International Journal of Recent Technology and Engineering (IJRTE)
ISSN: 2277-3878, Volume-2, Issue-5, November 2013
Land Use Planning for Social Infrastructure in
Bangalore Metropolitan Area: Issues and Policies
S. Gopi Prasad, B. Shankar
Abstract 1 - Spatial planning focuses on the balanced
development of the urban areas. The balanced development
necessitates physical, land use planning along with the provision
of both physical and social infrastructure. The important services
such as health and education are single most important services
that determine the social development. The current system of
master planning has attempted to provide for reservations of land
use through designating it as Public and Semi-public land uses.
This includes the category of “civic amenities” as stipulated by
the development plan prepared by the Urban Development
Authority. Provision of social infrastructure is important from
the perspective of the Millennium Decade Goals for achieve the
social sector goal. Further, the metholodological problems of
arriving spatial equivalent of population per unit area as a mere
provision of land use for social infrastructure may not fulfil the
actual demands. The development of the land by providing a
facility in consistent manner is a necessity. The paper discusses
the effectiveness of land use reservations for civic amenities
while implementing schemes of Master Plan for social
infrastructure in the city of Bangalore. The paper attempts to
define civic amenities within the planning framework, the
regulations in support of the provision in the new areas and
finally the implementation review of the earlier spatial
documents.
of physical infrastructure is not a sufficient goal. There is a
need for a system enabling (a) a socio-economic
environment that fosters innovation and investment, (b)
effective delivery of public services of specified standards is
assured for all including the poor, and (c) affordable
housing for the poor is also assured2 (HPEC, 2011).
Though, the Government of India’s policy emphasized for
creation and management of social infrastructure on its
own. In the 10th five year plan, there is a shift to include the
role of private sector in these key social sectors. The
majority in the delivery of social services is offered by
specific government departments with the necessary
specialisation. The creation of infrastructure for such
delivery of services is guided by the respective plans. The
services include electricity, water supply, sewage and
drainage roads, public transportation, waste management
from the most “physical infrastructure” side and education,
health, security, postal services, community facilities from
the “social infrastructure side”.
The Master plans have designation of land uses such as
Public and Semi Public land uses that comprises of various
uses such as education, health, etc. Public facilities to
include Central and State government offices, jail, Police
stations, Post offices, Fire stations, cemetery, Semi public
facilities to include Higher Educational and Medical
institutions, Banks, LPG Godowns, Religious and Cultural
Institutions, Community halls.
The reservation of land and the space standards for such
uses is based on population per unit. Some guidelines given
by report 3 (2004) authored for recommending the
amendments to the Town planning act in Karnataka’s
proposes norms according to levels of population.
Index of Terms- Civic Amenities, Public and Semi-Public, Land
Use, Policy.
I. BACKGROUND
Spatial planning aims at creating sustainable planned
communities being self sufficient, serving all the needs
within the neighbourhoods and zones. To achieve this,
various norms and standards have been drawn up, for the
provision of social and physical infrastructure on the basis
of population. The land use planning assists the provision
by designating the specific land uses for the purposes. The
geographical disposition of the amenities and social
infrastructure contributes to the local urban structure and
enhances the liveability of the areas. They often impact the
land values and economic aspects of the area. At the city
level, therefore the shaping of the city character is
determined by the degree of provision of infrastructure and
the delivery aspects, along with several other important
aspects. This has also significant implications on the
ranking of cities /benchmarking of the global cities.
Table I: Space Standards for Educational Facilities
Educational facilities
Pre primary school
Primary school, 500 pupils
Secondary school, 1000 pupils
School for handicapped, 400 pupils
College, 1000-1500 students
University campus
Technical education centre, 500
students
Engineering college, 1500 students
Rapid growth and economic expansion in the country
requires urban areas in India to play a supporting role in
creating “inclusive societies”.
The development must be balanced and equitable offering
opportunities to the diverse population. The mere provision
Medical college
2
Population
per unit
Area (incl.
play ground)
in hectare
2,500
7,500
0.45
1 to 1,25 Lakh
-
0.08
0.4
1.6
0.5
4
10
10 lakh
4
-
60
30 including
General hospital
-
HPEC Committee Report(2011), Ministry of Urban Development
, Government of India, Pg 18
3
“Urbanisation Policy, Amendments to Town and Country
Planning Act, Town Planning Manual and Urban Development
Authorities” Report (2002), Director of Town Planning,
Government of Karnataka.
Manuscript received November, 2013.
S. Gopi Prasad: Director, IDES Consulting Private Limited, Bangalore,
Karnataka, India.
Dr. B. Shankar: Associate Professor of Urban and Regional Planning,
Institute of Development Studies, University of Mysore, Mysore.
79
Land Use Planning for Social Infrastructure in Bangalore Metropolitan Area: Issues and Policies
Table II: Space Standards for Health Facilities
Health facilities
Population
per unit
General hospital (500 beds)
2.5 lakh
Intermediate hospital (200 beds)
1 lakh
Intermediate hospital and maternity
(50 beds)
Policlinic with observation beds
Nursing home, child welfare (25beds)
Dispensary
specific models either government /private or mix of Govt
and private initiatives. The challenge of spatial plan is to
enable delivery of services in both areas of planned and unplanned parts of the city.
Area in
hectare
6 (hospital
building:4)
3.7 (hospital
building:2.7)
2 (hospital
building:0.6 )
0.2-0.3
0.2-0.3
0.08-0.12
1 lakh
1 lakh
0.45 to 1 lakh
15,000
II. MOBILISATION OF LAND FOR PUBLIC AND
SEMI-PUBLIC PURPOSE IN BANGALORE
The geographical location of the facility becomes
significant- the issues related to the provision of land at the
right location become important. Conventionally the land
demarcated for public and semi public uses need may either
belong to the government or to the private sector. In case of
Government, the transfer of land is matter of Governmental
interdepartmental transfer. In case of land privately owned,
the land for the amenities may be acquired through the
eminent domain or as a part of the scheme. The acquisition
may be taken up only on the land being demarcated for the
public and semi public land use. The Private sector may be
allowed for the development of the land use as per the
stipulations of the regulations of development Plan. The
reservation of land for the public use is in form of
provisions of “civic amenities “under the provisions of the
relevant Act. The master plans (earlier CDP) for Bangalore
has focused on the physical infrastructure and land uses
along with reservations leaving the aspects of education,
health, others to the respective stakeholders for
implementation.
Table III: Space Standards for Other Facilities
Other facilities
Population
per unit
Area in hectare
Community room
Community all and library
Recreational club
Music dance and drama centre
Meditation and spiritual centre
Socio-cultural centre
Fire-station
Police station
Police Post
5,000
15,000
1 lakh
1 lakh
1 lakh
1 lakh
2 lakh
0.9 lakh
0.3 to 0.5 lakh
0.06
0.2
1
0.1
0.05
15
1
1.5
0.16
On the other hand, the earlier Comprehensive
Development Plan 2011 prepared by the BDA sets norms
which are applicable for the development that taken up by
both private and public sector.
Table IV: Space Standards for Educational Facilities
Educational facilities
Nursery schools
Basic and higher primary schools
Population per
unit
Area in ha
1,000
0.2
3,500 to 4,500
1
Higher secondary schools
0,15 lakh
2
College
0,5 lakh
3 to 4
Medical facilities
Dispensary
5,000
0.1
Health centre
0,2 lakh
0.4
Other facilities
Post and telegraph
0,1 lakh
0.15
Police station
0,1 lakh
0.2
III. COMPREHENSIVE DEVELOPMENT PLAN
The Comprehensive Development Plan(CDP) 1995 is an
important starting point for the study on the realization of
the social infrastructure. It must be remembered that the
provision and facilitation of the social infrastructure through
the CDP is highly limited as it covers only government
provided facilities within the ambit of the civic amenities
and designation of land use by public and semi public
category. Further the plan has no bearing on the respective
departmental plan for realization of the Civic amenity, in
terms of size, land availability, cost, or time schedule. The
sectoral approach is solely managed by the sectoral plans of
the respective department. Within the land use plan, there
are no further categories to designate the mandatory
functions that need to be realized to service a specific urban
area.
The above services and their provision are carried out by
both public and private sector players. Increasingly, the
services of health and education are pre-dominantly by
private sectors. Amongst the public players and their
implementation and delivery of services are dictated by
their respective plans and capacities. The mechanism for
dovetailing the individual sector plans (health, education,
etc.) and their implementation needs to be spelt out along
with the spatial configuration of where the social
infrastructure occurs. The designation of land use is the first
step in achieving the necessary co-ordination and
implementation. There are a number of stakeholders with
their sectoral plans that needs to be tied together by the act
of spatial planning with focus on the locating the facility
suitably-by spatial logic, correspond to the population
needs/demands, suitable business model for delivery with
greater access and affordability. In the current context,
private sectors as well as Non Government Organisations
(NGOs) play an important role in provision and
management of social infrastructure for which spatial plans
need to be blended to accommodate these two sectors
IV. PUBLIC AND SEMI-PUBLIC USES
The larger social infrastructure creation, synergizing both
private and public sector are covered in these category of
the public and semi public uses. In this category, land use is
designated without enabling the implementation of the
same. For example a parcel of land in commercial area has
been designated as public and semi public use. Either this
land needs to be acquired by the designated authority or
allow the private sector to realize the same. In a number of
cases, the designation of the land to specific use dampens
the marketable value of the site. A five year period is
awaited without action, & thereby forcing a change of land
use. The land use classification dampens the value and the
potential of development of land unattractive to the private
sector. The services and facilities that come under the public
and semi public are marked on the Land use maps. These
include the Government owned, Public sector established
social infrastructure such as education, health, etc. Public
80
International Journal of Recent Technology and Engineering (IJRTE)
ISSN: 2277-3878, Volume-2, Issue-5, November 2013
facilities – Central and State government offices, jail, Police
stations, Post offices, Fire stations, cemetery, Semi public
facilities – Higher Educational and Medical institutions,
Banks, LPG Godowns, Religious and Cultural Institutions,
Community halls. The private sector social infrastructure
ventures are completely left out of this category. As
designated land will not enable to develop an alternate
development on the same land.
relinquished by the private developer to the BDA by land
development.
VI. LAND FOR CIVIC AMENITIES
There are two operations that allow for creation of CA
sites i.e; (a) While land is developed by the BDA in form of
layouts. Currently a proportion of about 10 % of the total
land developable is set aside for CA; while the sites are
allotted immediately the CA sites remain with the authority
to their discretion; (b) Private developers in formation of
layouts or group housing projects above the specified size
of land development have to reserve CA sites and relinquish
the same to the authority before commencing work. These
sites are under the Authority and their discretion; (c) As
development rules specify the land component reserved for
CA and as the legal development suffers from poor
commercial exploitation, most developers tend to shy from
the process. With the costs being passed on the end users
and being land locked for number of years, the CA sites
rarely service the actual needs of the end users; (d) As
revenue layouts and other forms of non approved layouts
form a majority of the development, rarely does one see any
Civic Amenity site being reserved or handed over to the
BDA. The actual realization of the civic amenities site can
be very high compared to the present situation and together
they present a lost opportunity for realizing revenues
coupled with social objectives.
Table V: Land Use of Bangalore
Land Use
Existing
Land Use
2003
( sq.km.)
Percent
Proposed
Land Use
2011
( sq.km.)
Percent
Residential
Commercial
Industrial
Open Spaces
Public and SemiPublic Uses
Public Utilities
Offices
and
Services
Transport
and
Communication
Unclassified
Total
Agriculture Land
Lake and Tank
Quarry
Vacant
Total
159.76
12.83
58.83
13.10
46.56
37.9
3.04
13.96
3.11
11.05
243.69
16.43
38.44
77.88
49.08
43.16
2.91
6.81
13.79
8.69
2.49
4.27
0.59
1.01
-
0.00
0.00
88.31
20.96
116.97
20.72
35.26
421.41
649.24
39.02
9.61
187.72
1307
8.37
100
22.14
564.63
3.92
100.00
The revised Master Plan 2015 stipulates the size of land
area for development to 4000 sq. for the payment of fees to
the authority in lieu of provision of civic amenity or open
spaces. Where the land parcel is larger, the 5 % of the land
area is to be reserved within the residential development
plan 5 . For the civic amenities relinquished to BDA, the
authority may handover the amenity site for the purpose of
use to a resident’s association for maintenance.
Source: Bangalore Development Authority, Bangalore
In comparison to the CDP 1995, the Revised Master Plan
digresses from the normal route of making reservations on
private lands. The Public and semi public category restricts
only to the government/ public facilities. It goes further to
say that if the ownership of land is established to be that of
the private, then the authority may allow for the land use
that the plot as its neighbour. The total allocation of land
use for public and semi-public land use in the revised
master plan 2015 4 is about 3765.27 ha or 37.65 sq.km
(forming 3.08 % of the total area.) This also marks the shift
in thinking that reservations are effective, when there are
proper implementation mechanisms supporting it.
VII. PROCESS OF ALLOTMENT
The civic amenities sites that were developed BDA are
allotted by the BDA to those institutions which are
recognized by the society for public development work.
Usually they include institutions that are registered as
societies that are charitable or philanthropic. In the absence
of application from the these institutions certain reserved
sites will be allotted by the BDA to second specified
category of institutions on lease bases for the purpose of
providing the civic amenities in that particular area.
V. CIVIC AMENITIES
The civic amenities as defined by the Bangalore
Development Authority Act (BDA) 1976 has elaborate
procedures on what constitutes a suitable purpose for
realization and eligibility on the Civic Amenities (CA) site.
Historically, these sites are allocated to institutions that
meet the criteria of allotment and this is limited as they do
not follow the larger logic of servicing the urban area. A
very small percentage of the land has been utilized by the
other governmental departments through CA sites.
Transition of developed areas into the hands of the urban
local bodies has not witnessed any utilization of civic
amenities sites for urban management purposes. The
definition of the civic amenities within the CDP is restricted
to the land component that is reserved/created by BDA’s
layout development process or by the land that is
VII. HOW LAND FOR THE SOCIAL
INFRASTRUCTURE IS PROVIDED FOR?
The Bangalore Development Authority (BDA)
is
restricted to the CA sites and allotment to the “institutions”
namely (a) Government departments such as Karnataka
Housing board, Karnataka slum clearance board, Urban
local bodies, KIADB (b) Private sector planned
developments both approved and un approved (c) Private
land that is converted land being put to use for commercial
viable social infrastructure and (d) Transformation of
Building use – from residential to commercial ventures
5
The residential development Plan is defined by the size of plot over
20000 sq.m of area and 12,000 sq.m for the non-residential development
plan.
4
The data for proposed P&SP is not given in any public document of the
RMP 2015. The value is computed from the land use maps by the author .
81
Land Use Planning for Social Infrastructure in Bangalore Metropolitan Area: Issues and Policies
which include social infrastructure in high density areas.
The educational institutes have moved away to the far
locations of the city. Agricultural land is often taken up for
the development as the government supply is few. As to the
hospitals, the change of land use to the commercial category
is made.
IX. DISTRIBUTION OF PUBLIC AND SEMI-PUBLIC
LAND IN MASTER PLAN
Based on the occurrence of the amenities that come under
the civic amenities category located on the designated
public and semi public land uses in the Plan, a comparison
is made. For this purpose, the existing land use survey map
data is superimposed on the designated P&SP land uses.
The distribution in the erstwhile CMC 6 areas are shown
below:
VIII. STAKEHOLDERS
The main stakeholders for the provision of education and
health are private and public players. While the public
players are the various departments, the private players
include the following; these have varied business models
and objectives though with similar goal to include ( a) Non
Profit Organisations and NGOs (b) Individual investors and
developers and (c) Corporate bodies involved in the
ventures of social infrastructure.
A. Non-Profit Organisations and NGOs
The NGO sector covers small to large organizations who
depend funding from wide variety of sources including that
of domestic /foreign and religious donations and who are
focused on delivery of services. The smaller ones tend to
keep the capital expenditure low as they cannot afford for
land costs. The main areas of operation and management
include the health and education sector. They tend to be
located within high density, poor areas as there is target
audience is located there. The CDP civic amenities can cater
to the groups. Private land supply needs recognition in form
of incentives.
Chart 1: Distribution of Land
It is observed that about 900 ha of amenities (health and
education, etc) are developed independent of the land use
zoning for this area.
B. Individual Investors and Developers
Individuals are interested in commercially viable social
infrastructure projects such as petrol pumps, polyclinics,
kalyana mantaps, banks, etc. These thrive on low cost of
land or opportunities to self develop/joint venture and
population in the immediate surroundings. Sizes of the land
are not very large (maximum 1 to 2 acres). The delay in
development completely in the formal layouts enables these
developments to be developed in the private properties
mainly on main roads. Though socially relevant, they can
cause damage to the liveability of an area, regulations on
the size, location, solid waste management, parking needs to
be imposed. Typologically, they are located on the fringe of
the developments, on the corridors and new developed
areas. Transformation within the areas needs to be promoted
with careful urban regulation on parking, size, and solid
waste management.
Amenities Implemented in Proposed P&SP
Area in Ha
350
300
250
200
150
100
50
0
Implemented
Vacant
Amenities implemented out side
the proposed P&SP
C. Corporate Bodies Involvement in Ventures of Social
Infrastructure.
The Corporate Bodies are interested in creation and
management of commercially viable social infrastructure
facilities and they operating on business model that they are
interested land supply with clear titles and locations ideal
for serving middle to high class of the society. Since, their
operations and expansion require a scale, quantum of land is
critical. The two variations in this segment is that of
“chaining “and stand alone large campus. As an industry,
they are in position to avail the government land or private
land. Incentives for moving in first in new extensions can be
promoted by providing both /or land availability and
enhanced development rights.
350
300
Area in Ha
250
200
150
Amenities
implemented
out side the
proposed P&SP
100
50
0
6
The 6 CMCs and 1 TMC were merged to form the Bruhat Bangalore
Mahanagara Palike in the year 2007.
82
International Journal of Recent Technology and Engineering (IJRTE)
ISSN: 2277-3878, Volume-2, Issue-5, November 2013
IX. ISSUES
b) Facilitating developers to retain the portion of CA or
whole CA site to use for their purpose and developing
the same to required facility for the areas.
c) Flexible arrangement to enable the private sector to put
the reserved site to a socially relevant venture.
d) To undo the method of relinquishment of the CA site to
BDA and realize revenue from the same. In case of
large urban projects, BDA can retain a portion of land
component rights for development.
e) Shift focus from land supply to development rights to
facilitate realization of the amenities.
f) Setting strategy /zoning strategy for the locating the
social infrastructure- according to the scale.
g) Three concepts of proximity, accessibility, population
and urban structure of the areas can be considered. The
urban structure involves the delineation of area such as
old (villages), sparsely developed areas and new
extensions. Each of these needs to be elaborated for
specific social infrastructure.
h) Urban regulations are concerned; each of the social
infrastructure components has key dependencies on the
urban structure and form. The main components are
parking, waste management, building byelaws, etc., to
be defined further.
i) Tax breaks and incentives can be lent to organizations
that cater to the 100 % compliance of regulations
within the old areas and new areas such solid
/biological waste management, parking, building
byelaws, etc.
j) Those norms are just indicatives and shall not be
considered as compulsory. They are just guidelines to
be adapted to the urban situation characterised by
density, size of the town or area, importance of day
population compared to night population. Have also to
be taken into account the implementation in dedicated
building or in mix-use buildings or the participation of
the community in the management.
k) It may be worthwhile to investigate this matter fully to
ascertain whether the provision of land or the setting of
space standards has relevance to the delivery of
services in an affordable manner and the investment
made on land does increase the prices of delivery.
These are main observations on the social infrastructure:
a) New areas are urbanised as extensions, the existing
village level facilities do not match with the new
requirements. The old facilities are absorbed by the
Urban Local Bodies. Up gradation is necessary.
b) Due to the need for facilities – new private facilities
mushroom around these areas. Apart from demand,
there is also the fact that the new urbanized areas do
have affordability but lack support infrastructure such
as sewerage, solid waste management systems.
c) The new private facilities are not found on the public or
semi-public designated land use as there are no obvious
benefits for the ventures to be sited. A few of the large
facilities have followed the direction of the CA which
have been purely incidental, such as being non-profit
organisation or trust. (most of the NGO’s and others
find the cost of land as steep for implementation). This
is purely from the land component consideration.
d) Existing residential uses which have demand, allow for
transformation into the health and educational facilities.
Such private facilities rarely have a desired sanitation
system, water supply or any basic services for disposal
of solid and biological wastes.
e) There is a serious mismatch between the planning of
one agency to another in terms of co-ordination and
implementation.
f) Government departments set up their institutions for
providing social infrastructure facilities whenever there
are funds allocated for capital expenditure.
g) The setting up of the hospitals is carried out by the
respective department on government land or civic
amenity land available within the BDA.
h) Government departments with responsibility of setting
up the facilities face challenges in obtaining land from
the open market as the cost of land at market value is
very high.
i) Land availability is not restricted to BDA alone,
parallel supply from the other government departments
and private land dilute the planning efforts of being
precise in the development plan. Lack of co-ordination
and sequencing leads to the poor utilisation of land
designated for social infrastructure.
j) Socially relevant commercial ventures such as Kalyana
Mantaps are rarely treated within the Comprehensive
Development Plan; they are heavy traffic generators
and solid waste generators.
k) On handing over of the BDA layouts to the urban local
bodies, yet continues to hold on to the Civic Amenities
sites. The focus of larger public interest is lost.
XI. CONCLUSION
The Paper highlights the need for widening the scope of
the spatial planning and the process of earmarking areas
within the land use planning for the realisation of the social
infrastructure. It is not only sufficient provide land uses, but
also create the linkage between the space standards, the
designation of land uses, identification of the stakeholders
for implementation and finally consistent implementation
mechanism. The options available for the social
infrastructure include the active role of private and public
players in implementation. The geographic locations, such
as the inner city, the periphery needs different policy and
implementation interventions. Incentives and friendly tax
instruments can be devised to actively promote and
facilitate the development of social infrastructure. The space
standards can be utilised as a guideline in order to respond
to the dynamics of the city development.
In the scenario of the Government being the provider, it
is possible to envisage a spatial plan which is guided and be
able to guide, on the basis of detailed plans of the sectors.
Often the sectoral plans are not devised to communicate
with the spatial plan and co-ordination problem incapacitate
the function of spatial plan.
X. POLICY OPTIONS
a)
To use the reservation of the civic amenities to help
interconnectivity of the layouts, developing sustainable
neighbourhood social infrastructure.
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Land Use Planning for Social Infrastructure in Bangalore Metropolitan Area: Issues and Policies
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S.Gopi Prasad received B.Arch degree in 1995 from
MNIT, Jaipur and Master of Urban Design in 1999
from School of Architecture and Planning , N.Delhi.
He is currently heading the urban practice in ides
consulting private limited. His research interests
include decision support, infrastructure development,
spatial/land use planning and legislation.
B. Shankar received the B.E. degree in Civil Engineering
in 1984, M.U.R.P degree in Urban and Regional
Planning in 1989 and Ph.D. degree in Urban and
Regional Planning in 1997 from the University of
Mysore, Mysore. He is working as Associate Professor
in Urban and Regional Planning at the Institute of
Development Studies, University of Mysore, Mysore.
His research interests include Urban Planning, Spatial
and Land Use Planning, Community Development,
Heritage Conservation, and Planning Legislation.
84