regeneration and renewal of old delhi (shahjahanabad). - CiteSeerX

I T P I JOURNAL

ITPI JOURNAL 1 : 2 (2004) 29-38

www.itpindia.org

REGENERATION AND RENEWAL OF OLD DELHI (SHAHJAHANABAD). A.K. Jain Commissioner (Planning), Delhi Development Authority ABSTRACT Inspite of last 50 years of planning Walled City of Delhi (Shahjahanabad) is loosing its charm and charisma, getting degenerated and its rich heritage is dying. It is increasingly becomming congested with trade and commerce. Author therefore argues to evolve a strategry that will trigger off the re-development process and will give ‘new lease of life’ with improved infrastructure, transportation and economic viabilaty. The aurthor is also hopeful that Delhi metro will release some congestion from already chocked roads and reduce the parking demand.

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INTRODUCTION

According to the guidelines for Master Plan for Delhi 2021, issued recently by the Ministry of Urban Development and Poverty Alleviation, a major theme of the new Master Plan should be redevelopment of old and degraded areas (while taking care that buildings of heritage value are protected and conserved). The existing legal and procedural barriers to redevelopment, whether contained in the slum related legislation or in the municipal laws, need to be reviewed and incentives (such as higher FAR in the old city and the “special area”) can be considered.

The guidelines also state that an opportunity for redevelopment in Delhi is offered on the two sides of the metro rail routes, about 70 km of which will become available in the first phase to be completed in 2005. That will be the best use of the synergy between transportation and urban development. A practical approach of providing the requisite infrastructure on the sides of the tracks, say to a depth of about half a kilometer and of permitting a suitable enhanced FAR in construction could be devised and included in the Master Plan.

Shahajahanabad - 1873 (Source : Survey of India)

A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38

Shahajahan’s Delhi in early 19th Century

Shahdara ISBT-Tis Hazari Metro corridor (8.3 km) is already operational, whereas Tis Hazari-Trinagar (4.5 km), Barakhamba Road-Kirti Nagar (9.2 km) and University-Sadar Bazar-Cannaught Place-Central Secretariat corridors are at an advanced stage of development. These will provide improved accessibility to the inner city. Of this about 17.7 km of metro corridor falls within or toches the Special Area (Old City) and about 1200 ha or about 50 per cent of the Old City will be within 8 to10 minutes

walking distance from the metro stations. About 1200 ha of area along the metro corridors will be within 500 mt influence zone, which is about 40 per cent of the old City area. This is going to alter radically the movement pattern and land use structure of the old City. 2.0

PRESENT SCENARIO

In spite of last 50 years of planning, the Walled City of Delhi (Shahjahanabad), which is often termed as 30


formulate Special Development Plans for conservation and improvement of Walled City and no alteration or demolition of any building without the consent of Authority be allowed. The following strategies are proposed for overall conservation of the Walled City -

the soul of Delhi, is loosing its charm and charisma. It is getting degenerated and its rich heritage is dying. The Walled City, which was originally planned for a population of about 60,000, recorded the highest population of 4.2 lakh in 1961, which went down to 3.50 lakh in 1991 and 2.35 lakh in 2001. The population has been declining mainly due to inroads of commercial activities, and deteriorating living conditions. The Walled City has continued to become increasingly congested with trade and commerce, which are 46256 or about 7 percent of total present establishments in Delhi. The Walled City accommodates 60% of wholesale trade, 25% of retail trade and 28% informal trade and services as compared to about 2% of city’s population. Out of a total area of 569 ha of the Walled City, 180 ha (31.8%) is under residential land use and 88 ha (17%) is commercial, circulation i.e. roads and rails cover (22.60%), public buildings including historical monuments (9%) and miscellaneous. (1.6%). The overcrowding is mainly (i) because a major part of the circulation is accounted for by railway establishments, (ii) the density of commercial establishment have increased manifolds over the years, and, (iii) number of workers per acre in commercial, industrial or trade establishments have increased manifolds. The Old City is a concentration of wholesale markets in Delhi dealing with almost every commodity. The Walled City is rich in urban heritage, historic buildings and monuments. As per the Archaeological Survey of India in 1914, there were 1321 historical monuments in Delhi of which 1208 still exist. Out of these, 411 are in the Old City of which 41 monuments fall under the category of protected monuments. There are about 3,500 evacuee properties / Katras which are managed by the Slum Department of the MCD under Section III of Slum Area (Improvement and Clearance) Act of 1956. The evacuee properties were transferred by the Ministry of Rehabilitation for utilisation under the Slum Clearance Programme. 3.0

(i) Shifting and de-limitation of non-residential activity with priority for shifting of noxious and hazardous trades / industries. (ii) Upgradation of physical and social infrastructure. (iii) Traffic and transportation, management and regulations (iv) Conservation and restoration of historical buildings. (v) Revitalisation of residential areas. (vi) Renewal / redevelopment of Walled City Extension. MPD-2001 terms Shahjahanabad as a significant area of built environment. It suggests that the area around major monuments should have controls in relation to building height, materials and spread of monuments. MPD-2001 also stipulate listing of buildings for conservation. INTACH (with the help of DDA) has recently completed the listing of monuments in Delhi; which have been published in 2 volumes. The areas with concentration of historical buildings such as Walled City of Delhi, have been designated as Controlled Conservation Area, for which Special Plans shall be prepared, in absence of which no alteration or demolition of any building is permitted. MPD2001 also suggests conservation of City wall and gates, Chandni Chowk and monuments. It also proposes eliminating vehicular traffic from Chandni Chowk and other streets. MPD-2001 prescribes Special Area regulations and guidelines for preparation of Urban Renewal Schemes. 3.1

DELHI MASTER PLAN 2001 PROPOSALS

MPD-2001 proposes urban renewal of 2600 ha of old built up area, known as ‘Special Area’ which has been divided into 4 Urban Renewal Areas namely (i) Walled City (ii) Karol Bagh (iii) Other Urban Renewal Areas, and, (iv) Specific use zone areas. Walled City of Delhi with concentration of historical buildings has been designated as “controlled conservation area”. MPD-2001 stipulates that the Authority shall

Zonal Development Plan for Zone ‘A’ (Walled City)

prepared by DDA and approved by the Government of India (1999), lists protected monuments as notified by Archaeological Survey of India (A.S.I.) with the stipulation of prohibited and restricted area around such monuments. Detailed urban renewal schemes were to be prepared by the land owning agencies / local bodies. No headway could be made in 31


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preparation of urban renewal schemes. This is largely due to lack of a clear institutional and legal framework, lack of public participation, as well as zoning disincentives inherent in the Master Plan and Zonal Plans. It is necessary to focus on these issues in order to trigger a self-supporting process of urban renewal and conservation of the built heritage in Delhi.

Delhi Urban Heritage Foundation

Vide Gazette Notification dated 28.9.99, DDA notified Delhi Urban Heritage Foundation Regulations,1999. The Chairman of the Foundation is Lt. Governor of Delhi and eminent historians, archaeologists and NGOs’ the representatives of DUAC, ITDC, DTTDC, NGOs, Central Government, Government of Delhi, etc, are the members. The tasks before the Foundation include the following -

According to Delhi Master Plan, the FAR allowed in the Walled City / Special Area for reconstruction is as per plotted regulations, which is generally much less than existing. This is a major disincentive for urban renewal, and as a result massive unauthorised reconstruction and conversions of land use are taking place. In this regard, it is necessary not only to allow minimum existing FAR and ground coverage, but also to give an incentive FAR and adopt the concept of Transferable Development Rights (TDR)

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To frame rules, regulations and guidelines for conservation of heritage and urban renewal .

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To identify and list urban / built heritage areas / buildings / precincts.

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To create partnerships and commitments among stake holders and actors who have an interest in the conservation area(s)

Walled City - Shahajahanabad Conservation and Transport Network

32


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To mobilise government / private investments.

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To ensure financial and economic viability of heritage projects.

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To define mechanisms for support schemes to stimulate replication.

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To frame schemes with special development controls.

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To organise public participation for heritage proposals.

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Monitoring and implementation of the projects.

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PLANNING FRAMEWORK FOR CONSERVATION AND REGENERATION

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Private developers and co-operatives may be encouraged to undertake conservation of heritage and redevelopment guided by planning and façade controls, but allowing internal flexibility of space and use.

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Certain areas need to be fully pedestrianised

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FAR and Tax incentives for those who have to maintain the architectural controls.

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When land is to be surrendered for widening of roads or any other public facility, the equivalent FAR should be permissible to the owner / developer either to use on same plot or added to the TDR component.

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The concept of Accommodation Reservation may be introduced for Special Area, whereby for provision of essential public facilities to be handed over to the local body / government, the owner of property is given full permissible FAR on the component of public facility. Evacuee properties can also be used for this purpose.

The main priority is to decongest the old city and to shift traffic generating activities from the old City. To shift wholesale trade, noxious industries and hazardous business from the old City, it is proposed to develop counter centres in the form of : •

Integrated Freight Complexes at the peripheral location

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Area based renewal approach specifying “Protected Areas”, conservation / heritage zones

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New industrial area,

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Development of Truck Terminals, vehicle repair workshop, old Car markets, Motor parts Markets at the periphery of Urban Delhi.

Specifying pedestrian and vehicular streets, and undertaking the preparation of road beautification / development plans.

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The overall fire fighting plan to dictate minimum road widths for vehicular movement.

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All heavy commercial vehicles to be prohibited.

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Underground parking lots to be developed at the peripheral locations.

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Animals and animaldriven vehicles to be prohibited.

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On most of the road and streets in the Walled City, part of the right of ways is occupied by encroachments by commercial establishments, which is about 25% to 30% of their right of way. Removal of encroachments would have double benefit (I) recovery of the right of way and (ii) decongesting the city of commercial activity and thus improving the environment.

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Augmentation plan for decentralized services with public-private partnership, including solid waste management, telecommunication and I.T.

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A new set of Development controls for Mixed Use, enhanced FAR and TDR applicability.

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Railway Freight Terminals.

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Noxious industries and hazardous trades are to be shifted from the Special Area in a time frame by a set of incentives (providing alternative plots, tradable FAR, tax holiday, etc.) and disincentives (non-renewal of trade / industry licences, etc) within a time frame of 3 to 5 years maximum.

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PROPOSED STRATEGY

For the Walled City and other Special Areas, it is necessary to evolve a strategy that will trigger off the redevelopment process and will give “new lease of life” to these areas with improved infrastructure, transportation and economic viability. These may include the following; •

Application of Transferable Development Right (TDR) so that the premises owners in the Walled City and Special Area get enhanced component of space in designated new areas. 33


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Noxious industries (13 types) and hazardous trades (6 types) to be shifted within a period of five years and the areas thus vacated to be replaced by compatible uses.

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Municipal water supply and sewerage mandatory for all households.

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The Headquarters of the Municipal Corporation of Delhi which attracts large number of visitors should be shifted to the Civic Centre at Jawahar Lal Nehru Marg and the present building should be used as community hall, Museum, Library etc.

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been jewels in the crown of Shahjahanabad. Chandni Chowk is the centrepiece and dominant axis of the Walled City. The original Chandni Chowk had octagonal chowks with a water channel running through the centre. Its wide boulevard with prestigious buildings and bazar created a vista between the magnificent Red Fort and Fatehpuri Mosque. With the passage of time there has been an alround degradation and deterioration of this glorious boulevard, which can be attributed to several reasons, like over-crowding, invasion by vendors, markets, wholesale trade, rickshaws and traffic, unauthorised constructions, conversion of heritage buildings, over-riding commercial interests and private motives, coupled with lack of controls.

CHANDNI CHOWK-RECREATING THE LOST GLORY

The Red Fort, Jama masjid and Chandni Chowk have

River Yamuna between Red Fort and Salim Garh Fort was used for navigation which was subsequently filled up and converted into a road

investments and time, optimum transformation in the ambience of the Chandni Chowk can be achieved:

During recent years, there has been a facelift of the Chandni Chowk, cleaning and painting of the buildings and control over signboards and hoardings. It has been complemented by ‘Chaudvin Ka Chand’ festival celebrations. Without going for large scale demolition and disturbing the present activities, it is still possible to recreate the glory of Chandni Chowk. To be successful, the implementation of any such proposals should not envisage large scale redevelopment or demolition. Initiative can be taken by the public bodies so that with minimum

i)

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Boulevard Development: Capturing full road right-of-way, re-paving of road by granite stones, transplanting grown up trees, development of tourist / information booths, music stands, kiosks, telephone booths, public toilets, etc., controlling signboards, hoardings and putting up new signages, shifting of overhead cables and wires in the underground space.


ii)

Improving street lighting, light masts and lighting of building facades.

food plaza with traditional music and dance programmes in the evening.

iii) Running of free coaches / trolley buses between Red Fort and Fatehpuri Mosque.

vii) Chandni Chowk may be declared as no hoarding, no horn and no beggar zone, to create a tourist / people friendly environment.

iv) The informal unorganised shops and vendors to be restricted in the lanes perpendicular to Chandni Chowk. A vendor market can also be developed at the foot of Lala Lajpat Rai Market by split level development at lower level and landscaping of the roof area fronting Lala Lajpat Rai market. v)

Chandni Chowk can become a tourist paradise with complete pedestriansation and with fountains, canal and trees. A free electric bus / trolly service should be provided to run throughout the day. This will boost the business and meet with the increasing growth of visitors in the area. The rikshaws will have to be prohibited from plying in Chandni Chowk,. These may be restricted on the roads surrounding Chandni Chowk. New parking areas can be developed at various points adjacent to the entry of Chandni Chowk. However, the pricing of parking should discourage extensive use of private vehicles. In the second phase, a dedicated metro service may supplement electric trolley / buses.

The individual building owners may be encouraged to refurbish their buildings without changing the traditional character, for which arrangements could be made with the banks for easy loans.

vi) The modernisation of traditional activities may be encouraged. For example, Paranthe Wali Gali and Maliwara can be developed as a modern

Influence Area in Walled City / Special Area of MRTS ROUTE : • CENTRAL SECRETARIAT — VISHWA VIDYALAYA • SHAHDARA — BARWALA • CONNAUGHT PLACE — DWARKA AREA = 12 Sq. Km (approx.) (@ O.5 Km depth along) TRACK Length = 17.7 km (approx.) 35


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d) Minimum area to be reserved for parks / playgrounds:

METRO CORRIDOR REDEVELOPMENT

In about a year, about 50 per cent of the Inner City will be within 8 to 10 minutes of walking distance from Metro Stations. Hopefully, this will release some congestion from already choked roads and reduce the parking demand. This will also provide opportunity (i) to pedestrainse some of the roads in the Walled City and other area, (ii) to redevelop certain areas along metro corridors, (iii) to upgrade infrastructure services, and, (iv) to improve interface between land use and transportation. Improved accessibility will also facilitate and encourage decentralisation of wholesale trade from old Delhi. In place of centralized CBD, a new linear pattern of economic corridors can emerge by planned intervention. For this, a set of well worked out incentives and disincentives need to be built-in within the planning framework. Within the intervention zone of 500 mt on both sides of metro corridor, actual delineation of economic corridor along metro route will be area specific (which could be 60 to 100 mt wide) keeping in view (i) Land use intensity, land and property ownership, (ii) existing road network, traffic volume and capacity, (iii) potential of infrastructure services, (iv) physical and structural conditions (v) existence of historical / protected monuments, heritage zone, parks / open space, (vi) potential for redevelopment and reconstruction by public / private partnership and, (viii) Court orders, if any.

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At comprehensive / integrated scheme level - 15%

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At property redevelopment level - 25%

e) FAR: As per Master Plan with 50% additional FAR allowed against payment of additional FAR charges. The FAR shall be as per the stipulated land use, although mixed use may be permitted at premise level. f)

Amalgamation and reconstitution of plots be permitted, sub-division of plots may not be allowed

g) To compensate for loss of FAR in case of acquisition of land / property for public purpose widening of roads or due to protected monuments / heritage zoning, TDR may be allowed. h) Height control and parking will be permitted as per overall scheme for respective land use. In Special Area only front setback will be mandatory. Other setbacks shall be required only if required by CFO. Conversion charges, development charges, betterment levy and other charges to be paid wherever applicable and as per prevailing rules / orders.

The boundaries of economic corridor needs to be identified on the basis of physical features, such as major roads and physical land marks.

The comprehensive scheme can be initiated by the land owners, local associations / co-operatives or authorised developer, which will be submitted for planning approval of the DDA / local body. This way the process of area by area renewal and redevelopment would start and will trigger a process of decongestion and conservation, releasing heavily built up area for open space / greenery, upgradation of social-physical infrastructure and shifting out of hazardous, inflammable and noxious activities from the old City. The incentive of additional FAR, alongwith other measures like liberalisation of land use time bound approvals, etc; would motivate the owners and residents to adopt the route of planned development.

The plan for redevelopment of Economic Corridor is proposed to be based on the following criteria and guidelines : a) Minimum area for preparation of an integrated (Intervention Zone / Economic Corridor) Scheme10 ha. A common agency authorised by the owners can initiate the Integrated Scheme. b) Minimum area for property redevelopment is 3000 sq mt. Different property owners can prepare a joint proposal for approval of the Authority. c) Land use: Mixed use, general business and commerce, offices, residential / group housing, Govt., Public, Semi-public facilities, utilities, etc. No manufacturing wholesale and warehousing activities are to be allowed.

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LEGAL AND PROCEDURAL REFORMS

The Special Area is regulated by several Acts, main of which are the following. • 36

Delhi Municipal Corporation Act,1957


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Slum Area (Improvement & Clearance) Act, 1956.

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Delhi Development Act, 1957, including Delhi Master Plan and Zonal Plans.

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Delhi Urban Art Commission Act, 1973.

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Building Bye Laws,1983 .

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Delhi Fire Prevention & Safety Act,1986.

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Wakf Amendment Act,1984

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Ancient Monuments (Preservation) Act, 1904

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Delhi Rent Control Act, 1958

(ii) Attracting private sector participation and investments by (a) bankable project approach, (b) removing un-necessary controls, (c) incentive development controls such as Transferable Development Rights, Accommodation Reservation, land use flexibility, and grant of additional FAR, (d) One window time bound approval of projects (e) financial and tax incentives. (iii) Creating a dedicated organisational setup for coordinating Special Area conservation and regeneration, with planning, services, land management, financial and engineering responsibilities, including transport and maintenance.

The present complex framework often acts as a barrier in the conservation of heritage, urban renewal, land assembly, legitimate property tenure, titles and transfers, infrastructure upgradation, financial mobilisation, development rights, etc. On the other hand indiscriminate application of the Acts has proved counter-productive in economic and physical regeneration of the Special Area, sometimes leading to its condemenation for example the whole of Walled City having been notified as Slum under the Slum Area Act, 1956. Neither the legal framework, nor the present organisational structure have been able to control unauthorised reconstruction of historical havelis / buildings or in taking up any meaningful redevelopment of dilapidated, degraded and dangerous areas. The dream of shifting of wholesale trade, noxious industries and hazardous trades have by and large remained on the papers. The large scale encroachments on public lands, particularly road right of ways continue unabated. There are unending and plethora of legal disputes regarding property ownership, tenancy, misuse, licencing and other issues. In order to address effectively to the emerging issues and the need of conservation and regeneration of the Special Area, it is necessary to review the existing legal framework, organisations and procedures and evolve a new framework or make amendments. At this stage, it may not be necessary to define the new framework, but its broad contours could be as follows:

(iv) Constitution of a Regulatory Authority, including monitoring. (v) Leveraging strategy for conservation, Economic Corridor redevelopment, infrastructure upgradation, and employment generation projects. (vi) Review of the ASI Gazette Notification No. F8 / 2 / 90 dated 16th June,1992, regarding prohibited and controlled zone around the protected monuments in the old City. (vii) Capacity building, public participation, asset management and MIS It is pertinent to create awareness, interest, partnerships and commitment among the residents, property owners and other stakeholders. Private investments can be attracted through FAR and tax incentives and financial and economic viability can be ensured by taking up ‘bankable’ projects. 9.0

CONCLUSIONS

Old Delhi presents a fascinating case study in urban development, where planners come across great challenges and contrasts. Its development should necessarily be in continuum to its glorious past. Now we are at the threshold of creating another Delhi for a population of above 23 million for the year 2021. One of the most important aspect of planning is the conservation and blending of the historical past and cultural contents of the city with the new developments. However, this need is usually conflicting with the accelerating demographic demands and socio-economic pressures. A sensitive

(i) Facilitating entry of new players in conservation and redevelopment, such as, local community, RWA, Co-operative Societies, Financial Institutions, DMRC and Private Sector. 37


approach to planning, with policy departures concretized on the lessons of the last four decades can resolve this conflict.

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References

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INTACH & CSD: Mehrauli Urban Heritage Project,1993.

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1

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2

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15

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3

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4

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17

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Naidu. Ratna: A Conceptual Framework for Renewal of Walled Cities in India, Ekistics Sept.-Dec.,1994.

6

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Groves. Richard; Development of Urban Renewal in India, University of Birmingham. 1991

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8

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21

9

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Delhi from River Yamuna, 1857

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regeneration and renewal of old delhi (shahjahanabad). - CiteSeerX

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