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Challenges in Urban Planning for local bodies in India


Constitution (74th) Amendment Act.
The Constitution (74th) Amendment Act, 1992 provides for a democratic and participatory planning process so as to incorporate the needs of the people, particularly the poor and socially disadvantaged, in the planning process. The act stipulates the setting up to District planning Committees (DPCs) and Metropolitan Planning Committees (MPCs) for integration of spatial and economic development and rural and urban planning. This is in recognition of the need for integrated regional planning with due attention to regional and local infrastructure, environmental conservation and investment planning and their spatial and other impacts. The DPCs / MPCs need to be constituted under the State Zilla Panchayat / Regional and Town Planning Acts. A three tier planning structure is envisaged in the states – Panchayats / Municipalities level, district and metropolitan level and state level. Under this framework, Panchayats/ Municipalities would prepare plans for their areas which would be consolidated at the district level in the form of draft district development plans. The metropolitan development plan would be prepared by the MPCs. All district and metropolitan development plans would then lead to the formulation of a plan at the state level.

A. District Planning Committee
The constitution of DPCs recognizes the need for integrated regional planning based on the investment patterns, its spatial impact and development. The DPCs should be vested with enough powers to undertake the following functions, besides preparation of draft development plan for the district.
  1. Preparation of draft development plans including spatial plan for the district, keeping in view matters of common interest between Panchayats and municipalities.
  2. Advise and assistance to local bodies in preparation of development plans and its effective implementation.
  3. Coordination and monitoring of the implementation of District Development plans.
  4. Allocation of resources to local bodies for planning and implementation of local level projects contained in the District Development plans.
B. Metropolitan Area planning committee.
The constitution of MPCs in every metropolitan area under Article 243 ZE of the 74th Amendment accords constitutional recognition to metro-regional planning when seen in the context of agglomeration economies, a metro region is the most preferred area for investment in economic activities and infrastructure but these areas are normally deficient in spatial planning inputs. The functions to be assigned to MPC are as follows :
  1. Preparation of draft development plan for the metropolitan areas.
  2. Spatial coordination of plans prepared by the municipalities and panchayats in the metro area and recommending modifications in local area plan, if any taking an overall view.
  3. Advise and assistance to local bodies in preparation of development plans.
  4. Monitoring effective implementation of approved development plan of the region.
  5. Undertaking formulation and implementation of projects involving provision of infrastructure such as major roads, trunk services, electricity, telecommunications, etc.
The 12th Schedule of the Constitution (74th Amendment) Act lists the 18 functions of the municipalities which among others include: (I) urban planning including town planning; (ii) regulation of land use and construction of buildings; and (iii) planning for economic and social development. In this regard, the state governments could be more specific and definite in assigning functions to the local bodies, In the absence of clarity in assignment of functions, the State Finance Commission would not be able to assess the fiscal needs of and allocate adequate resources to the municipalities. For a rational integration of spatial and economic development, functions related to spatial and socioeconomic planning and development should be assigned to Urban Local Bodies (ULBs). To facilitate the municipalities to discharge these functions, a provision could be made in the State Municipal Acts for devolution of necessary power and authority along with financial resources and manpower. For an effective urban planning system, there is the need to have a package of inter-related plans at three levels namely long-term perspective structure plan (20-25 years) short term integrated infrastructure Development plan (5 year) and Annual Action plan as part of Infrastructure Development plan. The short-term integrated Infrastructure plan and Annual plan could be in the form of “rolling” plans to enable the ULBs to continuously review and monitor the plan, and to update it every year / five years. The aim should be to make urban planning system as a continuous process. Each level of plan must include measures for infrastructure development and environmental conservation:
  1. Perspective Structure Plan : The long-term Perspective Structure Plan could be prepared by the MPCs broadly indicating goals, policies and strategies for spatio-economics development of the urban settlement. The perspective plan may include:
    • Physical characteristics and natural resources:
    • Direction and magnitude of growth and development – area and population (Demography)
    • Arterial / grid road network and mass transit corridors with modular development block.
    • Infrastructure network – water, sewage, drainage, roads, bus and truck terminals, rail network, etc.
    • Broad compatible and mixed land use packages and zones :
    • Community open space system and organization of public spaces :
    • Environmental conservation and preservation of areas of architectural, heritage and and ecological importance ;
    • Major issues and development constraints;
    • Financial estimates and fund flow patterns; and
    • Policy and plans for EWS housing.
  2. Infrastructure Development Plan : Integrated infrastructure Development Plan should be prepared by ULBs in the context of the approved Perspective Plan. The scope of the Plan should cover an assessment of existing situation, prospects and priorities and development including employment generation programs, economic base, transportation and land use, housing and land development, environmental improvement and conservation programs. The development plan may include.
    • Identification of gaps and shortcomings in the delivery of municipal services ;
    • Identification of service and remunerative projects and their prioritisation along with capital budgeting and investment programmes; and
    • Housing and land development programmes, including identification of areas for residential and non-residential development and development of trunk infrastructure.
  3. Action Plan: Within the framework of Development Plan, Annual Action plans for the urban areas should be prepared by the ULBs specifying the projects and schemes with costing and cash flow for both on-going and new projects. The Annual action plan should provide and in-built system for implementation of the Development Plan. In this plan various urban development schemes should be integrated spatially and financially. Annual plan may consist of :
    • targets to be achieved – physical and fiscal;
    • fund flow ; and
    • project design and specification, including tender document for implementation.
  4. Projects and Schemes : As part of the Development plans and Action plans, projects and schemes within towns / cities could be taken up for any area / activity related to housing, commercial centers, industrial areas, social and cultural infrastructure, transport, environment, urban renewal etc. by governmental bodies / local agencies / private sector and through integer-governmental public private-partnership. Such projects could be both long-term and short-term and in conformity with the development requirements of the respective town / city.
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