BDA Planning Document, Summaries of Urban planning

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• 1 INTRODUCTION TABLE OF CONTENTS
  • 1.1 An Overview
  • 1.2 Evolution of Bengaluru............................................................................................................
  • 1.3 Administrative Jurisdiction and Extent of BMA
  • 1.4 Master Plan Preparation Process
    • 1.4.1 Provisions under the KTCP Act
    • 1.4.2 Methodology
  • 1.5 BDA͛s ApproaĐh to ‘MP -2031
  • 1.6 Assumptions for Successful Implementation of the Master Plan
  • 1.7 Structure of the Master Plan Document.................................................................................
• 2 REVIEW OF RMP-2015 AND STRUCTURE PLAN FOR BMR
  • 2.1 Review of the Revised Master Plan-2015
    • 2.1.1 Structure of RMP-2015
    • 2.1.2 Population Projections and Density Considerations
    • 2.1.3 Directive Principles and Vision
    • 2.1.4 Governing Concept
    • 2.1.5 Emerging Growth Directions
    • 2.1.6 Regional Planning Framework of RMP 2015: BMR SP
    • 2.1.7 Ecology and Environment
    • 2.1.8 Preservation of Agricultural Area......................................................................................
    • 2.1.9 Economy............................................................................................................................
    • 2.1.10 Traffic and Transportation
    • 2.1.11 Landuse and Zoning
    • 2.1.12 Mixed land use
    • 2.1.13 Zoning Regulations
  • 2.2 Regional Planning Framework: BMR - REVISED STRUCTURE PLAN –
    • 2.2.1 Spatial Population Allocation under BMR RSP
    • 2.2.2 Governing Principles of RSP
  • 2.3 RMP 2031: Accounting for heterogeneity in the BMA
• 3 RMP 2031: VISION, GOALS AND OBJECTIVES ii
  • 3.1 Stakeholder Engagement
  • 3.2 BMR -RSP 2031 Guiding Principles
  • 3.3 RMP 2031: Guiding Principles and Vision
• 4 Scenarios and Strategies
  • 4.1 Scenario Development for RMP 2031...................................................................................
  • 4.2 Containment Scenario
  • 4.3 Corridor Driven Growth Scenario
  • 4.4 Differential Strategy Scenario
  • 4.5 Evaluation and Selection of the Scenario for RMP
  • 4.6 Detailing of RMP-2031
• Figure 1: Administrative Jurisdictions under BMA.................................................................................. LIST OF FIGURES
• Figure 2: Master Plan Process for preparation of RMP
• Figure 3: Map of Existing Land Use
• Figure 4: Proposed Landuse at Koramangala- Sony World Junction in RMP 2015...............................
• Figure 5: Existing Landuse – 2015 at Koramangala Sony World Junction
• Figure 6: Three Concentric Rings in BMA as recognised by the RMP
• Figure 7: Clusters and Nodes in RSP
• Figure 8: Three Distinct Development Zones within BMA
• Figure 9: Pointers received from various Stakeholder Groups
• Figure 10: Guiding Principles BMR RSP
• Figure 11: Guiding Principles RMP
• Figure 12: Planning Philosophy for RMP-2031
• Figure 13: Scenario Evaluation Methodology

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ABBREVIATIONS

BBMP Bruhat Bengaluru Mahanagara Pallike BDA Bangalore Development Authority BMA Bengaluru Metropolitan Area BMR Bengaluru Metropolitan Region GP Gram Panchayat PRR Peripheral Ring Road RMP Revised Master Plan RSP Revised Structure Plan RWH Rain Water Harvesting STP Sewage Treatment Plant SWM Solid Waste Management

1 INTRODUCTION

1.1 An Overview

Bengaluru, a multifunctional Metropolitan and the capital city of Karnataka, is one of the fastest groǁiŶg Đities iŶ IŶdia aŶd is ďraŶded as the ͚ “iliĐoŶ Vall eLJ of IŶdia͛ for spearheadiŶg the growth of Information and Communication Technology (ICT) based industries. Bangalore has become a cosmopolitan city attracting people and business alike, within India and iŶterŶatioŶallLJ aŶd has ďeĐoŵe a sLJŵďol of IŶdia͛s iŶtegratioŶ ǁith the gloďal eĐoŶoŵLJ. With the growth of IT and industries in other sectors (e.g. textiles, light engineering and defence) and the onset of economic liberalization since the early 1990s, Bangalore has taken a lead in service-based industries fuelling growth of the city both economically and spatially.

The ĐitLJ has groǁŶ rapidlLJ iŶ the past feǁ deĐades froŵ peŶsioŶer͛s paradise to the information technology capital of India. The presence of IT/ITES industries, large public sector undertakings like BEL, BEML and HAL, along with major hardware garment industries has led to in-migration and rapid growth of the city. Bengaluru has also emerged as the start-up hub of the nation, bringing innovation and contribution to GDP, diversity of economy and adding to employment opportunities. The city is also a major education hub with a very large number of higher educational institutions in and around the city.

Bengaluru, with its strong economic base, contributes about 1.9% to IŶdia͛s GDP (2013-14) aŶd ϯϰ% to KarŶataka͛s G“DP ;ϮϬϭϯ -14). The Metropolis houses about 40% of urban population of Karnataka and has witnessed 42% growth in population during the decade 2001-2011, thus playing the role of a primate city in the State. In context of the State, the populatioŶ iŶ the ĐitLJ of BeŶgaluru aĐĐouŶts for ŶearlLJ ϭϰ.ϲϬ% of the “tate͛s populatioŶ concentrated in only about 0.64% of land area.

The Local Planning Area (LPA) of Bangalore Development Authority (BDA) spreads over an area of about 1219.50 Sq Km (area under LPA of BDA as per RMP-2015) with a population of ~85 Lakh as per Census 2011. The LPA of BDA comprises of the major part of the Bruhat Bangalore Mahanagara Palike^1 (excluding area under BMICAPA) and 251 villages in the periphery of BBMP. The city has experienced an unprecedented population growth translating into varied challenges of urbanisation and urban management in general and urban land management in particular. BDA entrusted with the responsibility of preparing and revising the Master Plan as a Planning Authority for the Local Planning Area of BDA under the KTCP Act, 1961 has undertaken the revision of the RMP-2015 for the horizon period of 2031 (herein referred as RMP-2031).

(^1) BBMP-constituted on 16-01-2007 and currently comprises of 198 wards

1.2 Evolution of Bengaluru

The growth of Bengaluru may be traced through three distinct periods – Pre-colonial era, colonial era and post-independence era. The city took shape as a fortified settlement under the ruler of the Vijaynagara state- Kempegowda, when he established the mud fort in the year 1537. The markets in the central area like Chikkapete were established during this time. By 17th century, Bengaluru had become the commercial capital of Tipu Sultan who ruled from Mysore. The 18th century saw the advent of British in Bengaluru and the start of the colonial era. The cantonment was established, separated from the market areas by large open spaces, now Cubbon Park and Lalbagh. Employment increased and people started settling in the urban fringes outside the cantonment.

A City Improvement trust was formed in 1945 and the Bangalore City Corporation was eventually established in 1949. The post-independence planning history for the city of Bengaluru has a spanning more than sixty five years. The first step towards planning for development of Bengaluru city was initiated with the Outline Development Plan, prepared ďLJ the BaŶgalore DeǀelopŵeŶt Coŵŵittee iŶ ϭ9ϱϮ. The ĐitLJ͛s plaŶŶiŶg got stat utorLJ ďaĐkiŶg in 1961, when KTCP Act 1961 was enacted.

The history of post-independence planned development in Bangalore is highlighted below:

 1952 – Bangalore Development Committee founded  1961- KTCP Act enacted  1963- ODP submitted to Govt.  1965- KTCP Act enforced  1972- ODP approved  1976- BDA constituted  1984- 1st^ CDP for 1985 approved  1995- 2nd^ CDP/RMP for 2005 approved  2007- 3rd^ CDP/RMP for 2015 approved

To achieve coordinated development activities of the city, the Government of Karnataka (GoK) constituted the Bangalore Development Authority (BDA) in 1976 under separate statute, viz. the Bangalore Development Authority Act, 1976 with the functions related to planning, development, enforcement and implementation of the schemes coming under one agency. BDA is the planning and development authority for the LPA. Under the aegis of BDA there have been continuous efforts to plan and manage the growth of city through three Plans viz. Comprehensive Development Plans (CDP) 1984, CDP 1995 and Revised Master Plan 2015 for its LPA. Currently operational Revised Master Plan (RMP) 2015 was notified by Government vide G.O. No UDD 540 BEM AA SE 2004, dated 22.06.2007 for the

A pertinent issue that merits mention here is that of the Conurbation limits as defined by the RMP 2015. The RMP 2015 earmarks a conurbation area of about 804 SqKm^2 which covers major parts of BBMP (excluding the area of BBMP under BMICAPA and certain part of the peripheral wards as the process of inclusion of 110 villages and the surrounding CMCs and TMCs to the erstwhile BMP to constitute BBMP was an ongoing exercise) and part/ complete area of over 100 villages out of 251 villages iŶ the BMA Liŵits. The LPA͛s of the BDA and the BMICAPA (which include BBMP and the surrounding 251 villages) overlap administratively and spatially.

As per the amendment in the boundaries of the BMA, the total area of the two LPAs under the BMA is 1294 SqKm^3. Of this, 87.03 SqKm comprises the jurisdiction of LPA of BMICAPA and the remaining 1206.97 SqKm comprises the jurisdictions of the LPA of BDA.^4 Of this total area under the two LPAs, approximately 708 Sq Km falls under BBMP and the remaining 586 Sq Km falls under the 251 villages.

Figure 1: Administrative Jurisdictions under BMA

(^2) The area conurbation is sum total of the areas under different land uses under Planning District Maps (^3) deletion of 8 villages from the LPA of BDA and addition to Hoskote LPA (^4) As per the existing Master Plan for the LPA for BMICAPA for 2021 of the 87.03 Sq Km, approximately 25.69 Sq Km falling within the BBMP and the remaining 52.88 Sq Km is outside BBMP. The BMICAPA master plan when revised should be revised not just within the purview of the BMR RSP 2031, but should also align with the provisions of the RMP 2031.

The administrative and spatial overlapping of the LPAs of the BMICAPA and the BDA point to an intrinsic interconnection between these, one that by the legal statute is governed and administered separately. This, in effect, adds a layer of complexity to the plan evolution, enforcement and implementation.

1.4 Master Plan Preparation Process

Planning is a continuous process that facilitates updating and revision of the existing Master Plan due to the ever changing dynamics of the city and its region. It also provides an opportunity to undertake mid-course corrections and incorporate policy changes, if any, arising out of the needs of the population and its activities. The Master Plan is formulated on the basis of certain assumptions related to the present administrative set up, growth rates, household size, present policies, orders and guidelines with respect to urban development, transportation planning etc., which are liable to be modified as per the State policies. The first Master Plan for Bengaluru was approved in 1984 and as per the Act has been revised periodically since then. The first revision of the master plan was the Revised Master Plan -1995, followed by the Revised Master Plan-2007 and the Revised Master Plan 2015 only RMP 2015. The Revised Master Plan for Bengaluru -2031 is the fourth such revision.

1.4.1 Provisions under the KTCP Act

The Master Plan for any local planning area in the State of Karnataka is prepared under the provisions of Section 9 of the Karnataka Town and Country Planning Act 1961 (KTCP Act, 1961). The Master Plan is to be revised once every ten years as per the provisions of Section 13D of the KTCP Act, 1961. The Master Plan for BMA (i.e. RMP 2015), prepared and approved on June 25, 2007 is currently in force.

As per Section 81B for the KTCP Act, 1961, the Bangalore Development Authority shall be the Local Planning Authority and BDA shall exercise the powers, perform the functions and discharge the duties under the provisions of the KTCP Act, 1961 as the Local Planning Authority for the Bengaluru Local Planning Area

1.4.2 Methodology

The Master plan preparation process began with the declaration of intent of revision of RMP

2015. This was followed by the preparation of Base Map and ELU map. While preparing the baseline scenario, public engagement was done through structured socio economic survey and general public meeting.

Large scale data was collected from various line departments and agencies, analysed the sectoral status was prepared. This included an analysis of the prevailing legal and statutory

Figure 2: Master Plan Process for preparation of RMP 2031

1.5 BDA͛s Approach to RMP-

The BDA has endeavoured to revise the Master Plan for Bengaluru for 2031 as a spatial- policy framework to guide the future growth of the city especially keeping the aspirations of the citizens.

The RMP-2031 also sought inputs from the key infrastructure and urban management agencies including BBMP, BMRCL, BWSSB, BESCOM, BMTC, KIADB etc and to the extent possible has integrated their requirements, especially those pertaining to land.

The BDA has paid special attention to the lessons learnt from the previous Master Plans in terms of balancing the growth through planning strategies and regulations focussing on four most critical issues of ecology and environment, traffic and transportation, optimal and efficient utilisation of land, and the affordable housing targeted towards better liveability for the city of Bengaluru.

1.6 Assumptions for Successful Implementation of the Master Plan

i. The Master Plan is formulated on certain assumptions related to the present administrative set up, growth rates, household size, current policies and guidelines with respect to urban development, transportation planning, environment etc. This Master Plan makes a sincere effort to capture the current policies in force for various subjects. ii. This Master PlaŶ has projeĐted the populatioŶ for ϮϬϯϭ ďased oŶ the preǀious deĐade͛s growth rate and trends. Therefore, any major policy change, decisions impacting the economic and physical growth of the state, region and the city may impact these projections. A continuous review and monitoring of the plan implementation would be taken up as an on-going process for any mid-term correction requirements, if any, during the horizon period in addition to the statutory requirements of revision every ten years. iii. This Master Plan seeks to frame policy and proposals based on the existing jurisdiction of BMA, expecting that all other authorities will follow its proposals and regulations accordingly. It is expected that the various authorities concerned would align their plans, projects, administrative and institutional arrangements and coordination and integration mechanisms with BMA and this Master Plan, keeping in view the overall development and management of the city. This Master Plan has made use of the existing secondary data and there may be some data that would have changed in due course of time and may continue to do so till the time the Master Plan is finally notified and the implementation commences. This Master Plan needs to be taken as a guiding plan for the regulation of development, however, specific studies and actions for detailed projects under various sectors may need to be taken up over the horizon period for the plan. iv. The Revised Master Plan has made efforts to minimize non-confirming land uses, certain uses which are already developed such as industrial or commercial units in the residential areas, etc would continue to exist and the transformation would happen as a part of the process, but further permissions shall keep a check over such non- conforming uses. v. The Master Plan has projected infrastructure requirements for public and semi-public uses and public utilities and designates certain land parcels for such purposes. While effort has been made to collect and collate and integrate as much sectoral data as possible, it is however the responsibility of the agencies concerned to get the land allotted from the revenue authorities/acquires the land. vi. “uĐĐess of Master PlaŶ depeŶds oŶ peoples͛ ǁill aŶd ǁilliŶgŶess to adhere to certain disciplines in the use of land, road and public spaces. The level of civic awareness in general with a long term perspective and proactive effort from the Government agencies will help implement the plan effectively.

2 REVIEW OF RMP-2015 AND STRUCTURE PLAN FOR BMR

A review of the RMP 2015, its objectives and key provisions including an understanding of the extent to which the plan has been enforced and implemented, constitutes the basis for the evolution of the RMP 2031. The following section presents certain aspects of master plan evolution, enforcement and implementation based on the RMP 2015 reports, maps and GIS database.

The review of RMP 2015 focusses on:

i. the contents of the RMP 2015, inclusive of its population projections, vision, strategies, major provisions and mandates; and, ii. the degree to which the plan has been enforced and implemented.

The latter is based on an understanding derived from an on ground assessment of the various proposals of the plan vis-à-vis their implementation based on the surveys and studies carried out by the Authority as part of the revision of RMP-2015 for evolving the Revised Master Plan for the horizon year 2031.

A detailed analysis of the RMP 2015, BMR SP 2011 (as the framework within which the RMP 2015 was prepared), the BMR RSP 2031 (the framework for the revision of the RMP 2015) constitutes the first step for the Authority to move forward towards revising RMP 2015.

2.1 Review of the Revised Master Plan-

2.1.1 Structure of RMP-

The RMP 2015, a statutory document, prepared in accordance with the provisions of KTCP Act, 1961 to promote and guide the growth of the BMA through a land use plan and zonal regulations, comprises of five volumes:

(a) Volume 1- Vision Document: This report covers the key principles of the Revised Master Plan 2015 and the Vision detailing the principles of macro zoning and proposals envisioning the city by 2015. (b) Volume 2- Proposed Land Use Maps at City and Planning District Levels (c) Volume 3- Zoning Regulations: The land use zonal regulations define the development control regulations with respect to the permissible activities and the FAR etc. (d) Volume 4- Planning District Report: The Planning District Report addresses all 47 planning districts and contains the analysis, observations and proposals for each area. The recommendations and proposals, covering land use and transportation along with identified projects are covered under this volume.

(e) Volume 5- Existing Land Use Maps: The existing land use maps for the year 2003 are provided in this volume

The review of RMP-2015 focuses primarily on the larger overarching proposals and mandates of the plan with regard to i) population projections and density considerations; ii) directive principles, concepts and emerging growth directions identified by the plan; iii) the policy frameworks as outlined in the BMR-SP 2011; iv) economic provisions, including proposals regarding job creation and the attendant transport and mobility directions; v) land use zoning and attendant regulations; and, vi) provisions regarding plan enforcement and implementations. The main objective of this review is to arrive at emerging imperatives that should guide the evolution, enforcement and implementation of the RMP 2031.

2.1.2 Population Projections and Density Considerations

The RMP 2015 projected the population for the BMA at 8.01, 8.8 and 9.96 million for 2011, 2015 and 2021 respectively. As against the projected population of 8.01, the BMA hosts a population of 9.04 million as per the 2011 census. It is therefore critical to understand the historical trends of population growth and other demographics not just in the city but also in the city-region, other factors, including those that are exogenous to the city and the region, likely to impact the population in the coming decade and a half. In other words, an immediate emerging imperative is to rationalise and arrive at a population projection that captures the trends while keeping in mind the demographic projections of the BMR-RSP 2031 which are largely for the region.

Given that the projections of the RMP 2015 are much below what is achieved in 2011 and that the projections of BMR RSP 2031 are based on RMP 2015 implies a re-look into the population projections of the BMR RSP 2031. Thus, the projections of the BMR RSP 2031 for the BMA have been analysed critically before using them as a guiding / policy framework for the RMP 2031 projections.

The overall density for 2015 with a projected population of 8.80 million spread across an area of 1219 Sq Km translate to a gross density of about 72 PPH at the BMA level. The extent of conurbation area of RMP 2015 measuring about 800 Sq Km translates to a gross density of about 100-110 PPH (considering 90-95% of the projected population of BMA within the conurbation limit). The density based on the residential area was estimated at 300 PPH under the RMP-2015. However, given the pace of development, these density stipulations are not likely to lead to dense compact development. Density stipulations have been re-looked into to achieve the optimal utilisation of developable land targeted toward the objective of compact city development.