
high land value has been
proposed

&
K2

D
G

F

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
Area

PLANNED
AREAS

SPECIAL
AREAS
UNPLANNED

Description
The planned area of Delhi include (i) Influence area along MRTS and
Major Transport Corridor; (ii) Lutyens Bunglow Zone; (iii)
Chanakyapuri area; (iv) DIZ area; (v) Mata Sundari Area; (vi) Civil
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
been divided into three separate parts (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 built form.
The unplanned areas are distributed homogenously across the urban

Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

Components
of Delhi Urban
Area
AREAS

URBAN
EXTENSIONS

Description
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
colonies and JJ clusters. As per MPD-2021, 29 lakh population
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
Corridor
NH-2 (Delhi
Kolkata):
Major arm of
Golden

Characteristics & Type of
Development
The length of NH-2 in NCTD is
around 20km from Badarpur
Border to Rajghat. It is one entry
point to Delhi and has industrial,

Client : Dept. of Urban Development, Govt. of Delhi
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Problem
• Encroachments at Jaitpur &
Badarpur intersection reduce
the carriageway width.
• Prone to water logging during

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Chapter – 5 Land Management & Urban Growth

Name of
Corridor
Quadrilateral

Characteristics & Type of
Development
institutional and residential
development. At the entry point
it is characterized by haphazard
and unplanned growth residential
& industrial areas in urban
villages.

Problem

•

•

NH-24
(DelhiLucknow):
Major
Corridor
Connecting
Important
business
centres of
Uttar Pradesh
to National
Capital

The length of NH-24 in NCTD is
around 15km from Ghazipur to
NH-2 intersection at IP Park. It
was at Ghazipur which is a major
fish & chicken market; and fruit
& vegetable market of Delhi. It
also has major garbage dumping
site. It mainly traverses through
haphazard development within
urban villages and Patparganj &
Mayur Vihar society complexes.
The proposed site for common
wealth games is also in proximity
to this corridor.

NH-1 (Delhi
to Kanpur:
Major
Corridor
traverses
through
industrial
nodes of
Delhi and UP

The length of NH-1 from Samli
border to TP Nagar Border is
around 40 km. It traverses
through Industrial areas
(Wazirpur, Jahangirpuri, Badli in
North and Jhilmil & Shahadara in
East), Institutional area (Delhi
University, IP University, Old
Secretariat), Resettlement
Colonies (Babarpur, Saleempuri,
Seemapuri et.al)

NH-10 (Delhi
to Rohtak): It
is an
important
corridor in
West Delhi
connecting
second order
settlements
of Haryana
NH-8 (Delhi
to Mumbai):
Connecting
the National
Capital to the

It is around 25km in length in
NCTD extending from Savdar
Ghevra to Sarai Rohilla. It
traverses through the urban
extensions of Delhi, which have
potential for future development.
It is connected to Dwarka and
Rohini through ring roads.

It is around 15 km in length in
NCTD extending from Rajokari
Border to Daulakaun. It is one of
most developed corridor of the
city with industrial; residential

Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

•

•

•

rainy seasons and lack of
suitable drainage
infrastructure
Bottleneck at the entry point
with industrial, commercial
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.
The corridor passes through
low lying area and the
development in the Yamuna
Bed. It has unorganized
development in villages such
as Khicripur, Pandav Nagar
etc.
The corridor has been
encroached by JJ clusters.
These clusters are devoid of
basic infrastructure facilities
leading high interaction with
the corridor.
Low lying areas along the
corridor are used for dumping
of HH and construction wastes.

• High density industrial;
commercial and unauthorized
development
• Truck parking near the TP
Nagar border in east with
transport operators located
along the corridor
• Encroachment on the corridor
due to unauthorized
development have transformed
the urban built form in the
area along the corridor
• Development of resettlement
colonies and industrial areas at
the urban periphery has led to
unauthorized and unplanned
growth of village settlements
in and around these areas.

• It mainly has planned
development and high traffic
volumes due to its linkage to
planned residential areas,
Dwarka and IT city Gurgaon.

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Chapter – 5 Land Management & Urban Growth

Name of
Corridor
Economic
Capital of the
Country and
traversing
through
major
industrial
nodes of the
country
Outer and
Inner Ring
Road

Institutional
Corridor

MRTS
Corridors

Characteristics & Type of
Development
and commercial development.
Most of the predominant
historical monuments are also
accessible through this corridor.
It has intense commercial
development near Rajokri border
with large open spaces due to the
Airport and cantonment areas. It
connects urban periphery to New
Delhi and Old Delhi Areas.
The ring road is of 75 km in
length connecting institutional
and industrial areas in the north
to residential and industrial area
in the west; and historical sites &
institutional area in south and
east.
The institutional corridor of the
city is of around 45km in length
and traverses through Pusa road,
Central Secretariat Complex,
AIIMS, IIT, CWC and JNU areas

MRTS has been planned to cover
the spread of Delhi and its
peripheral area. The metro
station complexes at 2km
distance are nodes for
commercial development.

Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

Problem
• Its proximity to the Airport
leads to high interaction with
Cargo and goods traffic.
• It is also connected to
institutional areas of Delhi and
traverses through intense
residential development,
prone to landuse
transformation.
• Ring road has now become
part of the city transportation
network with high intensity
commercial and industrial
development.
• It has experienced
transformation of residential
areas to institutional and
commercial areas --- eg.
Green Park; Hauzkhas; Pusa
road etc. These Landuse
transformations have led to
pressure on physical
infrastructure of the city.
• These nodes are vulnerable to
encroachment by unauthorized
commercial development if
not planned along with
schemes for corridor
development.

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Chapter – 5 Land Management & Urban Growth

NH-1

Ghaziabad

ROHINI RESIDENTIAL
AREA
NH-10

NH-1
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
EXISITING AREA
Lodhi Colony
RK Puram
Moti Bagh
Laxmibai Nagar

GROSS DENSITY IN
PPH
222
190
145
225

GROUND COVERAGE

FAR

18
17
15
19

37
35
31
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
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Chapter – 5 Land Management & Urban Growth

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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Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

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

‰
‰

‰
‰

Provision of parking and up
gradation of facilities and utilities
Grid Iron Pattern is to be treated
as an asset to regulate and
pedestrians the traffic movement

KAROL BAGH
AREA

‰
‰

Potential for Commercialization
Proposal to
Trade Activity
Special
area

Shift

Treatment

Wholesale
of

Heritage

Reconstruction & Redevelopment

WALLED CITY
WALLED CITY
EXTN.
AREA

MIXED LANDUSE

‰
‰

Provision of minimum Level Infrastructure & Parking
Facilities
Redevelopment
in
redevelopment scheme

term

of

comprehensive

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

•

1
Though an official figure suggests that 1432 such colonies exist in Delhi, there are at least 200 more such colonies
which sprung up after March 2002 for which no policy exists.

Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

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

5.7

Charges (Rs per m2)

Power

Rs 6600 Per KV

Water

Rs 220 per m2

Sewerage

Rs 355 per m2

Roads and
Drains
Total Fixed
Charge

Rs 400 per m2
Rs 1060 per m2

The cost for regularization of 100 sqm of
plot is Rs 1 lakh. Delhi Government had
invited
application
from
residents
associations for all unauthorized colonies
in October 2004, through a public notice.
The applicants were asked to submit their
area plans. 1153 applications were
received out of 1432 unauthorized
colonies.

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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Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

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

5600

60000

129000

57000

251600

23.5

59000

82400

135600

63000

340000

31.7

-

94661

72960

36000

203621

19.0

35000

162700

40000

18300

256000

23.9

9500

6000

4500

-

20000

1.9

Total

109100

405761

382060

174300

107122

100.0

DUs per Year

10910

40576

38206

43575

31506

DDA Flats
DUs on individual
plots
DUs
by
Cooperatives
Resettlement
Schemes
Slum Rehousing

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
Year

Number of Industries

1981
1991
2001

42000
85050
129000

Number of
Employee
568910
730951
1440000

Employees per
Industries
14
9
11

Source: Compiled from MPD-2021

Client : Dept. of Urban Development, Govt. of Delhi
Consultant : IL&FS Ecosmart Limited

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Chapter – 5 Land Management & Urban Growth

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
Areas
Jawahar Nagar
Karawal Nagar
Haiderpur
Shalimar
Village
New Mandoli
Basai Darapur
Khyala
Rithala
Mundka, Swarn
Park
Mundka

Industrial
Concentrati
on
75.18
78.86
76.06

Industrial
Godowns

Comme
rcial
Use

Commercial
Godowns

Total
75.18
78.86
76.06

80.70

80.70

72.36
75.07
70.22
57.81

13.53

72.36
75.07
70.22
71.34

64.06

20.90

84.96

48.35

25.87

74.22

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Chapter – 5 Land Management & Urban Growth

Areas
Naresh
Park
Extn.
Peeragarhi
Nawada
Hastsal-Pkt A
Hastsal-Pkt B
Dabri
Libaspur
Sultanpur
Mazra

Industrial
Concentrati
on

Industrial
Godowns

2.17

18.11

60.44
69.31
63.38
66.47
52.24
57.85

11.52

41.29

20.32

7.05

Comme
rcial
Use

Commercial
Godowns

Total
70.28
71.96
74.60
82.67
78.23
74.67
70.14

5.29
18.99
11.76
15.38
12.29
8.70

5.01

75.32

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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Chapter – 5 Land Management & Urban Growth

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
YAMMUNA
RIVER
CORRIDOR

JASOLA
WILDLIFE
AREA AND THE
RIDGE

Characteristics of Ecologically Sensitive areas
The river front in Delhi has lost its potential heritage, religious,
pulic amenity and recreational value. It is surrounded by unplanned
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.
The sustainability of the sensitive ecological habitat of the Jasola
wildlife area will also require the formulation and implementation
of a special case integrated area strategy that would be likely to
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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Chapter – 5 Land Management & Urban Growth

Department/Agency

Roles and Responsibilities

Land Record
Management, DDA

•

•

Land and Building
Department/Revenue
Department

•

L&E Department of
MCD

•

L&DO GoI, UDPA

•

Deals with Nazul-I lands transferred to DDA from Delhi
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.
The revenue department acquires land on behalf of the
DDA/MCD/Slum department. The demand for land
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
The L&E department of MCD deals with records of land
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.
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
Agency
Area in hectare
% to Total

25377.2

L&DO
(NDMC)
4270.0

Cantonment
Board
114352.8

Others (MCD,
Railways etc)
4300.0

17.1

2.9

2.9

77.1

DDA

Total
148300
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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Chapter – 5 Land Management & Urban Growth

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
Acquisition of
Land and
Development

•

Residential

•
•
•
•

Commercial

•
•

Slum
Improvements
&
Redevelopment
Industrial Area
Recreational
Areas

•
•

•
•
•

Plan for Rural
Delhi

•
•

Activities
In order to contain the likely population of about 6.0 million by
1981, the following additional land areas were proposed to be
developed under various uses: Residential: 30,000 acres;
Commercial: 1900 acres; Industrial: 4800 acres; Government: 500
acres; Recreational: 25000 acres
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
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.
20 projects were to be developed upto 1981 for slum
improvements. These slum areas are Kotla Mubarakpur; Sui
Walan; Kucha Pati Ram; Sarai Rohilla; Qadam Sharif; Shadipur
Khampur, Ajmeri Gate etc.
Areas proposed for industrial development. The details are given
as part of Table 5..
It has been proposed to develop 25000 acres of land for
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.
The rural towns proposed for the location of light and medium
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

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Chapter – 5 Land Management & Urban Growth

Table 5.13: Proposed Wholesale & Specialized Markets (1981)
Market

Proposed Location

Fruit and Vegetable
Markets

One mandi near Daya Basti railway station in
Sarai Rohilla in North-west and another in
South of Delhi at Okhla
Site near Teliwara, in north of Sadar bazaar
was proposed
Jhandewalan area
Redevelopment & Modernization of Chandni
Chowk area and site west of church mission
road
Dayabasti near Najafgarh Road

Wholesale Grain Market
Bicycle and accessories
Cloth Market

Fodder Market
General Merchandise
and hosiery
Iron, steel and scrap
metal market
Building Materials

Improvement and reorganization of Sadar
Bazar-Old Bahadurgarh road
Jhadewalan; reorganization of junk & scrap
yards in Motia Khan
West Delhi adjacent to the railway line to
Rewari

Area in
Acre
35

17
10
10

6
61
15
50

Source: Compiled from Master Plan of Delhi-1961-81

Table 5.14: Proposed Location of Industrial Estates and Zones (1981)
Industrial Area

Total
Land
(in
acres)
A. Extensive manufacturing

Total
Land
(in
acres)
B. Intensive Manufacturing

Najafgarh
Industrial Area

716

Flatted industries
inlying locations

192

1241

Flatted industries
outlying locations
Sub-Total

169

Okhla Industrial
Area
Azadpur
Industrial Area
Shahdara
Industrial Area
Rohtak Industrial
Area
Sub-Total

743

Industrial Area

361

Industrial
Area

C. Service
Industries
D.
Extractive
Industries
E. Special
Industries
Sub-Total

Total
Land
(in
acres)
355
106

165
626

3832
1034
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)).
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Chapter – 5 Land Management & Urban Growth

Railways
Land
Transpo rtati
2%
o n Facilities
8%

Recreatio n
Use
24%

A griculture
0.3%

Proposed
1981
Railways Land
2%

Residential
Use
44%

P ublic &
S e m iP ublic Us e
15 %

Agricult ure
16.2%
Resident ial
Use
18%

Transport at ion
Facilit ies
25%

Commercial
Use
2%
Indust rial Use
2%

P ub l i c &
Semi - Pub l i c
U se
2 5%

Recreat ion Use
10%

Existing
1961

Co mmercial
Use
2%

Industrial Use
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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Chapter – 5 Land Management & Urban Growth

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
Area
Acquisition of
Land and
Development

Proposed Strategy
•
•

24000 hectare of land to be acquired up to 2001
Land development for residential purpose 12000 ha and
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
Cars not allowed inside the walled city areas with provision of
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
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)
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
about 1 lakh LIG families
Infrastructure up gradation in 44 resettlement colonies and
provisions of income earning opportunities within or proximity of
resettlement colonies
Provision of slum housing for 49000 families
Industrial area redevelopment scheme for Anand Parbhat (Light

•
Walled CitySpecial Area

•
•
•
•
•
•

Residential
•
•
•
•
Commercial

•
•
•

Slum
Improvement &
Redevelopment

Industrial use

•
•
•

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Chapter – 5 Land Management & Urban Growth

Constituent
Area

Proposed Strategy

•

Recreational
Area

•
•
•

Plan for Rural
Delhi
•
Channelisation
of River
Yamuna

•

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
Provision of Divisional sport centres-7nos; District level children
parks-11nos; Development of lakes-2nos
Five villages were identified as higher order growth centreBakhtwarpur; Bawana; Jharoda Kalan; Dhansa and Chawala. Six
villages were identified as lower order growth centre- Jagatpur;
Ghogha; Qutab Garh; Jaunti; Mitron; Gommanhera
Environment improvement of 120 villages and development of 11
central villages
Development of river front considering all ecological and
scientific aspects as project of special significance for city

Table 5.16: Proposed Wholesale & Specialized Markets (2001)
Proposed Location

Area in
Hectare

Patparganj in east; Madanpur Khadar & Urban
Extension in South; Urban Extension in South West

70

Patparganj in east; Urban Extension in South; Urban
Extension in South West

43

Loni Road in east; Madanpur Khader & Urban Extension
in South; Urban Extension in South West

53

Market
A. MARKET WITH WAREHOUSING
Textile
&
Textile Products
Auto,
Motor
Part
&
Machinery
Fruit
and
Vegetable
Market
Hardware
and
Building
Material
Iron and Steel
Food Grain
Timber
Plastic Leather
and PVC
Relocation
of
Junk Market
Truck Terminal

Regional
cum
local Markets

Patparganj & Loni Road in east; Madanpur Khader &
Urban Extension in South; Urban Extension in South
West
Patparganj in east; Madanpur Khader & Urban
Extension in South; Urban Extension in South West
Patparganj in east; Madanpur Khader in South;
Nazafgarh in South West
Patparganj & Loni Road in east; Madanpur Khader &
Urban Extension in South; Urban Extension in South
West

53
25
32
112

Patparganj in east and Urban Extension in South West

19

Patparganj in east

4

Patparganj in east; Madanpur Khader & Urban
Extension in South; Najafgarh & Urban Extension in
South West
Sub-CBD (Shahdara); Okhla; Rohtak Road District
Centre; Shivaji Place District Centre in North; Wazirpur
District Centre; Rohini District Centre; Markets of 810hectare in each urban extension and fodder markets
was to be developed in the rural areas

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219

157

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Chapter – 5 Land Management & Urban Growth

Market

Proposed Location

Area in
Hectare

Integrated
Freight Complex

Madanpur Khadar (NH-2); Patparganj (NH-24); GT Road
(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 Shiv