Urdpfi Guidelines vol2

January, 2015

Town and Country Planning Organisation

URBAN AND REGIONAL DEVELOPMENT PLANS FORMULATION AND IMPLEMENTATION

(URDPFI) GUIDELINES

Government of IndiaMinistry of Urban Development

http://moud.gov.in

Volume II A and II BAppendices to URDPFI Guidelines, 2014

URBAN AND REGIONAL DEVELOPMENT PLANS FORMULATION AND IMPLEMENTATION

(URDPFI) GUIDELINESVolume II A

Appendices to URDPFI Guidelines, 2014

i

TableofContents

1 Implicationsof73rd&74thConstitutionAmendmentAct,1993_______________11.1. Provisionsof74thConstitutionAmendmentAct ________________________________________________11.2. NewRolesandFunctionsofStateTownandCountryPlanningDepartment_________________41.3. StatusoftheProvisionsof74thConstitutionAmendmentActonUrbanLocalBodies_______51.4. Recommendations_________________________________________________________________________________9

2 TheRighttoFairCompensationandTransparencyinLandAcquisitionRehabilitation&ResettlementAct,2013______________________________________11

2.1. BasisofthenewAct ______________________________________________________________________________112.2. KeyFeatures ______________________________________________________________________________________11

3 ModelRegionalandTownPlanningandDevelopmentLaw,1985__________153.1 Keyfeatures_______________________________________________________________________________________153.2 Suggestedmodificationsinthelaw______________________________________________________________16

4 ModelMunicipalLaw,2003____________________________________________________214.1. Keyfeatures_______________________________________________________________________________________214.2. SuggestedchangesintheLaw___________________________________________________________________22

4.2.1. Clause(s)forinclusioninthepresentMML____________________________________________234.2.2. AdditionalProvisions____________________________________________________________________25

5 StateLevelLegalFrameworkComparativeAnalysisOverview___________275.1. Maharashtra_______________________________________________________________________________________445.2. HimachalPradesh_________________________________________________________________________________455.3. TamilNadu________________________________________________________________________________________465.4. Gujarat ________________________________________________________________________________________465.5. Karnataka ________________________________________________________________________________________485.6. Bihar ________________________________________________________________________________________485.7. Mizoram ________________________________________________________________________________________50

6 LegalRequirementsforIndustrialDevelopment_____________________________536.1. Industries(DevelopmentandRegulation)Act,1951__________________________________________536.2. IndustrialPolicy,1991 ___________________________________________________________________________536.3. PolicyforForeignDirectInvestment(FDI)_____________________________________________________546.4. ManufacturingPolicyforClusterDevelopments_______________________________________________56

6.4.1. NationalManufacturingPolicy,2011___________________________________________________566.4.2. NationalInvestmentandManufacturingZones(NIMZs)Guidelines ________________576.4.3. SpecialEconomicZone(SEZ)Act,2005________________________________________________606.4.4. SchemesforclusterdevelopmentunderMinistries___________________________________626.4.5. ProvisionsforMicroSmallandMediumEnterprises(MSME) _______________________63

7 OtherNationalLevelLegalRequirements___________________________________677.1. NationalHeritageConservation_________________________________________________________________67

ii

7.1.1. TheAncientMonumentsandArchaeologicalSitesandRemains(AmendmentandValidation)Act,2010____________________________________________________________________69

7.2. NationalEnvironmentalLegalRequirements__________________________________________________707.2.1. EnvironmentImpactAssessmentNotification2006__________________________________707.2.2. EnvironmentProtectionAct,1986_____________________________________________________717.2.3. ForestConservationAct,1980__________________________________________________________727.2.4. CoastalRegulationZone,2011__________________________________________________________737.2.5. EcoSensitiveZones _____________________________________________________________________74

7.3. CantonmentAct,2006____________________________________________________________________________76

iii

ListofTablesTable1.1:ItemslistedinEleventhandTwelfthSchedule__________________________________________________2Table1.2:FinancesofPanchayats&Municipalities________________________________________________________3Table1.3:StatewiseCompliancewith74thCAAasonOctober2004_____________________________________7Table1.4:StatusofMPCsinvariousStates_________________________________________________________________8Table5.1:ComparisonofTownandCountryPlanningActs&implementationacrossNation________29Table5.2:ComparisonofTownandCountryPlanningActsofsevenStates_____________________________35Table6.1:LiberalisedSectorforForeignDirectInvestment(RelatedtoUrbanandRegionalPlanning)56Table6.2:SchemesproposedforpromotionofCluster/ParkDevelopment____________________________64Table6.3:Micro,SmallandMediumEnterprisesClassification__________________________________________65Table7.1:StatutoryObligationsofEnvironmentClearances_____________________________________________72Table7.2:ActivitiesProhibited,RegulatedorPermittedinEcosensitiveZone_________________________75

URDPFIGuidelines,2014.VolumeIIA.MinistryofUrbanDevelopment 1

Implicationsof73rd&74thCAA,1993

1 Implications of 73rd & 74th ConstitutionAmendmentAct,1993

1.1. Provisionsof74thConstitutionAmendmentAct

The 73rd Constitutional Amendment Act (73rd CAA) came in effect from 24th April,1993and74thConstitutionAmendmentAct(74thCAA), ineffect from1st June1993,ushered a new era in the history of urban local government in the country. TheConstitutionofIndiahasdetailedprovisionsforensuringprotectionofdemocracyinParliamentandStateLegislatures;however,itdidnotmakelocalselfgovernmentinurbanareasaclearcutconstitutionalobligation.EventhoughtherewasprovisionfororganisationofvillagePanchayatsintheDirectivePrinciplesofStatePolicy,therewasno reference tomunicipalitiesexcept implicitly inEntry5of theStateList,whichplaces the subject of local selfgovernment as a responsibility of the State.The74thCAA (referred to as part IXA of Constitution)made provisions for decentralisation,thereby, ensuring democracy in the establishment and operation of local selfgovernment.Itbestowspowertothepeopletoplanforthemselvesandparticipateinthedecisionmakingprocess.ThemainprovisionsintroducedbytheActareasunder:

1) ConstitutionofPanchayatsandMunicipalities:

Article243Bof73rdCAA,providesfortheconstitutionofPanchayatsatthreelevelsinastate:

a) Village,b) Intermediate (may not be constituted in a State having a population not

exceedingtwentylakhs)andc) District.

Article243Qof74thCAA,providesforconstitutionofMunicipalitiesineveryStateasgivenunder:

a) NagarPanchayatfortransitionalarea,thatistosay,anareaintransitionfromruraltourbanincharacter.

b) MunicipalCouncilforasmallerurbanarea,andc) MunicipalCorporationforalargerurbanarea.

2) ConstitutionofWardCommittees: Article 243 S provides for constitution ofwardcommittees,consistingofoneormorewards,withintheterritorialareaofaMunicipalityhavingapopulationof3,00,000ormore.

3) DurationofMunicipalities:Article243Eof73rdCAAand243Uof74thCAA,provides a fixed termof 5 yearsof apanchayat andmunicipality respectively,fromthedateappointed.Electionstoconstituteapanchayatormunicipalityarerequired to be completed before the expiration of the duration of themunicipality.

2 URDPFIGuidelines,2014.VolumeIIA.MinistryofUrbanDevelopment


4) Powers, authority and responsibilities of Panchayats andMunicipalities:Article 243G of 73rd and 243W of 74th CAA provides powers, authority andresponsibilities of Municipalities subject that legislature of the State by lawendow:

a) ThePanchayatsandMunicipalitywithsuchpowersandauthority thosearenecessary to enable them to function as institutions of selfgovernment. The law prepared by the state government may containprovisions for the devolution of powers and responsibilities uponMunicipalities,withorwithoutconditionswithrespecttoi. the preparation of plans for economic development and social

justice;ii. the performance of functions and implementation of schemes asmay

beentrustedtothemincludingthoseinrelationtothematterslistedintheEleventhandTwelfthSchedule;

b) The Committees with such powers and authority as may be necessary toenable themtocarryout theresponsibilitiesconferreduponMunicipalitiesthemincludingthoseinrelationtothematterslistedintheTwelfthSchedule.

Table1.1: ItemslistedinEleventhandTwelfthSchedule

S.No. 29Itemsofthe11thSchedule S.No. 18Itemsofthe12thSchedule

1 Agriculture,includingagriculturalextension

1 Urbanplanningincludingtownplanning

2 Landimprovement,implementationoflandreforms,landconsolidationandsoilconservation

2 Regulationoflanduseandconstructionofbuildings

3 Minorirrigation,watermanagementandwatersheddevelopment

3 Planningforeconomicandsocialdevelopment

4 Animalhusbandry,dairyingandpoultry 4 Roadsandbridges

5 Fisheries. 5 Watersupplyfordomestic,industrialandcommercialpurposes

6 Socialforestryandfarmforestry 6 Publichealth,sanitationconservancyandsolidwastemanagement

7 Minorforestproduce 7 Fireservices

8 Smallscaleindustries,includingfoodprocessingindustries

8 Urbanforestry,protectionoftheenvironmentandpromotionofecologicalaspects

9 Khadi,villageandcottageindustries 9 Safeguardingtheinterestsofweakersectionsofsociety,includingthehandicappedandmentallyretarded

10 Ruralhousing 10 Slumimprovementandupgradation

11 Drinkingwater 11 Urbanpovertyalleviation

12 Fuelandfodder 12 Provisionofurbanamenitiesandfacilitiessuchasparks,gardens,playgrounds

13 Roads,culverts,bridges,ferries,waterwaysandothermeansof

13 Promotionofcultural,educationalandaestheticaspects



S.No. 29Itemsofthe11thSchedule S.No. 18Itemsofthe12thSchedulecommunication

14 Ruralelectrification,includingdistributionofelectricity

14 Burialsandburialgrounds;cremations,cremationgroundsandelectriccrematoriums

15 Nonconventionalenergysources 15 Cattlepounds;preventionofcrueltytoanimals

16 Povertyalleviationprogramme 16 Vitalstatisticsincludingregistrationofbirthsanddeaths

17 Education,includingprimaryandsecondaryschools

17 Publicamenitiesincludingstreetlighting,parkinglots,busstopsandpublicconveniences

18 Technicaltrainingandvocationaleducation

18 Regulationofslaughterhousesandtanneries

19 Adultandnonformaleducation

20 Libraries.

21 Culturalactivities

22 Marketsandfairs

23 Healthandsanitation,includinghospitals,primaryhealthcentresanddispensaries

24 Familywelfare

25 Womenandchilddevelopment

26 Socialwelfare,includingwelfareofthehandicappedandmentallyretarded

27 Welfareoftheweakersections,andinparticular,oftheScheduledCastesandtheScheduledTribes

28 Publicdistributionsystem

29 Maintenanceofcommunityassets Source:73rd&74thConstitutionalAmendmentAct

5) FinancesofPanchayatsandMunicipalities:AsperArticle243Hof73rd&243Xof74thCAAithasbeenlefttothelegislatureoftheStatetospecifytheimpositionoftaxes.

Table1.2: FinancesofPanchayats&Municipalities

RevenueSources Responsibilityof

Taxes,Duties,feesetcetera LeviedandcollectedbyPanchayats&Municipalities

Taxes,Duties,feesetcetera LeviedandcollectedbyStateGovernment

Grantinaid GiventomunicipalitiesfromtheStateGovernment

Funds For crediting and withdrawal of money by Panchayats &Municipality

Source:73rd&74thConstitutionalAmendmentAct

6) StateFinanceCommission:Article 243 I of 73rd CAA give provision of StateFinanceCommission(SFC).Article243Yof74thCAAextendsduty/powerofSFC



to review the financial positions of municipalities apart from PanchayatiRajInstitutionsandmakerecommendationstotheGovernor.

7) Committee forDistrictPlanning: Article 243 ZDprovides for constitution ofDistrict Planning Committee at district level in every state, to consolidate theplanspreparedby thePanchayats and theMunicipalities in thedistrict and toprepareadraftdevelopmentplanforthedistrictasawhole.

a) A close study of this article provides a reasonable inference that eachmunicipalityisexpectedtoprepareaplanforitsareaandundertakethetaskof urban planning including town planning, regulation of land uses,construction of buildings and phasing of the programme for economic andsocialdevelopmentasenvisagedintheTwelfthSchedule.

b) The DPC would provide interaction with the municipal bodies andpanchayatiRajinstitutions,inadditiontoplanningandconflictresolutions.

8) Committee for Metropolitan Planning: Article 243 ZE provides forconstitution of a Metropolitan Planning Committee (MPC) for planning ametropolitan area having a population of 10 lakh ormore, comprising one ormoredistrictsandconsistingofoneormoremunicipalitiesorpanchayats.

9) ScheduledAreas: In terms of Article 243M of 73rd&243ZC of 74th CAA, theseprovisionsshallnotapplytoScheduledareasandTribalareasasreferredtoinArticle244oftheConstitution(i.eScheduledareasandscheduledtribesintheStatesofAssam,Meghalaya,TripuraandMizoram.)However,Parliamentmaybylaw,extendtheprovisionsofPartIXAtotheseareassubjecttosuchexceptionsandmodificationsasmaybespecifiedinthatlaw.

In order to provide time to StateGovernments to allow changes to bemade in thethenexistingStateMunicipallawswhichwereinconsistentwiththeprovisionsofthe74thCAA,atransitionperiodofoneyearwasprovided,uptill31stMay1994.

1.2. New Roles and Functions of State Town and CountryPlanningDepartment

The new role of Town and Country Planning Departments that emerges out of theprovisionsofthe73rd&74thCAAshall,amongothers,include1:

a) AdviceandtechnicalassistancetotheStateGovernmentonmatterspertainingto spatial planning and development as well as implementation of stateprogrammes;

b) InitiationofactionpertainingtoprovisionoflegalsupportinrelevantActsforsocioeconomic, spatial planning and development processes; and on thesuggestedRegionalandUrbanDevelopmentPlanningsystem;

1UDPFI Guidelines, 1996 & MM



c) Assistance to theStateUrbanandRegionalPlanningBoard in formulationoftheStatePerspectivePlanandstrategyofspatioeconomicdevelopmentoftheState,havingregard toproposals contained indistrictandmetropolitanareadevelopmentplans;

d) Division of the State into various planning regions taking into account thephysical,sociocultural,economicandclimaticconsiderationsandformulationofplansoftheirspatioeconomicdevelopmenttoserveasaguideforresolvinginterdistrict developmental issues and provide basis for interdistrict cooperationandcoordinationwithaviewtopreparedistrictdevelopmentplansmoreharmonious;

e) Scrutinyofthedistrictandmetropolitanareadevelopmentplansforapprovalof State Government, taking into account the State perspective plan, spatioeconomic development strategy and proposals of relevant planning regioncoveringthedistrictofthemetropolitanarea;

f) Ensuring that respective settlement Development Plans prepared by localauthoritiesarewithintheframeworkoftheapprovedperspectiveplanoftheState/settlement;

g) Technical assistance to local authorities if so requested at the cost of theconcernedbody;

h) Preparationofthedevelopmentplanincaseofdefaultbythe localauthority,district planning committee or the metropolitan planning committee, if sodirectedbytheStateGovernment,atthecostoftheconcernedplanningbody;

i) Provision of necessary research input directly or through the help ofconsultants in formulation of policies, strategies, norms, standards, laws,regulations and rules pertaining to urban and regional planning anddevelopmentmatters;

j) Provisionofmanpowertrainingfacilities;

k) Establishment of an Urban and Regional Information System anddisseminationofinformation.

1.3. Status of the Provisions of 74th Constitution AmendmentActonUrbanLocalBodies

The 74th CAA envisages that the District and Metropolitan Planning CommitteesconsolidateplanspreparedbythePanchayatsandtheMunicipalities inthedistrict/metropolitan region. It shall prepare a draft development plan for the district/metropolitanregionasawholeandsendthedraftDistrictandMetropolitanPlanstotheStateGovernment.TheimplicationisthattheseplansaretobeintegratedwiththeState Plans. As per the Constitutional mandate, the District and MetropolitanDevelopment Plans have to ensure coordinated spatial planning, sharing of natural



and other resources, integrated provision of infrastructure and environmentalconservation.TheapproachhasbeenmaintainedforregionalplanninginChapter4ofVolume1.

TheconstitutionofDPCandMPCin74thCAAisanapproachfortheStatestoaddressregional planning issues. However, these provisions have not been adopted at allIndialevel.ThestudycarriedoutbyNationalInstituteofUrbanAffairs(NIUA)ImpactoftheConstitution(74th)AmendmentActontheUrbanLocalBodies:AReview,April2007 andMOUD Strategic Plan ofMinistry of UrbanDevelopment for 20112016reveals that only few States have undertaken constitution of MPC, DPC andWardCommittees(WCs),whereastherearelargenumberofstateswhoareyettointegratetheseprovisionintheirlegislativeframework.Thetablebelowshowsthestatewisecomplianceof74thCAAprovisionsasonOctober2004.



Table1.3: StatewiseCompliancewith74thCAAasonOctober2004

Sr.No. State/UT

Constitutionof Reservation

ofSeats

RegularConductofElections

Constitutionof

ULBs WCs DPCs MPCs SFCs

1. AndhraPradesh 9 9 9 9 9

2. ArunachalPradesh# 9 9

3. Assam 9 9 9 9 94. Bihar 9 9 9 9 95. Chhattisgarh 9 9 9 9 96. Delhi 9 9 9 9 97. Goa 9 9 9 98. Gujarat 9 9 9 99. Haryana 9 9 9 9 910. Himachal

Pradesh 9 9 9 911. Jharkhand 9 9 912. Karnataka 9 9 9 9 9 913. Kerala 9 9 9 9 9 914. Madhya

Pradesh 9 9 9 9 9 915. Maharashtra 9 9 9 9 916. Manipur 9 9 9 917. Meghalaya*

18. Mizoram*#

19. Nagaland*

20. Orissa 9 9 9 9 921. Punjab 9 9 9 922. Rajasthan 9 9 9 9 923. Sikkim# 924. TamilNadu 9 9 9 9 9 925. Tripura 9 9 9 926. Uttaranchal 9 9 9 927. UttarPradesh 9 9 9 928. WestBengal 9 9 9 9 9 9 9

Source: NIUAupdatetable#TherearenomunicipalitiesinState *Theprovisionsof74thCAAarenotappliedtocertainscheduleareasandtribesofIndia

Itcanbeobservedthatonly10stateshaveprovisionforconstitutingDPCsandonly1statehasprovisionforconstitutingMPC.However,otherStateslikeMaharashtraandAndhraPradeshnowhaveprovisionforconstitutingMPCs.



AccordingtoIndianInstitutesofPublicAdministration(IIPA)report UrbanSectorFeedbackforMetropolitanPlanningCommittees,IIPA,thestatusoftheMetropolitanPlanning Committees constituted so far or thosewhich are in the process of beingconstitutedasin2011aregivenintablebelow:

Table1.4: StatusofMPCsinvariousStates

S.No. NameofState MetropolitanCity StatusofMPC

1. WestBengal Kolkata Constituted

2. Maharashtra Mumbai Constituted

3. Maharashtra Nagpur Constituted

4. Maharashtra Pune Constituted

5. AndhraPradesh Hyderabad Atinitialstageofconstitution.

6. Karnataka Bengaluru Atinitialstageofconstitution.

7. MadhyaPradesh Bhopal Necessarylegislationisyettobepassed

8 UttarPradesh Kanpur StateGovernmentisconsideringtoissueanotificationunderSection57AofUPMunicipalCorporationsAct,1959forconstitutionofMPC

9. Gujarat Ahmedabad Tobeconstituted

10. Rajasthan Jaipur Tobeconstituted

11. Haryana Faridabad ConstitutedSource:IIPA

AspertheIIPAReport,theStatesarereluctanttoexpeditefollowupwithregardtoimplementationoftheconstitutionalprovisionsandmostofthemarelaggingbehindin the preparation ofMetropolitan Development Plan. Some of the reasons for notoperationalizingtheprovisionsoftheConstitutionalAmendmentActmaybe: ThepreparationofMetropolitanDevelopmentPlanisaprofessionally ledspatial

exercise and is not mere consolidation of the sectoral plans. The MPCs lackadequate/requisiteprofessionalcapacitiestoprepareit.

Lackof technicalexpertise in theMetropolitan Planning Committee or lack ofdirections/guidanceforconstitutingthesame.

Prior to preparing a Metropolitan Development Plan (MDP), it is imperative todelineate the metropolitan region based on certain criteria. Barring a fewmegacitieslikeKolkata,Mumbai,Chennai,HyderabadandBengaluru,noneoftheothermetropolitancitieshavedelineatedtheirrespectivemetropolitanregions.

For preparing Metropolitan Development Plan, a multi disciplinary teamcomprising of Town & Country Planners as an urban planner and/or regionalplanner,environmentalplanner,transportplannersandinfrastructureplannerasthecoreteamandateamofexpertsasperrequirementofthestudyisessentiallyamultidisciplinaryexercise.

Lack ofwill among the State Governments to take action for delineating themetropolitanareaaswellaspreparingtheplanforthesame.



Lackof incentives/initiatives for taking appropriate action for preparation ofMetropolitan Development Plan whichmay not be the priority for some of theStateGovernments.

AsperNIUAstudy,inKarnataka,KeralaandTamilNadu,DPCshavebeenconstitutedandtechnicallytheyarefunctioning.However,itislearntthatinKarnatakatheyhavenotbeenfunctioningasexpected.IncaseofMadhyaPradesh,itislearntthatDPChasno executive powers. In Chhattisgarh, the DPCs are not functioning at all and nomeetingsofDPCsarebeingheld.Infact,KeralaistheonlystateinthesouthwhereDPCsareactiveandfunctional.

It isapparentthatmanystatesareyettointegrate74thCAAintermsofconstitutingDPC and MPC as a part of decentralized planning process in order to address theissues at all levels. Report of the Working Group on Urban Strategic Planningprepared by MoUD, has also emphasized a major thrust to Regional and UrbanPlanningandpreparationofDistrict,MetropolitanandCitySpatialandDevelopmentPlansthroughstrategicguidelinesandfinancialsupport.

1.4. Recommendations

Forpromotionofstrongerpublicprivatepartnership,itisessentialtoimplement73rdand 74th CAA. Quality of development largely depends upon how direct and freeparticipationisincorporatedfordevelopmentprojectsinlocalareas,thisrequirementis almostessential. Further,Guidelines recommendreviewand revisionofRegionalPlans and Development Plans every 5 years. This review is critical mechanism forguidingdevelopmentmeaningfullyandcanonlybedonethroughdirectinvolvementoflocalcommunities(theirrepresentatives),concernedlocalauthoritiesandexperts.ThereforeURDPFIGuidelinesrecommendsthatStatesshouldimplementthe73rdand74thCAAattheearliest.Alllegalandadministrativehurdlesinimplementationshouldbeaddressedandactionsshouldbetaken.SomeStateshavealreadyshownexamplesin this regard. For implementation of the provisions of 73rd and 74th CAA, therecommendationsontheexistingsetupofDevelopmentAuthoritiesareasunder:

a) TheexistingStateRegional andTownPlanningBoard, constitutedunderStateTownPlanningActmaycontinue.

b) The currentplanning role and functionofMetropolitanRegionalPlanningandDevelopmentAuthoritiesandBoardsconstitutedforplanninganddevelopmentof metropolitan regions may be in conflict with the role and functions ofMetropolitan Planning Committee (MPC) when constituted as mandatoryrequirementoftheprovisionsofthe74thCAA.Consideringthisandalsothatanestablishedinstitutionneednotbedemolished,itissuggestedthatthesebodiesbereorganisedtoserveasMPCitselforalternativelyserveastechnicalarmofMPC.TheKolkataMPCmodelisgiveninSection4.5.1ofvolume1.



c) The Area Planning and Development Authorities constituted to prepare andenforcedevelopmentplansofurbancentresundertheStateTownandCountryPlanning Act or other Actsmay have a conflict of role and functionswith theUrbanLocalAuthoritiesconstitutedundermodifiedStateMunicipalitiesAct.

d) Itissuggestedthat,takingintoconsiderationthespiritof74thCAA,thesebodiesshouldbemergedorworkastechnicalwingsoftheMPCandDPCwhereverthecasemaybe.Administrativeamalgamationprocessshouldbeeffectivelydecidedbythestategovernments.

e) Theexistingsinglefunctionboards/undertakingslikeHousingBoard,ElectricityBoard, Refuse Collection and Disposal Board, Transport Corporation/Undertaking, which were constituted under various Acts for the purpose ofdischarging the specifically assigned function,may continue, if so required bythecouncilofthelocalauthority.

f) Training programmes for awareness building about development process andrelatedissuesamongtheelectedrepresentativesisimportant.Suchprogrammesshould be conducted by the state governments with the help of T&CPDepartmentandoutsideexperts.

g) Extra attention shall be paid on the development and administration of periurban areas through local selfgovernments so that ground developments ofouter fringes of large settlements are consistent with proposals of planningactivities.

TheConstitution(73rd&74thAmendment)Act,1992isappendedwithitswebURLinAppendixO'ofVolumeIIB.


TheRighttoFairCompensationandTransparencyinLandAcquisitionRehabilitation&ResettlementAct,2013

2 The Right to Fair Compensation andTransparency in Land AcquisitionRehabilitation&ResettlementAct,2013

2.1. BasisofthenewAct

The Land Acquisition Act of 1894 was created with the purpose of facilitatingacquisition of privately held land by the government for public purposes. LandAcquisition plainly means the acquisition of land for some public purpose by agovernment agency from individual landowners, as authorised by the law, afterpaying a governmentfixed compensation to cover losses incurred by landownersfromsurrenderingtheirlandtotheconcernedgovernmentagency.

Over a period of time numerous issueswere highlighted in the 1894 Act, such as;cumbersome and costly procedure delaying the land acquisition, determination ofpublic purpose contestable at law, property valuation techniques were flawedresulting in a heavy strain on public finances and restrictions on the scale ofdevelopmentandredevelopmentproject. Itwasalsoargued that landwasacquiredfornumberofprojectswithnopublicpurposeattached,asinthecaseofSEZs,atwellbelowthemarketvalueof theproperties.Additionally,relocationandrehabilitationoflandownersdisplacedbytheactionsoftheAct,wasnotcoveredcomprehensivelyandadequately.

It is for these andother reasons that government proposed to replace the saidActwith a New Act The Right to Fair Compensation and Transparency in LandAcquisition, Rehabilitation and Resettlement Act, 2013 (effective from 1stJanuary2014).

ThisLawwasproposedduetothefollowingbasicreasons: PublicconcernonlandacquisitionissuesandabsenceofNationallawtoprovide

for the Rehabilitation and Resettlement (R&R) and compensation forloss oflivelihoods.

MultipleamendmentsweremadetotheoriginalAct,butprincipallawcontinuedtobethesamei.e.theLandAcquisitionAct,1894whichwasanoutdatedLaw.

Need for balance was felt for addressing concerns of farmers and those whoselivelihoodsweredependentonthelandbeingacquiredaswellasfacilitatinglandacquisitionforindustrialization,infrastructureandurbanization.

2.2. KeyFeatures

Salient features of The Right to Fair Compensation and Transparency in LandAcquisition,RehabilitationandResettlementAct,2013,areasfollowing:


TheRFCLARRAct,2013TheRighttoFairCompensationandTransparencyinLandAcquisitionRehabilitation&ResettlementAct,2013

Asthetitleof thesaidActsuggests, it favoursfaircompensationratherthanfastacquisitionofland.Minimumcompensationforlandacquisition isdetailedoutintheActandIndianstatesareevenempoweredtoprovidebenefitsandsafeguardsthatgooverandabovetheprovisionsofthislawtotheaffectedfamily.

Affectedfamilieshavebeendefinedaslandownersandlivelihoodlosers. Safeguardforfoodsecurityhasbeenincludedbystatingthatmulticropirrigated

landwillbeacquiredonlyas lastresortunderexceptionalcircumstances.Still, ifsuch areas are acquired, equivalent area of culturable wasteland is to bedeveloped foragriculturalpurposesoranamountequivalent to thevalueof thelandacquiredshallbedepositedwiththeappropriategovernmentforinvestmentinagricultureforenhancingfoodsecurity.

Minimum rehabilitation and resettlement (R&R) entitlements package has beenintroduced.AffectedfamilieswillhavechoiceofavailingoptionsgivenintheAct.

Specialprovisions,inadditiontotheR&Rpackage,havebeengivenforSCs/STs. Role ofPanchayatiRajInstitutions especiallyGramSabhas has been enhanced in

theAct.ConsentofGramSabhaismandatoryforacquisitioninScheduledArea. Special Provisions have been provided to the farmers like, farm land will be

acquiredonlywhennounutilisedlandisavailable,enhancescompensation,priorconsent of land losers, increased share in sale of acquired land and exemptionfrom income tax and from stamp duty, damage to crops will be included incompensation price, 20% of the developed land (if land was acquired forurbanizationpurpose)willbeofferedtothefarmers.

UnderthenewAct,landcanbereturnedtooriginalownersiftheStatesodecides,with the condition that land is not used within 5 years in accordance with thepurposeforwhichitwasacquired.

RoleoftheDistrictCollectorhasbeenreducedinthenewActascomparedtotheold one, where collector had complete authority to decide what activityconstituted public purpose. Under thenew law, these roles of the collector arenot prescribed. Under the old Act, collector could decide what quantum ofcompensationcouldbepaid to thosedisplacedwhile thenew lawhasa formulafordecidingthequantumofcompensation.

InthenewAct,benefitsfortenantsandsharecroppershavebeenintroduced.Thelaw covers all tenants and sharecroppers, artisans; who will not just bear therehabilitation and resettlement benefits but will also have a share in thecompensation.

In the Resettlement area, 25 infrastructural amenities have to be provided tominimise the impact of relocation. Few of such amenities are roads, properdrainage and sanitation, safe drinkingwater, grazing land, fair price shops, postoffices,storagefacility,transportfacility,burialorcremationgroundetcetera.

TheprovisionoftheNewLawhasbeenmadecompliantwithotherlawssuchas;The Panchayats Act, 1996, The Schedule Tribes and Other Traditional ForestDwellersAct,2006andlandtransferregulationsinScheduleVarea.Thisacthas


TheRighttoFairCompensationandTransparencyinLandAcquisitionRehabilitation&ResettlementAct,2013

gone one step further by providing consent of GramSabhas rather than justconsultationasintheabovementionedActs.

Diversesafeguardshavebeenprovidedagainstindiscriminateacquisitionofland.Suchas,socialimpactassessmenthasbeenmademandatoryexceptforirrigationprojectsandithastobecompletedwithin6months.Useofacquiredlandcannotbechangedfromthepurposespecified inthe landuseplansubmittedat timeoflandacquisition.

TransparencyprovisionshavebeenprovidedinAct,fewofwhichare,GramSabhahastobeconsultedinSocialImpactAssessment(SIA)process,SIAdocumenttobemadeavailableforpublicscrutiny,alldocumentsmandatorytobemadeavailableinthepublicdomainandonthewebsiteetcetera.

TimelineshavebeenspecifiedinActtomaketheprocessoflandacquisitiontimebound. Likecompensationhastobegivenwithinaperiodofthreemonthsfromthe date of the award.Monetary R&R entitlements are to be providedwithin aperiodofsixmonthsfromthedateoftheaward.

ProvisionsoftheNewLawdonotapplytotheactivitiescoveredunderother13Government of India Lawswhich permits land acquisition for specific purposes(like, legislations relating to National Defence, National Highway, and Railway).Though the provisions of the New Law relating to compensation, rehabilitationandresettlementwillapplybyanotificationoftheCentreGovernment.

TheRighttoFairCompensationandTransparencyinLandAcquisition,Rehabilitationand Resettlement Act, 2013 is a legislation that regulates land acquisition andprovideslaiddownrulesforgrantingcompensation,rehabilitationandresettlementtotheaffectedpersons.TheActhasprovisionstoprovidefaircompensationtothosewhose land is acquired permanently or temporarily, brings transparency to theprocessofacquisitionoflandtosetupfactoriesorbuildings,infrastructuralprojectsandassuresrehabilitationof thoseaffected.TheActestablishesregulations for landacquisition as a part of India's massive industrialization driven by publicprivatepartnership.

TheRighttoFairCompensationandTransparencyinLandAcquisition,RehabilitationandResettlementAct,2013isappendedwithwebURLinAppendixOofVolumeIIB.


TheRFCLARRAct,2013TheRighttoFairCompensationandTransparencyinLandAcquisitionRehabilitation&ResettlementAct,2013

Thispageisintentionallyleftblank.


ModelRegionalandTownPlanningandDevelopmentLaw,1985

3 Model Regional and Town Planning andDevelopmentLaw,1985

3.1. Keyfeatures

TownandCountryPlanningOrganisation(TCPO) formulated theModelTownandCountryPlanningLawintheyear1960.ThismodelActwasrevisedbyTCPOinyear1985 as Model Regional and Town Planning and Development Law to enact acomprehensiveurbanandregionalplanninglegislationinalltheStatesandUTs.Itis in the form of guidelines which ensures better overseeing and coordination ofplanning with implementation, so that a single agency can undertake both thesefunctions. In themodel, theplanninganddevelopmentauthority tobeconstitutedhasbeenequippedwithfullplanninganddevelopmentpowerstodischargethetaskofplanningandimplementation.

TheModelRegional andTownPlanningandDevelopmentLaw,1985 provides forthefollowing:

1) Constitution of State Regional and Town Planning Board by the StateGovernmentforthepurposeofadvisingonthedelineationoftheregionfortheplanneddevelopment,

2) Directing the preparation of metropolitan, regional and area plans by themetropolitan,regionalandareaplanninganddevelopmentauthorities,

3) Setting up of metropolitan, regional and area planning and developmentauthoritiesfordifferenturbanandruralareaswithintheStatetoundertakepreparationofdevelopmentplansandtoenforceandimplementthem,

4) Coordinating the planning and implementation of physical developmentprogrammes,

5) TheModelLawprovides3stepsfortheadministrationofthislaw,thestepsarefollowing:a) Preparationofexistinglandusemap,b) Preparation of an outline development plan and comprehensive

developmentplanandtheirenforcement,andc) Preparation of detailed schemes of development or redevelopment as

envisagedintheplansandtheirimplementation.

The Model Regional and Town Planning and Development Law was prepared in1985,almost30yearsago,sincethenmanylegislativeandideologicalchangeshavetakenplaceinthedevelopmentalapproachofGoI.Alsotoincorporatetheprovisionsof74thCAA,theModelRegionalandTownPlanningandDevelopmentLawrequiresa complete revision and restructuring. Accordingly, the suggested changes in theModellawaredescribedinthefollowingsections:



3.2. Suggestedmodificationsinthelaw Replacing old Land Acquisition Act with the LARR Act (2013): Land

Acquisition Act of 1894 is suggested to be replaced by The Right to FairCompensation and Transparency in Land Acquisition, Rehabilitation andResettlementAct,2013.

MandatoryImplementationof73rdand74thCAAs:ItshouldbemandatorybyallUrbanLocalBodies(ULBs),tofollow74thCAA,formakingULBsastrongandeffective body through devolution of power and functions. On the same line,KeralaTownandCountryPlanningDepartmentimplementedKeralaTownandCountryPlanningOrdinance2013,whichcameintoeffectfollowingthe73rdand74th amendments to the Constitution. The ordinance constitutes the DistrictPlanningCommittee(DPC)atdistrictlevelandMetropolitanPlanningCommittee(MPC)atMetropolitanlevel.In MPC/DPC, full time dedicated urban and regional professionals for betterassessment,preparationandexecutionorimplementationofplanatbothlevelsare required. In the DPC, an average of 1 Planner for 1 million populationissuggestedbytheTCPO,whileinMPC1TownPlannerisrequiredforpopulationof5lakh.

Interstate Planning provisions, organization structure, roles andresponsibilities

The main objective for setting up InterState Planning concept is to promoteeconomic growth and balanced development of the Region (two or more thantwostates)forprovidingsuitableinfrastructuraldevelopmentthroughinterrailandroadbasedtransportationnetworks,minimizingtheadverseenvironmentalimpact, developing selected urban settlements with urban infrastructurefacilities. In India a number of InterState planning organizations have beenestablishedtoachievetheabovesaidobjectives.

In 1985, Enactment of the National Capital Region Planning Board Act by theUnionParliament,with the concurrence of the participating States ofHaryana,RajasthanandUttarPradesh,NCRPlanningBoardwasconstituted.

Under section 8 of the NCRPB Act, the powers of the Board shall include thepowersto:

Call forreportsandinformation fromtheparticipatingStatesandtheUnionterritory with regard to preparation, enforcement and implementation ofFunctionalPlansandSubregionalPlans;

Ensure that thepreparation,enforcementand implementationof FunctionalPlan or SubRegional Plan, as the case may be, is in conformity with theRegionalPlan;

IndicatethestagesfortheimplementationoftheRegionalPlan;



Review the implementation of the Regional Plan, Functional Plan, SubRegionalPlanandProjectPlan;

Selectandapprovecomprehensiveprojects,callforprioritydevelopmentandprovidesuchassistancefortheimplementationofthoseprojectsastheBoardmaydeemfit;

Select,inconsultationwiththeStateGovernmentconcerned,anyurbanareas,outsidetheNationalCapitalRegionhavingregardto its location,populationand potential for growth, whichmay be developed in order to achieve theobjectivesoftheRegionalPlan;and

EntrusttotheCommitteesuchotherfunctionsasitmayconsidernecessarytocarryouttheprovisionsofthisAct.

SimilarinterstatedevelopmentregionsmaybenecessarytobeplannedinotherpartsofIndiaespeciallyinvolvingfastchangingurbanregionswhichfallinmorethanoneState.TheLawissuggestedtobemodifiedtoincludeprovisionsfornotonlyDPCandMPCbutalsoforinterstateauthoritiesasstatedabove.

Joint Area Committee: Kerala Town and Country Planning Ordinance,2013providesconstitutionofJointAreaCommitteeforanareaofmorethanoneMunicipalCorporation,MunicipalCouncil,TownPanchayatorVillagePanchayateitherinfullorinpart.Forthepurposeofplanningoftheareainwhichtheyarejointlyinterestedorforwhichtheyareresponsible.

Innovative Systems of Land Assembly: There are various techniques todevelop small or fragmented land parcels into usable land through transfer ofownership.SomeofthesetechniquesaresuggestedtobeincludedintheLaw. Town Planning Scheme: Town Planning Scheme has emerged as a

successfulmodeloflanddevelopment;itissuggestedtoincludetheprovisionintheLaw.TheMaharashtraRegionalandTownPlanning(MRTP)Act,1966,TheGujaratTownPlanningandUrbanDevelopmentAct(GTPUDA),1976andnow Kerala Town and Country Planning Ordinance, 2013, have includedprovisionsforTownPlanningScheme.

LandPoolingandDevelopmentSchemes2:Land Pooling scheme aims toprevent, selling of land without the owners consent. Under Delhi LandPoolingPolicy,landownerscansurrendertheirlandholdingintothecentralpoolandbestakeholdertothedevelopmentproposedintheirland.Oncethelandispooled,thelandownerwouldgetbackcertainamountof landoftheirtotallandsurrenderedlandasdevelopableland.

Transferable Development Rights (TDR), TDR is a technique of landdevelopment which separates the development potential of a particular

2Source: Master Plan of Delhi, 2021.



parceloflandfromandallowsitsuseelsewherewithinthedefinedzonesofthe city.TDR is takenaway from the zoneand it is tradable. TheLaw shalldefine itsuseasa technique forredevelopmentandreconstructionof innercityzones.

AccommodationReservation:TheconceptofAccommodationReservationallows the land owners to develop the sites reserved for an amenity in thedevelopment plan using full permissible FSI/FAR on the plot subject byagreeing to entrust andhandover the built up area of such amenity to thelocal authority free of all encumbrances and accept the full FSI/FAR ascompensation in lieu thereof.ThismechanismhasconsiderablyrelievedthelocalauthoritiesfromincurringhugeexpensesforthepurposeofacquisitionofsuchlandsandcanbeconsideredintheLawwithcertainconditions.

EncouragingPrivateand JointSectorParticipation: The current policies ofeconomic liberalization in the country and the emphasis on private sectorparticipationinplanninganddevelopmentprocessshouldbeprovidedwiththeappropriate legal support. It is suggested that private sector participation incertain sectors shall be allowed and encouraged by the law in light of the FDIpolicy. Local Self Government has to consult nongovernmental institutions,organizationsandprofessionalbodiesinthepreparationofPerspectivePlanfortheDistrictandMetropolitanArea.

TimeLine:RegionalPlansandDevelopmentPlansshouldbe for20yearswiththe provisions for review / revision every 5 years to be coterminuswith theStateFiveYearplan.Differentplanssuggested: RegionalPlan(Interstate/Interdistrict/district) DevelopmentPlan(planningareaincludingtheMunicipalarea)

Currentlydifferenttimelineisfollowedforreviewofregionalandcityormetropolitandevelopmentplansbydifferentstateswhichshouldbestandardisedasfaraspossible.

TamilNadu,MizoramandGujarathaveprovisionofrevisingDevelopmentalPlanonce in5yearsofplanpreparation.Karnatakaprovides for revisiononly afterten years and Maharashtra in twenty years. Himachal Pradesh provides forrevision but gives no minimum time frame. Bihar has no provision of plansrevision.

State Regulatory Body The UrbanRegional Planning& DevelopmentRegulatory Authority (Town Planning Board/ Town Planning Committee(Kerala))suggested by the URDPFI Guidelines, 2014 to be established by StateGovernmentsthroughstatutorysupport.TheroleofthisStateBodywouldbetoregulate and monitor the functioning of Development bodies. The regulatory



authorityatthestatelevelmayfunctionasanappellantauthoritytoaddressthegrievancesredressal.Itshallalsolistofauthoritiesandrolesandresponsibilitiestoavoidmultiplicity.Regulatorybodyshould review thesmooth functioningoftheagenciestoovercomethemultiplicity,duplicationorgaps.TheestablishmentofthisauthoritywouldrequireamendmentofStateTownandCountryPlanningActs.

This State level apex regulatory body for appropriate functioning should bechaired, preferably, by the Chief Minister of the state with other membersdecidedbytheStategovernment.TheroleofStateauthoritytobereferredfromVolumeI(section3.6).

DisasterRiskManagement:Disaster riskmanagementwith specific referencetoclimatechangeimpactandappropriateresponseforitshouldbeincorporatedasanimportantcomponentofplanformulationwithfocusonbetterenergyuse,watermanagement,greenbalanceandreductionofvulnerabilitytodisaster.

CityInfrastructureFund:ACity Infrastructure Fund should be established aturban centers by the Executive order of State Government. It should be otherthan the Budget fund and dedicated only for the Urban and RegionalInfrastructure development. The possible sources of funding for theinfrastructure fundmustbedefinedandstreamlined inconsultationwithStateFinanceCommissionbytheStateGovernment.

Planning for Green Cities: In view of the need for accelerated urbandevelopment and to guide cities to ecofriendly, Green city developmentapproach should be given priority especially in green field development.PlanningforsuchcitiesshouldbeencouragedandprovisionsforthesametobeincludedintheAct.

ThechangesintheModelLawshouldbeconsideredbasedontheabovementionedpoints,provisionfromvariousStateTownandCountryPlanningActsanddetailedstudybyTownandCountryPlanningOrganisation.TheModelRegionalandTownPlanningandDevelopmentLaw,1985isappendedwithitswebURLinAppendixOofVolumeIIB.


ModelMunicipalLaw,2003

4 ModelMunicipalLaw,20034.1. Keyfeatures

TheModelMunicipal Law, 2003preparedbyMinistry ofUrbanDevelopment andPovertyAlleviation(theerstwhileundividedMinistry)isaninitiativetoimplementtheprovisionsofthe74thCAAforempowermentofurbanlocalbodiesandprovidelegislativeframeworkforimplementationoftheUrbanReformAgenda.TheLawisexpectedtoenhancethecapacitiesofULBstoleveragepublicfundsfordevelopmentofurbansectorandprovideanenvironmentsothaturbanlocalbodiescanplaytheirrolemoreeffectivelyandensurebetterservicedelivery.

ThesalientfeaturesoftheModelMunicipalLaware:

1) Constitution of theMunicipal Area based on population, classification of thethreelevelsofMunicipalitiesanditsconstitution.

2) AlltheexecutiveactionsoftheEmpoweredStandingCommitteeshallbetakeninthenameofMunicipality.

3) IndirectelectionofMayororChairpersonforafiveyearterm.

4) ConstitutionofWardsandWardCommittees.

5) State Level Municipal Establishment Audit Commission to review the staffstatus.

6) ClassificationofMunicipalfunctionsinto:

a) Coremunicipal functions includingwatersupply,drainageand sewerage,solidwastemanagement,roads,etcetera;

b) FunctionsassignedbyGovernment3;and

c) Otherfunctions.

7) State government can dissolve an elected body if it shows default inperformance or abuse of powers, after giving due notice and review by acommittee.

8) ProvisiontoimplementrecommendationsoftheStateFinanceCommission.

9) Municipalfundwithseparateaccountsforvariousservices.

10) PreparationofbudgetestimationofMunicipality.

11) Preparation of State Municipal Accounting Manual and appointment of theMunicipalAccountsCommittee.

12) StateGovernmentcanappointaprofessionalcharteredaccountantasauditor.ULBstopreparebalancesheetoftheassetsandliabilitiesannually.

13) Municipalitiestoprepareaninventoryofpropertieseachyear.3The functions assigned by Central/ State Government may be undertaken subject to the underwriting of the costs by the

concerned levels of government.


StateLevelLegalFrameworkModelMunicipalLaw,2003

14) State Government to frame a Comprehensive Debt Limitation Policy layingdown the general principles of borrowings of loans with regard toMunicipalitiesfinancialcapacity.

15) Powerofmunicipalitiestoraiseloans.

16) Internal revenuesofMunicipality andpower to levy taxes, user charges, feesandfines,developmentcharge,advertisement,othertaxesandtolls.

17) EnableparticipationofprivatesectorandNGOsinconstruction,financinganddeliveryofservicesincludingbillingandcollection.

18) Enable setting up of State Municipal Regulatory Commission that willdetermine user charges and standard of services suggest avenues of privatesectorparticipationandensurefairdealtocitizens.

19) Agendaforurbanenvironmentmanagement.Municipalitiestoprepareannualenvironmentalandsubsidyreports

20) Provides for the representationofMunicipalities inDistrictandMetropolitanPlanningCommittees.

21) Provision for improvement in existing area such as removal of congestedbuildings

22) Constitution of Municipal Streets Technical Committee and other aspectsrelatedtostreets

23) UniquePremisesNumberingSystem

24) Provisionsforbuildings

25) MunicipalLicenses

26) MaintenanceofStatistics

27) ManagementofDisasters

4.2. SuggestedchangesintheLaw

TheModelMunicipalLaw(MML)wasintroducedmorethanadecadeback;itis pertinent that the provisions of MML need to be updated to bring it inharmonywith therecentdevelopments in theMunicipalLaw. MoUDstudyundertaken by NUIA to review the MML, suggested various points forrevision of the provisions given in MML, based on their status ofimplementation.

TherearevariousprovisionsinthecurrentscenariothatarevitalforMMLtobring it in line with the new developments in municipal governance.Provisions like reservations of seats forWomen/SC/ST/BC inMunicipality,Local Bodies/Municipal Ombudsman, functions and duties of Area SabhaRepresentative,disclosureofvariousdocumentsrelatingtomunicipalaffairs,accrual based double entry system of accounts, defining functions and



responsibilitiesofDPCsandMPCsaresuggestedtobedetailedoutundertheMML.

The above mentioned NUIA study has also highlighted lack of criticalprovisions in MML, such as, municipal ombudsman, accrual based doubleentry system; public disclosure of budget, financial and accounts ofmunicipality; public private partnership (PPP) in the delivery of basicservicesofthemunicipality,andinperformanceofinfrastructureprojects.

4.2.1. Clause(s)forinclusioninthepresentMML

Definitions of area sabha and area sabha representatives shall bedefinedintheMML.

MML to be theModel Law for States to follow. It should clearly have aclause defining Annual Rateable Value / Capital Value / Unit AreaValue/AnnualLettingValue.

DefinitionofLocalBodiesorMunicipalOmbudsman/underjurisdictionof LokAyukta should be defined. According to 13th Central FinanceCommission, the state government must put in place a system ofindependent localbodyOmbudsman. However, it is left to theStates todecidewhichsystemtofollow.

Provision on reservation: Article 243 T of the Constitution of Indiaprovides for reservation of women, SC, ST, and BC. Since MMLsupplementtheaimsof74thCAA,itshouldbeincorporatedinMML.

Provisions relating to Local Bodies/Municipal Ombudsman: The SecondAdministrative Reforms Commission and the 13th Finance Commission haverecommendedthataseparateOmbudsmanforlocalbodiesbeconstitutedtolookinto the complaints of corruption and maladministration against thefunctionariesoflocalbodies.ThismayalsoincludeStaffsreviewontheNonEthicpractisesandprovisionforthe protection of whistle blowers. In case, the municipality opts to create apositionoflocalbodiesombudsman,itisnecessarytoaddprovisionsrelatingtoappointment, functions,powers, termofoffice,conditionsofservice,procedureofdisposalofcomplaintfiledtohisofficeetcetera.

Formulationofcitizenscharterprovision for Citizens Charter formulationunder Action Plan for Effective and Responsive Government (1997) to besuggested in theMML. Citizen's Charter and Grievance Redressal Bill, 2011 isalso under consideration in Parliament, whichwill support the amendment inMML.The role of the charter tobewell defined includingGrievanceRedressalother thanthosehandledbyLocalBodies/MunicipalOmbudsmanand focusondevelopmentofegovernancemechanismsforPublicaccountability,Dutiesofthestaff,TransparencyandPeoplesparticipation.



Accrual Based Double Entry Accounting System: Currently double entryaccounting system is followed by most of the Municipalities in the country.However, asper themandateof the JnNURM,accrualbasedaccounting systemshould be followed as it estimates the future generation of revenue andexpenditureoftheMunicipality.MMLdoesnotmentionthisprovision.Sinceitis one of the important reforms undertaken through JnNURM scheme, it isimportantthatacorrespondingprovisionisincorporatedintheMML.

Action taken report: The Municipal Authorities must send an action takenreport to the State Government on the defects detected by the governmentauditor.ItisimperativethatthisprovisionshouldbeincludedinMMLforotherstatestofollow.

Establishment of Escrow Account for any particular project: An escrowaccountforparticularprojectshelpsthemunicipalitytomaintaintheiraccountsclear in terms of borrowing and in terms of future borrowings needs of themunicipality. It will increase transparency for the lenders/stakeholders.Considering few states have already established an escrow account, suchprovisionmaybeaddedtoMMLasanoptionforthemunicipalitiesthatwishtooptforit.

PropertyTaxassessment:MMLshouldhaveaprovision regardingmannerofassessment of property tax. Municipal Actsmust specifywhether an assesseewould file a Selfassessment or a bill would be presented to him by themunicipality.

FunctionsandResponsibilitiesofDPC&MPC: MML only speaks ofconstitutionofthesecommittees,whichdoesnotsufficethepurpose.Therefore,it is suggested to define the provisions relating to composition, role andresponsibilitiesofMPC/DPCaswellastheirjurisdictionsasenvisagedundertheconstitutional provisions including specifying the organization which willfunctionasthetechnicalandadministrativesecretariatoftheMPC/DPC.

Fire hazard and disaster risk response: One of the conditions of the 13thCentralFinanceCommissionwasthatallthemunicipalcorporationsmustputinplaceafirehazardresponseandmitigationplanformillionpluscities.Therefore,MMLshouldcontainaprovisionwithrespecttofirehazardresponseplan,ifnotforalltheDisastermanagements.URDPFIrecommendsfirehazarddisasterriskresponsetobeincorporatedfocusingonreductionofvulnerability.

State Regulatory Body The Urban and Regional Development RegulatoryAuthority suggested by to be established by State Governments throughstatutory support should play a crucial role to regulate and monitor thefunctioning of Development bodies. Grievances redressal system, roles andresponsibilities of authorities to be integratedwith the State Regulatory Body.Therefore, functions of StateRegulatoryBody to be incorporated in theModel Municipal Law.



4.2.2. AdditionalProvisions

4.2.2.1. StatePropertyTaxBoard/Act

The13thCentralFinanceCommissionrecommendedforaStatePropertyTaxBoardtoput inplacean independentandtransparentprocedure forassessingpropertytax.

MMLprovides for a provisionmentioning the State Property Tax Board,however, it does not clearly state the provisions relating to itsestablishment, composition, functions, powers, accounts, budget, etc. Itcouldbeausefulprovisionsincepropertytaxationisanimportantsourceofrevenueandthiswouldhelpimprovethevaluationofthepropertyinasystematicandtransparentway.

4.2.2.2. StateFinanceCommission

The 13th Central Finance Commission suggests that the StatesGovernments must prescribe through an Act qualification of personseligible for appointment of the State Finance Commission (SFC).Therefore,MMLissuggestedtoprescribeaprovisionforestablishmentofpermanentSFCcell.

4.2.2.3. NotificationwithRespecttoServiceLevels

The 13th Central Finance Commission suggests that State Governmentmustnotifyorcauseallmunicipalitiestonotifyattheendofthefiscalyear the service standards for four service sectors (Water Supply, StormWaterDrainage,SewerageandSWM).Forasteptowardsthecomplianceofsuchreforms,MMLmustcontainthisprovision.

4.2.2.4. HumanResourcesPolicyReform

Servicesprovidedby localbodies forSWM,Sewage,WaterChannelsandElectricityplaysacrucialrole inmaintainingenvironmentalstandardsofcityandaswellqualityoflifeofresidents.Municipallawlooksatonlytheperformance of this function. However, themost neglected part of thisfunctionisthehealthhazardsoftheemployees,whoaredirectlyrelatedtoperform this function.Formitigatinghealthhazards to the employeesofthe Municipality dealing in the works relating to sewerage, garbagecollection,etc.Municipalityshouldprovidepropergeartoitsemployeeslike uniforms, gloves, gum boots, masks, firstaid kit etc. Even thoughhuman contact cannotbe avoided in theperformanceof these tasks, theonly minimal requirement of proper equipment and gear should be



providedtoemployees.Inclusionofthisprovisionisimportanttorealizethevisionofsmart,sustainableandresponsiblecities.

4.2.2.5. Exemptionsasincentive

It is essential to provide for the extent of Exemption in the propertytaxation on defined conditions. Property tax exemption can be providedfor following or implementing certain desirable projects like, Greendevelopment, Rainwater harvesting, solar power installation in buildingandGreenbuildingetc.asanincentive.AspertheNUIAstudy,MunicipalActsofBiharhasnoprovisionmentioningtheexemptionsfrompropertytaxation,butmanyotherstateshavealreadyprovidedforexemptions.ItissuggestedthatMMLprovideforanysuchprovision.

4.2.2.6. RainWaterHarvestingMandatory

It is one of the optional reforms under JnNURM. Looking at the urbangrowth, rainwaterharvesting shouldbeamandatoryprovision inall theActstorechargegroundwaterandaugmentoverallwateravailability.Suchprovisions in the Municipal Act may ensure its application in the LocalAreaPlansandSpecialPurposePlan.ItissuggestedtoincludethisintheMMLandplaceswhereitcanbemademandatorywithinthebuildingbyelawsdependinguponenforcementcapabilitiesandlocalconditions.

TheModelMunicipalLaw,2003 is appendedwithURL inAppendixOofVolumeIIB.


StateLevelLegalFrameworkComparativeAnalysisOverview

5 State Level Legal Framework ComparativeAnalysisOverview

Urban and regional planning legislation controls the planning and developmentactivity in a State. Some states have comprehensive Town and Country Planninglegislation which provides for urban planning and development from a regionalperspective beyond the city limits and coordinated with the overall framework ofeconomicdevelopment,prioritiesandresourceavailability.SomeofthesestatesareGoa, Gujarat, Himachal Pradesh, Karnataka, Kerala, Nagaland, Orissa, Punjab,Rajasthan,TripuraandUttarPradesh.

Town and Country Planning Organisation (TCPO) with the direction from MoUDconducted brainstorming session throughout the country during 2008 to 2010.Further, during the formulation of URDPFI Guidelines, various workshops wereconducted in both the studies to share knowledge on urban development practicesand development policies / strategies of respective States and recommendations /advicewereprovidedtoalltheStates.TCPOhasanalysedthestatusofT&CplanningActs of the States. An overview of the States in terms of implementation of T&CPlanning Acts in their jurisdiction is given in Table no. 5.1. This table has beenupdatedasperthelatestinformationavailableason31stJuly2013fromTCPOwithrespecttothecitieswhohavepreparedStatutoryMasterPlans.



Table5.1: ComparisonofTownandCountryPlanningActs&implementationacrossNation

Sr.No NameofState

WhetherTownandCountryPlanningDept.

Exists

WhetherT&CPActenacted

NoofTownsasperCensus2011

No.ofCensusTowns

No.ofStatutoryTowns(ULBs)

StatutoryTowns(%)

No.ofMasterPlanApproved

No.ofMasterPlansUnderPreparation

TownshavingMasterPlan(%)

1 AndhraPradesh DirectorateofTown&CountryPlanning

AndhraPradeshTownandCountryPlanningAct,1920

353 228 125 35 89 60 25

2 ArunachalPradesh

DepartmentofTown&CountryPlanning

ArunachalPradeshUrbanandCountryPlanningAct,2007

27 1 26 96 1 3 4

3 Assam DirectorateofTown&CountryPlanning

AssamTownandCountryPlanningAct,1959

214 126 88 41 36 42 17

4 Bihar DepartmentofTown&CountryPlanning

BiharUrbanandRegionalPlanningandDevelopmentAct,2011

199 60 139 70 9 20 1

5 Chhattisgarh DepartmentofTown&CountryPlanning

ChhattisgarhTownandCountryPlanningAct,1973

182 14 168 92 28 64 15

6 Goa DepartmentofTown&CountryPlanning

GoaTownandCountryPlanningAct,1974

70 56 14 20 13 19

7 Gujarat DepartmentofTown&CountryPlanning

GujaratTownPlanning&UrbanDevelopmentAct,1976

348 153 195 56 125 14 33




Sr.No NameofState


Exists



No.ofCensusTowns


StatutoryTowns(%)




8 Haryana DepartmentofTown&CountryPlanning

HaryanaDevelopment&RegulationofUrbanAreasAct,1975.

154 74 80 52 66 20

9 HimachalPradesh


HimachalPradeshTownandCountryPlanningAct,1970

59 3 56 95 19 0 31

10 Jammu&Kashmir


Jammu&KashmirDevelopmentAct,1970

122 36 86 70 2 2

11 Jharkhand DepartmentofTown&CountryPlanning

JharkhandTownPlanningandImprovementTrustAct,1954(adoptedfromBihar)

228 188 40 18 5 2

12 Karnataka DepartmentofTown&CountryPlanning

KarnatakaTownandCountryPlanningAct,1961

347 127 220 63 159 7 46

13 Kerala DepartmentofTown&CountryPlanning

KeralaTownPlanningAct,1939

520 461 59 11 49 15 9

14 MadhyaPradesh


MadhyaPradeshNagarThathaGramNiveshNiyam,1975

476 112 364 76 93 63 18

15 Maharashtra DirectorateofTownPlanning&

MaharashtraRegionalandTown

534 278 256 48 275 51




Sr.No NameofState


Exists



No.ofCensusTowns


StatutoryTowns(%)




Valuation PlanningAct,1966

16 Manipur DepartmentofTownandCountryPlanning

ManipurTownandCountryPlanningAct,1975

51 23 28 55 19 0 37

17 Meghalaya DirectorateofUrbanAffairs

MeghalayaTownandCountryPlanningAct,1973

22 12 10 45 15 4 68

18 Mizoram DepartmentofTownandCountryPlanning

MizoramUrban&RegionalDevelopmentAct,1990

23 0 23 100 15 65

19 Nagaland DepartmentofTownandCountryPlanning

NagalandTownandCountryPlanningAct,1980

26 7 19 73 10 1 38

20 Orissa DepartmentofTownandCountryPlanning

OrissatownPlanningandImprovementTrustAct,1956

223 116 107 48 72 22 32

21 Punjab DepartmentofTownandCountryPlanning

PunjabRegionalTownPlanningandDevelopmentAct,1995

217 74 143 66 32 27 6

22 Rajasthan DepartmentofTownandCountryPlanning

RajasthanUrbanImprovementAct,1959

297 112 185 62 183 46 62

23 Sikkim NoindependentTownandCountryPlanning

TheSikkimUrbanandRegionalPlanningand

9 1 8 89 4 17 44




Sr.No NameofState


Exists



No.ofCensusTowns


StatutoryTowns(%)




Department,howeverTownPlanningcellexistsunderUrbanDevelopmentandHousing

DevelopmentAct,1998

24 TamilNadu DepartmentofTownandCountryPlanning

TamilNaduTownandCountryPlanningAct,1971

1097 376 721 66 123 50 11

25 Tripura DepartmentofTownandCountryPlanning

TripuraTownandCountryPlanningAct,1975

42 26 16 38 13 2

26 UttarPradesh DepartmentofTownandCountryPlanning

UttarPradeshUrbanPlanningandDevelopmentAct,1973

915 267 648 71 207 25 23

27 Uttarakhand DepartmentofTownandCountryPlanning

UttarakhandUrbanPlanningandDevelopmentAct,1973

115 41 74 64 42 0 37

28 WestBengal TownandCountryPlanningCellfunctioningunderUrbanDevelopmentDepartment

WestBengalTownandCountry(PlanningandDevelopment)Act,1979

909 780 129 14 126 85 5

29 A&NIslands. NoindependentTownandCountry

Andaman&NicobarTownand

5 4 1 20 1 Notreported 20




Sr.No NameofState


Exists



No.ofCensusTowns


StatutoryTowns(%)




PlanningDepartmentexistsasondate.AsmallTownandCountryPlanningunitisworkingundertheCommcumSecy(PWD/UD)&ChiefEngraspartofAPWD.

CountryPlanningRegulations,1994

30 Chandigarh DepartmentofUrbanPlanning

TheCapitalofPunjab(DevelopmentandRegulation)Act,1952

6 5 1 17 2 0

31 Delhi TownPlanningDepartment,MCD

DelhiDevelopmentAct,1957

113 110 3 3 1 0 1

32 Dadra&NagarHaveli

DepartmentofTownandCountryPlanning

Dadra&NagarHaveliTownandCountryPlanningAct,1974

6 5 1 17 6 0 100

33 Daman&Diu DepartmentofTownandCountryPlanning

Daman&DiuTownandCountryPlanningAct,1974

8 6 2 25 1 0 13




Sr.No NameofState


Exists



No.ofCensusTowns


StatutoryTowns(%)




34 Lakshadweep NoTownandCountryPlanningDepartment,HowevertheworksarehandedbyPWD

Yettobeenacted 6 6 0 0 0

35 Puducherry DepartmentofTownandCountryPlanning

PuducherryTownandCountryPlanningAct,1969

10 4 6 60 4 0 40

GrandTotal 7933 3892 4041 51 1843 567 23

Source:TCPO,MoUD2011

As reflected in table above, barring UT of Lakshadweep, all States and UTs of India have Town and Country Planning Acts andDepartments. Ithasbeennoticed thatall thenewStates includingChhattisgarh, JharkhandandUttarakhandhave theirownTownandCountryPlanningActs.However,theseActsaresameasenactedbytheiroriginalStatefromwheretheywerebifurcated.

Thereare fewStateswhichhaveenactedorare inprocess toenactnew lawswithrespect toUrbanDevelopmentandTownPlanning.BiharhasenactedBiharUrbanPlanningandDevelopmentAct,2012.

BasedontheunderstandingfromexistingUDPFIguidelines,itisessentialtoidentifygapsandbestpracticeswhichareadoptedbyStateswithrespecttoUrbanandRegionalDevelopment.ComparisonofsomeoftheStatesascasestudieshasbeenundertakenforthereviewT&CPActsofcountry.TheStateshavebeenchoseninsuchamannersothatitcoversalmostalltheregion,i.e.North,West,SouthandEast,ofthecountry.Moreover,forreviewpurpose,variousparameterssuchasRegionalDevelopment,LandAcquisitionMechanism,affirmationwith74thCAA,institutionalsetupsareconsidered.TheseStatesare:



North:HimachalPradesh South:TamilNaduandKarnataka East:BiharandMizoram West:MaharashtraandGujarat

Table5.2: ComparisonofTownandCountryPlanningActsofsevenStates

S.No. Criteria TamilNadu KarnatakaHimachalPradesh Mizoram Bihar Maharashtra Gujarat

1 StatePlanningCommittee/Board/Authority

ProvisionofStatePlanningboard

ProvisionofStatePlanningBoard

DirectorateofTownandCountryPlanning,headedbytheDirector,appointedbyState

MizoramUrbanPlanningandDevelopmentBoard/committee

BiharUrbanPlanningandDevelopmentBoardTheGovernmentmayalsoconstituteUrbanArtsandHeritageCommission

NoprovisionforStateLevelPlanningCommitteeorBoardorAuthority.

NoprovisionforStateLevelPlanningCommitteeorBoardorAuthority.

2 FunctionsOfStatePlanningBoard

Toguide,directandassisttheplanningauthorities AdvisetheStateGovernmentonplanningmatters DirectthepreparationofDevelopmentPlansbyPlanningAuthorities PrepareandfurnishreportsrelatingtotheworkingT&CAct

NotApplicable NotIllustrated ToprepareandenforceIntegratedInterimDevelopmentPlan,DistrictorRegionalDevelopmentPlan,RuralorSectoralPlan,UrbanDevelopmentPlanandAction ToprepareDevelopmentScheme ToprepareRegionaland

Toguide,directandassistthePlanningAuthority AdviseonthedelineationofthePlanningArea(s)anddirectthepreparationofDevelopmentPlan Undertake,assistandadviseonthecoordinationofplanningandimplementationofphysicaldevelopmentprogrammes Directthe

NotApplicable NotApplicable





RuralCentreDevelopmentPlanandintegratingUrbanandRuralDevelopmentschemesandDevelopmentPlanspreparedbytheMunicipalitiesorVillageCouncilsoranyLocalauthorityandassisttheStateGovernmenttocoordinatedevelopmentactivitiesatalllevelswithinthePlanningAreaorRegion

preparationsofoneormoreRegionalDevelopmentPlan,RegionalTransportationPlans,TownDevelopmentPlans DirectthepreparationsofoneormoreregionalnaturalresourcesandenvironmentalConservationPlans

3 MetropolitanDevelopment/PlanningAuthority/Committee

EstablishmentofChennaiMetropolitanDevelopmentAuthority

FunctionsandPowers:

ToprepareaMasterPlanoradetailed

SeparateProvisioninBangaloreMetropolitanRegionDevelopmentAuthorityAct,1985

Noprovisiontoconstitute

NoprovisiontoconstituteMPC

TheactdoesnthaveprovisionforconstitutingtheMetropolitanPlanningAuthorityorCommittee,howeveritdefinesthefunctionofMPCtoprepareDevelopmentPlanforMetropolitanArea

Noprovision,howeveraseparateactmakesmandatorytoconstituteMumbaiMetropolitanRegionalDevelopmentAuthorityunder

Noprovisiontoconstitute





DevelopmentPlanoranewTownDevelopmentPlan ToprepareanewTownDevelopmentPlanfortheareaconcernedtosecurethelayingoutanddevelopmentofthenewtowninaccordancewiththenewTownDevelopmentPlan

BombayMetropolitanRegionDevelopmentAuthorityAct,1974

4 PlanningArea RegionalPlanningareabasedonPopulationandtypeofdevelopment LocalPlanningAreabasedonPopulationandtypeofdevelopmentandprovisioninRegionalPlan NewTownAreabasedonPopulationand

StatehasgotpowertodeclareanyareaintheStatetobeaLocalPlanningArea.

StatetodeclarePlanningarea

StategovernmentinconsultationwithBoardorCommitteemaydeclarethelimitofTownorUrbanareaintheState

StateonadviceofBoardmaydeclareorwithdrawtheregionsorareas,includingaMetropolitanAreaorareafordevelopmentofnewtownsintheStatetobeaPlanningArea

Criteriafordelineationofplanningareaisnotdescribed

DevelopmentareaandUrbanDevelopmentareatobedeclaredbyStateGovernment





typeofdevelopmentandprovisionasnewtowninRegionalPlan

5 PlanningAuthorities

PlanningAuthoritiestobeconstitutedatdifferentlevelas: TheRegionalPlanningAuthority TheLocalPlanningAuthority TheNewTownDevelopmentAuthority

TheStateGovernmentinconsultationwiththeBoardmayconstitutePlanningAuthorityafterdeclarationofplanningarea

TownandCountryPlanningAuthoritytoconstitutebytheState SpecialAreaDevelopmentAuthoritytobeestablishedforspecialareasasidentifiedbyStateorinRegionalPlan

DistrictPlanningandDevelopmentCommittee CityorTownPlanningandDevelopmentCommittee

StatetoconstitutethePlanningAuthorityanditshallbeknownbysuchnameastheGovernmentmaydetermine

RegionalPlanningBoard SpecialPlanningAuthority NewTownDevelopmentAuthority

AreaDevelopmentAuthority UrbanDevelopmentAuthority

6 FunctionandpowersofPlanningAuthority

TheRegionalPlanningAuthorityto: carryoutasurveyandpreparereportsonthesurveys prepareanexistinglandusemap

PlanningAuthority(asmentionedinsectionabove)PreparationofamapshowingpresentlanduseTheplanningauthorityto: Prepare

SpecialAreaDevelopmentAuthority ToprepareDevelopmentPlanforthespecialarea; toimplementtheDevelopmentPlan

FunctionandpowersofPlanningAuthorityorboardaredescribed(sameasinrow2)

PlanningAuthorityshallcarryoutsuchfunctionsandexercisesuchpowersasmaybeprescribedbytheRules PlanningAuthoritymaycarryoutorcausetobecarriedoutsurveysofitsPlanningAreaandto

RegionalPlanningBoardto: carryoutasurveyoftheregion,andpreparereportsonthesurveyssocarriedout preparean

AreaDevelopmentAuthoritytoundertake: PreparationofDevelopmentPlans preparationofTownPlanning





LocalPlanningAuthorityto:

carryoutasurveyoftheLocalPlanningArea preparereportsonthesurveys prepareaMasterPlanandaDetailedDevelopmentPlan

NewTownDevelopmentAuthorityto:

prepareanewTownDevelopmentPlan carryoutbuildingandotheroperations

OutlineDevelopmentPlanpriortothepreparationofMasterPlan CarryoutthesurveyassoonastheplanningareadeclaresPreparationofMasterPlan. PrepareTownPlanningSchemeImplementationofplan,OncetheMasterPlanisapprovedbytheState,

toprovideforthemunicipalmanagementofthespecial tootherwiseperformallsuchfunctionswithregardtothespecialareaasspecifiedbyStateGovernmentfromtimetotime.

preparereportorreportsofsuchsurveys EveryplanningauthoritywillprepareapresentLandUseMapandaLandUseRegister PlanningAuthoritytoprepareaDevelopmentPlanafterdeclarationofPlanningArea

existinglandusemapforthepurposeofpreparingaRegionalPlan; prepareaRegionalplan

SpecialPlanningAuthorityto:

carryoutasurveyandprepareanexistinglandusemapofthearea,andprepareandpublishthedraftproposalsforthelands

SchemestocarryoutsurveysinordertoprepareDevelopmentPlans controlthedevelopmentactivities

UrbanDevelopmentAuthoritytoundertake:

PreparationofDevelopmentPlans preparationofTownPlanningSchemes carryoutsurveysinordertoprepareDevelopmentPlans controlthedevelopmentactivities guide,direct





andassistthelocalauthorities

7 PreparationofPlans

Regional MasterPlan NewTownDevelopmentPlan DetailedDevelopmentplan

MasterPlan RegionalPlan DevelopmentPlanandSectoralPlan

DistrictorRegionalDevelopmentPlan, UrbanDevelopmentPlan, RuralorSectoralPlan, ActionPlan

DevelopmentPlan MetropolitanareaDevelopmentplan

RegionalPlans DevelopmentPlan PreparationofDevelopmentPlanforadditionalarea

DevelopmentPlan

8 Scope/Objectives/ContentsofPlans

Objectivesofeachtypeofplanisdefined

ContentsofMasterPlanareelaborated

ContentsofDevelopmentPlanandSectoralPlanareelaborated

Contentsofeachtypeofplanasmentionedinactareelaborated

ScopeandContentsofDevelopmentPlanareillustrated

ContentsofRegionalPlanandDevelopmentPlanareelaborated

ContentsforDraftDevelopmentPlanareelaborated

9 Affirmationwith74thAmendmentAct

DPCandMPCarenotincorporated

DPCandMPCarenotincorporated

DPCandMPCarenotincorporated,

StatetoconstituteDistrictPlanningandDevelopmentCommitteeandCityorTownPlanningandDevelopmentCommittee.ChairmanofthecommitteetobeappointedbyStatewhereasothermemberstobe

NoprovisionforconstitutingDPCandMPC.HoweveritelaboratessomefunctionsofMPC

NoprovisionforDPCandMPC.

NoprovisionforMPCandDPC





selectedatdistrictlevelandcitylevelincompliancewiththeAct.

10 ProvisionforRegionalPlanning

ProvisionofRegionalPlanningtobedonebyRegionalPlanningAuthority

NoprovisionforRegionalPlanning

ProvisionforpreparationofRegionalPlan

ProvisionforpreparationofDistrictorRegionalPlan

TheActdoesnthavespecificprovisionforRegionalDevelopmentPlans,howeveritdefinesbasicscopeofDevelopmentPlanswhichalsoincludeRegionalPlans

TheActhasprovisionforRegionalPlanningBoardandelaboratesitsfunctionwithrespecttoregionaldevelopment

NoprovisionforRegionalPlanning.ThoughtheActprovidesforDevelopmentAreahoweveritdoesnotelaborateonthespatialextentandcriteriafordeclarationofsucharea.

11 TownPlanning/DevelopmentScheme

DetailedTownPlanningSchemespreparedundertheTamilNaduTownPlanningAct,1920,

PlanningAuthority,forthepurposeofimplementingtheproposals,maymakeoneormoretownplanningschemesfortheareawithinitsjurisdiction

TheTownandCountryDevelopmentAuthoritymay,atanytime,declareitsintentiontoprepareatownDevelopmentSchemeandprovisionsaredefinetoincorporateinTownPlanning

ForthepurposeofimplementingtheproposalscontainedintheDevelopmentPlan,prepareoneormoreDevelopmentSchemeforfiveyearsorforoneyear.DevelopmentSchemetobe

TheplanningauthoritymayinviteareaDevelopmentSchemesfromdevelopers.AnAreaDevelopmentSchememaybemadeinrespectofanylandwhichis:(a)intheprocessofdevelopment,(b)likelytobeusedforanydevelopmentincludingbuilding

APlanningAuthoritymayforthepurposeofimplementingtheproposalsinthefinalDevelopmentPlan,prepareoneormoreTownPlanningSchemesfortheareawithinitsjurisdiction.Contentsofdraft

AppropriateauthoritymaymakeoneormoreTownPlanningSchemefortherespectivedevelopmentarea.TownPlanningSchememaybemadeinrespectofany




S.No. Criteria TamilNadu KarnatakaHimachalPradesh Mizoram Bihar Maharashtra Gujaratscheme.Statehaspowertogivedirectionstoframe/modifyorrevokethescheme

developedinrespectof:(a)inthecourseofdevelopment,(b)likelytobeusedforbuildingpurposesor(c)alreadybuiltup.

purposes,or(c)alreadybuiltupon.

schemeiselaborated

landinthecourseofdevelopment,likelytobeusedforbuildingpurposesandalreadybuiltupon.Contentofdraftschemearedefinedintheact.

12 PeriodicRevisionofPlans

ProvisionofreviewingtheRegionalPlanoncein10yearsandtheMasterPlanmaybereviewedonceinin5years.

AtleastonceineverytenyearsfromthedateonwhichtheMasterPlanhascomeintoforce

ProvisionforreviewthePlansatanytime;howeverminimumtimeframehasnotprovided.

DistrictorRegionalDevelopmentPlanshallbereviewedatleastonceinevery10yearswhereas,InterimDevelopmentPlan,UrbanDevelopmentPlanandRuralorSectorPlanshallbereviewedatleastonceinevery5years

Noprovision TheStateGovernmentcanreviseatanytimeafteraRegionalplanhascomeintooperation,butnotearlierthantenyears TherevisionshallbeatleastonceintwentyyearsfromthedateonwhichaDevelopmentPlanhascomeintooperation,

Atleastonceintenyears. AreaDevelopmentAuthorityshallreviseDevelopmentPlan





13 LandAssembly/Mechanism/Acquisition

PowertoacquirelandundertheLandAcquisitionAct Acquisitionoflandbyagreement,howeverifthevalueofsuchlandexceedsfiftythousandrupees,appropriatePlanningAuthorityshallnotenterintosuchagreementwithoutpreviousapprovaloftheGovernment

PowertoacquirelandundertheLandAcquisitionActor Acquisitionoflandbyagreement,

PowertoacquirelandundertheLandAcquisitionActor Acquisitionoflandbyagreement,

Landcanbeacquiredbyfollowingways:

compulsorily; byagreement;or bytakinganapplicationtothecollectorforacquiringsuchlandundertheLandAcquisitionAct,1894

AcquisitionofLandbyWayof

TransferableDevelopmentRight AccommodationReservation PurchaseofLandbywayofNegotiatedSettlement PowertoAcquirelandundertheLandAcquisitionAct,1894oranyotherLandAcquisitionAct

AcquisitionofLandbyWayof

TransferableDevelopmentRight AccommodationReservation PurchaseofLandbywayofNegotiatedSettlementPowertoAcquirelandundertheLandAcquisitionAct,1894oranyotherLandAcquisitionAct

AcquisitionofLandeitherbyagreementorUnderLandAcquisitionAct1894byAreaDevelopmentAuthority

Source:RespectiveActs



VariouscriteriaareidentifiedformakingthecomparisonsofT&CPActoftheStates.IthasbeenobservedinthetableabovethatthereisnoprovisionofconstitutingStatelevelPlanningBoardorCommittee in theStatesofGujaratandMaharashtra.But inBihar, the recently enacted Urban Planning and Development Act in 2012 givesprovision to constituteUrban Planning andDevelopment Board at State level. ThisActalsorecommendsconstitutingtheUrbanArtsandHeritageCommissioninorderto (a) preserve and conserve archaeological and historical sites, (b) restore andconserve urban design in planning area. Karnataka and Himachal Pradesh haveprovisionofconstitutingtheStateLevelPlanningBoards;howeverfunctionsoftheseboardsarenotspecifiedintheirrespectiveT&CPActs.

TheStatemaynotifyPlanningAreainconsultationwithPlanningBoards.However,inmanyStatessuchasKarnataka,HimachalPradesh,MaharashtraandGujarat,theStateGovernmentwithoutanyconsultationwith thePlanningBoardscannotifyPlanningorDevelopmentAreafortheregion.TamilNaduistheonlyStatewhichelaboratesthecriteria for delineating the Planning Boundary whereas other States have notconsideredanysuchcriteriaintheirrespectiveActs.

TheroleofPlanningBoardissignificantforconstitutingthePlanningAuthoritiesforNotifiedPlanningArea. Ithasbeenobserved thateveryStatehas itsownhierarchyfor constituting Planning authorities / Committees for the planning area. States ofTamil Nadu andMaharashtra have a provision to constitute the Regional PlanningAuthority,whereasinGujarat,AreaDevelopmentAuthorityandUrbanDevelopmentAuthorityaretobeconstitutedfordevelopmentofsettlements.Though,theextentofDevelopment Area is not defined in the Gujarat TP&UD Act which may createconfusion in deciding the regions boundary. The constitution of District PlanningCommittee(DPC) isalmost leftbyeveryStateexceptMizoram.TheMizoramUrbanandRegionalDevelopmentAct,makesmandatorytoconstituteDPCandCityorTownPlanning Committee in accordance with 74th CAA, however function and power ofDPCarenotspecified.MizoramUrbanandRegionalDevelopmentAct,haveprovisionfor constituting Local Authorities such as Village Councils and Municipalities toparticipateinplanningprocess.

Onthesameline,TamilNadu,KarnatakaandMaharashtrahavealsomadeaprovisionwith respect to constitution of Metropolitan Development Authority. However thisprovisionislimitedtoChennai,BangaloreandMumbai.AllotherMetropolitancitiesin theseStatessuchasPune,NagpurandMangaloreetceterahavebeen ignored. IthasbeennoticedthatStatessuchasMaharashtraandHimachalPradeshhavespecialprovision to constitute Special Area Development/Planning Authority in order todevelopNotifiedArea.

In order to prepare Plans at different levels,most of the States have provision forDevelopmentPlanorMasterPlanwhichistobedevelopedforNotifiedPlanningArea,

46 URDPFIGuidelines,2014. Volume IIA. MinistryofUrbanDevelopment

StateLevelLegalFrameworkComparativeAnalysis

whereasTamilNaduandMaharashtrahavespecificprovisiontoformulateRegionalPlansinidentifiedregion.

TownPlanningorDevelopmentscheme isan important tool todevelop land;everyStatehasmadeprovisiontodevelopPlanning/DevelopmentScheme.Landacquisitionis an important aspect for implementation of plans. States empowers PlanningAuthorities through T&CP Acts to acquire land, however mechanism for landacquisitionvaryamongst States. In everyState, landacquisition ismentioned tobeeither as per Land Acquisition Act, 1894 or through agreement with the owner.MaharashtraandBiharhaveadditionalmechanismi.e.TownPlanningSchemesandTransferofDevelopmentRighttoacquirelandfordevelopmentpurposes.

5.1. Maharashtra

InMaharashtra,TownPlanningisastatutoryfunctionofalltheMunicipalAuthoritieseven before the Constitution (74th) Amendment Act. In view of this, no separateprovisionwasconsiderednecessarybytheStateGovernmenttoamendthe1966Act.ThisAct,amendedupto5thAugust1992wasconsideredacomprehensiveAct.TheAct provided that the Development Plan prepared by Planning Authority shallindicatethemanneroflanduse,allocationoflandforvariouspurposes,andprescribethe time period for steps in the plan preparation process with extended time ifrequired.

TheMaharashtra Regional and Town Planning (MRTP) Act has given emphasis onRegional Planning.

Documents

Urdpfi Guidelines vol2