Decaying cities............why Delhi?

To look at the cross-section of any plan of a big city is to look at something like the section of a fibrous tumor.
Frank Lloyd Wright

We often come across in planning theory; how city behaves as a “living organism”. It is expected that planning for urban spaces should adhere to this philosophy but equally important fact is that “Organisms do die” (urban decay) and same holds good for our urban spaces also. Although many things can said about the state of our cities but I would like to highlight few issues in context of this urban decay taking place in Delhi.
Planned growth and development of Delhi is to be as per the statuary plan (Master Plan of Delhi; MPD) and this work is assigned to Delhi development authority as per DDA act 1957. The DDA, however, has been unable to meet ever increasing demands for housing, commercial and industrial space, resulting in large scale unauthorized development, and areas with non-conforming land uses. Only an estimated 30 % of the city’s population lives in planned areas (CDP Delhi, 2007).
It was envisaged that by renewing (Renewal) the decaying parts of the city, the objective of equity and efficiency can be achieved across uses and across users. Very first master plan (1962) talks in a great detail about how renewal should be done in case of Delhi. Following two revision of this master plan 1981and 2007(latest) also discussed the importance of renewal to the overall city planning of the Delhi.
Urban renewal can be simply put as the means by which vast run down (under utilized) city areas are rebuilt and adapted to current and future needs. It may be defined as the process of conserving, rehabilitating or clearing and reconstituting parts of a city to preserve or modernize the physical environment or to adapt urban segments to new purposes or uses. In popular notion, 'urban renewal' is used interchangeably with redevelopment and rehabilitation, and even conservation. In fact, they are distinguished from one another in terms of their origin, planning, execution and funding on the one hand, and the beneficiaries on the other (See A.S Ansari). In its wider connotation, urban renewal represents the spectrum of a changing social phenomenon with redevelopment and conservation occupying two opposite ends, and rehabilitation occupying the mid-position.

In case of Delhi, Master plan for Delhi 1962 talked of having area level redevelopment as an integral part of general planning of the plan making process.(page 177, MPD 1962). It had clearly stated, what is meant by concept of urban renewal (page 178, Work studies Vol2; MPD 1962) and Strategies of the renewal process, which were as follows:-

Rehabilita­tion is a process of putting existing buildings or existing areas (which have become outdated and unsatisfactory) back into a worthwhile state. In rehabilitation, the structure is accommo­dated through alterations and repairs to fit in the new environment or to meet the changing socio-economic needs.
"Area is a partially blighted locality where slumming condition prevails. Improvement can be done without much dislocation and sizeable investment of funds."………….. (Page 179, Work studies Vol2; MPD 1962)

Urban conservation is a process of recycling urban property and environment to a new use, re-use or proper use without signifi­cant alteration in the area and architecture. Every effort is made to retain the architectural uniqueness. As a process of change, it is closer to rehabilitation in the sense that the structure is re­tained in its essence, and planning and execution take place accordingly.
"Areas which are in good condition and need protection against undesirable influences; it involves protective measures as part of the normal operations.” ………….. (Page 179, Work studies Vol2; MPD 1962)

Redevelopment, on the contrary, presupposes the demolition of the structure and its replacement by a new one. It involves both planning and execution afresh. In terms of funding, it is costlier than conservation and rehabilita­tion. While redevelopment is entirely a public responsibility, conservation could be partly or entirely; and rehabilitation is the outcome of joint effort of the government and the private owner.
"Area marked with ACUTE congestion, dilapidated housing, intermingling of incompatible land use. These areas are both economically and physically beyond repair. It permits Intensive utilization of land and protect displacement."…… ………….. (Page 179, Work studies Vol2; MPD 1962)

On basis of above understanding, target areas and strategy to renewal of that area was also were identified in a scientific manner (By using multiple indexing method (page 181, Work studies Vol2; MPD 1962)). Comprehensive (Lot by lot landuse) surveys were done.

Factor considered were:-

1. Income
2. Structural condition
3. % households without water
4. % households without latrine
5. % households without electricity
6. % households without
7. Av. persons/ room

On basis above analysis, Areas were zoned as Rehabilitation Areas /Conservation Areas / Redevelopment Areas. Redevelopment plans were also prepared for many of these areas but nothing substantial can be done on ground. Some major issues were ownership disputes, financial burden on state and administrative issues in implementation (See Kumar A).
Next revision of master plan 1981, did not suggest any new thing beside it focused more on conservation of heritage of Delhi. And problem of redevelopment of old and dilapidated parts of city were ignored by adopting extension of planning area for Delhi. Work studies of master 1981shows, how Model 1(about high overall density 300pph), which proposed to accommodate (through redevelopment) future growth within Delhi urban area of 1962 (instead of going for urban sprawl by extending the boundaries of Delhi to present stage) was ignored. Hence focus on redevelopment was avoided by going for Greenfield development in urban extensions.
Second revision to master plan for perspective year 2021, “like it or not” had to talk of redevelopment, as no further land is available for new development. But unfortunately the concept of renewal as laid in MPD 1962 had been overlooked. This master plan suggested redevelopment guidelines (See master plan 2021;3.3.1 , page 14) for planned areas/ un-Planned areas and Special Area (walled city part), which are not based extensive surveys of these areas but consultation with “expert” (See methodology to master plan 2021, page 2).
Further projectisation of redevelopment Proposals which were to happen at Zonal plan level had been shifted further a step below at the level of Local area plan, which were to be prepared by Municipal Corporation of Delhi and not by planning agency like DDA.

Conclusion:-

1. There is a clear shift in Ideology to the renewal from first master plan (1962) to third master plan (2007; after almost 45 years). It (renewal) began as a means to improving inner city and now it is envisaged as a means to accommodate future population growth for whole city (at least in theory).
2. There seems to be general avoidance to adopt measure like redevelopment over new development in urban extension. (which is un-sustainable in long run). As result of this, travel time in Delhi can be as high as 2-3hrs for daily work – home trip.
3. Planning process and proposals (in present master plan 2021) for renewal/redevelopment are based on “expert” opinions rather than on ground surveys. Hence policy on these issues may not be the best representation of ground reality.

Aggregate effect to various issues discussed in this paper and also those left out (due to limitation of time and space) had result in a situation exactly opposite of what was envisaged in master plans of Delhi. Because of non applicability of master plan proposals on redevelopment for needed areas in a formal manner. Small builders/ private developers and people themselves had started renewing their properties outside the ambit of master plan, which had resulted in building level redevelopment (piecemeal approach), which is exactly opposite of area level redevelopment, as envisaged by planning process for Delhi. As an outcome of this process, now magnitude of problem is beyond the control of city government and is waiting to get regularized.


Forget the damned motor car and build the cities for lovers and friends.
Lewis Mumford