Development Plan and Environment: A Case of Ahmedabad. A Master Dissertation by Rohit Nadkarni

30th June 2006
Development Plan and Environment:
A Case of Ahmedabad
(Final Report)
Guide:
Dr. Shrawan K. Acharya
Submitted by:
Rohit Nadkarni (EP 1004)
School of Planning
Centre for Environmental Planning & Technology University
K.L.Campus, University Road, Navrangpura, Ahmedabad – 380 009
Tel: 26302470, Fax: 26302075 email: planning_04@yahoogroups.com

ACKNOWLEDGEMENTS
I would like to express my heartiest thanks to the persons without help of whom it would never
become possible to accomplish this work.
First of all, I take this opportunity to express my deep gratitude to my guide Dr. Shrawan K.
Archarya, for the enthusiastic and motivating attitude and kind as well as keen interest he invoked
for the present study.
I am grateful to Dr. R. Parthasarathy, Chairman, Dissertation Committee and all faculty of School
of Planning, CEPT for giving valuable suggestion throughout the course of study.
I would also like to express my sincere thanks
I would also like to express my sincere thank to the following officials, offices and Individual for
helping me in their best possible capacities with access to information/data, which proved
invaluable in completing this study.
• Mr. Hansal Shukla, Town Planner, AUDA.
• Mr. H. N. Thakker, Deputy Town Planner, AUDA.
• Mr. N. M. Baleva, City Planner, AMC.
• Mr. R. J. Rawal, Planner, AMC.
• The Entire staff of AMC and AUDA.
I am very much thankful to my friends and colleagues Amit Mistry, Abhinav Garg, Vibhu Jain, Uvika
Gupta, Vishal Dubey, Atul Bhalodia and Dharmesh Katalia for their timely help and encouragement
during the course of the study and the great batch of 2004 School of Planning for their friendship
and all the good times in the last two years and for all that I have learnt from them. I would also
specially like to thanks my junior batch of 2005 School of Planning for their constant
encouragement and moral support during the course of the study.
Finally, I would like to express sincere thanks to my parents for their moral support and more
importantly in terms of their consistent hard work and commitment to provide me every possible
support for my education so that I can complete my studies without much of constraints.

UNDERTAKING
I, Rohit R Nadkarni, the author of the thesis titled
“Development Plan and Environment: A Case of Ahmedabad”,
hereby declare that this is an independent work of mine, carried out towards partial
fulfillment of the requirements for the award of Post-graduate Degree in Planning
with specialization in Environmental Planning at the School of Planning, Center for
Environmental Planning and Technology (C E P T University), Ahmedabad. This
work has not been submitted to any other institution for the award of any
Degree/Diploma.
Place: Ahmedabad Rohit R. Nadkarni
Date: 20th June 2006 Code No.: EP 1004

Development Plan and Environment: A Case of Ahmedabad
Rohit Nadkarni, EP1004, School of Planning, CEPT 1
Table of Content
Table of Content....................................................................................................................1
Abbreviations ........................................................................................................................4
List of Tables.........................................................................................................................5
List of Figures and Maps......................................................................................................5
Executive Summary ..............................................................................................................6
CChhaapptteerr 11.. IInnttrroodduuccttiioonn........................................................................................10
1.1.Introduction ...................................................................................................................10
1.2.Rationale........................................................................................................................10
1.3.Central Argument..........................................................................................................11
1.4.Research Questions......................................................................................................11
1.5.Aim and Objectives of the Study..................................................................................11
1.6.Study Area. ....................................................................................................................11
1.7.Scope and Limitation....................................................................................................11
1.8.Methodology..................................................................................................................12
1.9.Chapter Outline .............................................................................................................15
CChhaapptteerr 22.. UUrrbbaann PPllaannnniinngg aanndd EEnnvviirroonnmmeenntt aa HHiissttoorriiccaall RReevviieeww .................16
2.1.Defining Environment...................................................................................................16
2.2.Urban planning and environment- Acts and Regulations..........................................16
2.2.1.Indian Scenario ...............................................................................................................17
2.3.Summary........................................................................................................................24
CChhaapptteerr 33.. PPllaannnniinngg ffoorr UUrrbbaann DDeevveellooppmmeenntt ....................................................27
3.1.Planning instruments/ Plans ........................................................................................27
3.1.1.Other Planning Instruments/ Plans..................................................................................27
3.2.Development Plan .........................................................................................................29
3.2.1.Environment in Development Plan ..................................................................................29
3.2.2.Environmental Priority in Development Plan ..................................................................30
3.3.Environmental Impact Assessment (EIA)....................................................................31
3.4.Strategic Environmental Assessment (SEA) ..............................................................31
3.5.EIA vs. SEA....................................................................................................................32
3.6.Urban Planning in India and issues.............................................................................33
3.6.1.Urban Planning in India ...................................................................................................33
3.6.2.The 74th Constitutional Amendment Act 1992 (74th CAA) .............................................33
3.6.3.The Development Plan/ Master plan ...............................................................................34

3.6.4.Environment Problem in Urban Planning ........................................................................36
3.6.5.New Approach in Urban Planning ...................................................................................36
3.6.6.Cost of Planning..............................................................................................................37
3.7.Conclusion.....................................................................................................................37
CChhaapptteerr 44.. EEnnvviirroonnmmeenntt aanndd UUrrbbaann DDeevveellooppmmeenntt PPllaannss.......................................... 38
4.1.Introduction ...................................................................................................................38
4.2.London Plan 2004..........................................................................................................38
4.2.1.The Process for Preparing the Plan ................................................................................38
4.2.2.Time Influenced Change .................................................................................................39
4.2.3.Growth of London............................................................................................................40
4.2.4.Sustainable Development................................................................................................40
4.2.5.The Mayor’s Vision..........................................................................................................40
4.2.6.Vision to Objectives.........................................................................................................40
4.2.7.Forces Driving Change in London...................................................................................41
4.2.8.The Broad Sustainable Spatial Development Strategy....................................................41
4.2.9.Living in London ..............................................................................................................41
4.2.10.Promoting Environmental Industries..............................................................................41
4.2.11.Sustainable Transport in London...................................................................................42
4.2.12.Improving London’s Open Environment ........................................................................42
4.2.13.The Crosscutting Policies..............................................................................................42
4.2.14.Implementing the London Plan......................................................................................44
4.2.15.Monitoring and Review of this Plan ...............................................................................45
4.2.16.Environmental Consideration in London Plan................................................................45
4.3.The Case of Master Plan Delhi 2021 ............................................................................46
4.3.1.The Process of Preparing The Master Plan.....................................................................46
4.3.2.The Vision .......................................................................................................................48
4.3.3.Validity of Population Projections ....................................................................................48
4.3.4.Accommodating Population for 2021...............................................................................49
4.3.5.Hierarchy of Urban Development ....................................................................................49
4.3.6.Redevelopment of Existing Urban Area ..........................................................................49
4.3.7.Shelter.............................................................................................................................50
4.3.8.Trade and Commerce......................................................................................................50
4.3.9.Disaster and Hazards......................................................................................................50
4.3.10.Industry..........................................................................................................................50
4.3.11.Environment ..................................................................................................................51
4.3.12.Natural Resource...........................................................................................................51

4.3.13.Physical Infrastructure...................................................................................................52
4.3.14.Monitoring Framework for Development........................................................................53
4.3.15.Review of the Previous Plan..........................................................................................53
4.3.16.Other Issues Relating to Delhi Master Plan...................................................................54
4.3.17.Environmental Consideration in Delhi Master Plan 2021 ..............................................54
4.4.Conclusion.....................................................................................................................55
CChhaapptteerr 55.. DDeevveellooppmmeenntt PPllaann aanndd EEnnvviirroonnmmeenntt –– CCaassee ooff AAhhmmeeddaabbaadd........58
5.1.Background ...................................................................................................................58
5.2.Gujarat Town Planning and Urban Development Act, 1976.......................................58
5.2.1.Delineation of Development area ....................................................................................58
5.2.2.Ahmedabad Urban Development Authority.....................................................................59
5.2.3.Content of a Draft Development Plan under Section 12 of the Act..................................60
5.2.4.The Development Plan Making Mechanism....................................................................61
5.3.Environment and Development Plan Ahmedabad......................................................63
5.3.1.Environmental Issues in Ahmedabad..............................................................................64
5.3.2.History of Development Plan in Ahmedabad...................................................................65
5.3.3.Revised Draft Development Plan 1997 ...........................................................................69
5.4.City Development Strategy (CDS) Ahmedabad...........................................................85
5.5.City Development Plan (CDP) Ahmedabad .................................................................86
5.5.1.City Development Plan Preparation Process...................................................................86
5.6.City Development Plan and City Development Strategy............................................87
5.7.Inferences and Findings...............................................................................................87
CChhaapptteerr 66.. CCoonncclluussiioonnss aanndd PPrrooppoossaall...............................................................94
6.1.Conclusions...................................................................................................................94
6.2.Proposal.........................................................................................................................95
6.2.1.The Plan Preparation.......................................................................................................95
6.2.2.The Development Plan Document and its Components..................................................97
6.2.3.Implementation, Monitoring and Review........................................................................100
References.........................................................................................................................102
Appendix
Appendix A- Urban Planning and Environment- Acts and Regulations
Appendix B- The Constitution of India- Article 243
Appendix C- Content of London Plan 2004
Appendic D- Content of Delhi Master Plan 2021

Abbreviations
AMC Ahmedabad Municipal Corporation
AUDA Ahmedabad Urban Development Authority
CDP City Development Plan
CDS City Development Strategies
CPCB Central Pollution Control Board
DOE Department of Environment
EA Environmental Assessment
EIA Environmental Impact Assessment
EPA Environment Protection Act
FOP Financially Operational Plan
GDCR General Development Control Regulation
GHB Gujarat Housing Board
GLA Greater London Authority
HSDC Health Survey and Development Committee
JNURM JawaharIal Nehru National Urban Renewal Mission
NCEPC National Committee on Environmental Planning and Coordination
NCEP National Committee on Environmental Planning
NEP National Environment Policy
NWMC National Waste Management Council
MPD-2021 Master Plan Delhi 2021
SEA Strategic Environmental Assessment
TPS Town Planning Scheme
UDPFI Urban Development Plans Formulation and Implementation
ULC Urban Land Ceiling Act
UN United Nation
WMCs Waste Minimization Circles
74th CAA 74th Constitution Amendment Act

List of Tables
Chapter 1
Table 1.1. Nature and Sources of information for the Study
Chapter 2
Table 2.1. Structure Basis of Environmental Laws
Table 2.2. Urban Planning and Environment India- The Phases
Table 2.3. Acts/ Regulation and Policies to be Incorporated in the Development Plan
Table 3.2. EIA vs. SEA
Chapter 4
Table 4.1. Plan Preparation
Table 4.2. Environmental Component in the Plan
Table 4.3. Implantation and Monitoring
Chapter 5
Table 5.1. Landcover Comparison
Table 5.2. Development plan in Ahmedabad till Date
Table 5.3. Existing and Proposed Land use of AUC area (Excluding AMC)
Table 5.4. Existing and Proposed Land use of AMC area
Table 5.5. Summary of the Preparation Process of the Development Plans
Table 5.6. Environmental Components in the Plans
Table 5.7. Implementation and Monitoring
List of Figures and Maps
Chapter 4
Figure 4.1. London plan preparation process
Figure 4.2. Main Sphere of Influences of the London Plan
Figure 4.3. Delhi master plan preparation process
Chapter 5
Image 5.1. Satellite Image Classifications
Map 5.1. AUDA Proposed Landuse 2011 Plan
Map 5.2. Growth Centers in Ahmedabad Urban Development Area
Figure 5.1. The Development Plan Making Mechanism
Figure 5.2. The draft development plan 1997 preparation process
Figure 5.3. Detail Methodology for Preparation of the Development Plan
Figure 5.4. Depletion of Water Table
Figure 5.5. City Development Plan Preparation Process
Chapter 5
Figure 6.1. Proposed Framework for Plan Preparation
Figure 6.2. Framework for the Development Plan Document
Figure 6.3. Framework for Implementation, Monitoring and Review

Executive Summary
Introduction
Ahmedabad is the largest city of Gujarat and the sixth largest of India. Gujarat became a state in
1960 and Ahmedabad was its capital. In 1970, the state capital was shifted to Ghandhinagar, but
Ahmedabad still retains the status of trade capital of Gujarat. During the course of time, to guide the
growth of this city, Development Plans were prepared under a legal backing of a Town Planning
and Urban Development Act of the state. It been almost two decade since the first Development
Plan was implemented and recently in 2003 the revised Development Plan of Ahmedabad for 2011
was approved by the State Government. Today Ahmedabad is counted amongst the most polluted
cities in India, due to this the Development Plans contribution towards the city environment is
becoming a concern. Hence this study is an attempt to understand the overall Development Plan
process and the extent of environmental consideration in the Development Plan. It also tries to look
at the Development Plans/ Master Plans of cities in other geographical locations and extend of
environmental consideration in those plans e.g. London and Delhi. Through this process identify
the lacuna in the present development planning process of Ahmedabad and suggest changes to
ensure a better incorporation of environment and hence improving the overall environment of the
City.
Rationale
A Development Plan should address sustainable development at the local level while reflecting
state, national and international goals. Decisions should be based on the best possible scientific
information and analysis of risks, in order to prevent or reduce the likely significant impact of plan
on the environment. But this is not the case in reality, most of the development only mention
environment in their aim, scientific studies are also conducted to some extent, but the proposal is
based primarily on the basis of economic criteria. Environment consideration only occurs at project
level where E.I.A has to be conducted.
E.I.A of projects has been criticized on the ground, that because it is a response to a specific
development proposal, it may not address some wider or more fundamental considerations such as
alternative solutions or strategic location issues. Neither can it fully appraise the cumulative impact
of number of proposals, especially when they are individually too small. Increasing sensitivity
towards environmental issues in a Development Plan during the planning stage can help to address
these matters by considering alternative strategies or land uses and by considering the overall
environment effects of implementing plan. There is a need for clarity at preparation stage showing
how environmental issues have been taken into account and hence reduce the strategic

environmental effects and therefore there is a need to evolve a new framework that increases the
environmental credentials and ensures an environmentally sensitive Development Plan.
Methodology
The methodological structure was worked out in the following way-
Conclusions
Over time with the increasing environmental problem in cities, various attempts were made to
protect and prevent environmental deterioration. In India, today there are about 200 legislation,
policies and regulation to protect environment and many more yet to come. Even after existence of
all these planning and protective laws, the environment of cities in India is deteriorating. City like
Ahmedabad have been preparing Development Plan for past two decades and hence the
Development Plans contribution towards its environment is becoming a concern. From the study it
Initial Literature Review
Formulation of the study- Development Plan and Environment: A case of Ahmedabad
Defining Aim and Objective
Objective1 - Study the
history of urban planning
and environment
Objective 2- identify
different available planning
instrument and the evolving
issue in urban planning
Objective 3- Understand the
level of environmental
incorporation in the statutory
plan of other influential cities
Objective4 -Understand to what extent and how effectively
the existing environmental issues and concerns are
addressed in the Development Plan of Ahmedabad
Aim- Develop a framework for preparing an environmentally sensitive Development Plan, for the
case of Ahmedabad
Detail Literature Review
Issues
London Plan
Delhi Master Plan
Acts, Regulation and
Policies to be incorporated
in the Development Plan to
protect Environment
Environmental Consideration

is unmistakably evident that lack of environmental consideration in the statutory Development Plan
is partly responsible for the environmental deterioration in the Ahmedabad.
The London Plan and Delhi Master Plan have tried their best to incorporate their respective
environmental issues in the Plan, while the Development Plan of Ahmedabad only talks about the
environment as a part of its aim, but this aim doesn’t reflect much in the Development Plan; apart to
it concern about air and water pollution. Around the globe the environmental emphasis has
changed because of the realization that environmental considerations should not be limited to
concerns about just pollution control but should be more positive in aiming to create more
comfortable, pleasant and stimulating surroundings natural and manmade environments.
All the Plans considered for the study were prepared in different point of time, the Ahmedabad
Development Plan was prepared in 1997, London Plan in 2004 and Delhi Master Plan in 2005,
hence it is not actually desirable to compare London Plan and Delhi Plan with Ahmedabad
Development Plan. But after comparing the last two Development Plans of Ahmedabad (1981 and
1997), it can be concluded that the attitude towards environment in Ahmedabad have not changed
for more than a decade. Planning is a continuous process, with time new issues emerge and new
legislations are enacted to protect environment. The Development Plan is a long term plan and
hence it can’t afford to be static and rigid, it needs to be continues process where there should be
timely incorporation of the emerging issues and the new legislations in the Development Plan.
The development planning process of Ahmedabad needs to be more democratic, like the case of
London Plan. Ahmedabad Development Plan needs to incorporate the public consultancy
mechanism before preparing the Plan. The public consultancy will help the development authority
to make the whole planning process more participatory and will help to understand the citizen’s
aspiration towards the city. Through the consultancy process a vision of the city can be proposed
with public and authorities co-operation. Apart from this, the duration two month for public
inspection of the Development Plan is inadequate to serve the purpose within the mention time,
while the citizens of London and Delhi get a period of 3 month for public inspection, in order to raise
objection and suggest changes.
The content of the Draft Development Plan in town planning act needs to be review since there are
certain changes required in it. The environmental components should be given more importance in
the content, which will help to preserve and protect the environment of the area. Although a
significant amount of time and resource are spent, AUDA still does not have a comprehensive, up
to-date database, environmental components are not addressed explicitly and study maps do not
cover all ecological characteristics. The whole planning process is affected due to lack of up-to-date

base maps, and limitations of data create difficulties in quantifying and assessing the existing
situation. Hence there is a need to build a good accurate and reliable data base for the city. Apart
from building good accurate database and maps, there is also a need to address the current
environmental issues in the Development Plan. This would help in making the Development Plan
more sensitive towards the environment and will protect and enhance the environment of the
Ahmedabad.
Preparing an environmental sensitive Development Plan is the first step, but there is also required
that the Development Plan is properly implemented within the plan period. Like the areas proposed
to be developed as open space in the Development Plan 1987 have not been implemented and
thus have now been encroached upon by unauthorized development often leading to uncontrolled
and haphazard development. This is due to either lack of will shown by the authority to implement
the plan or due to financial constrain. There is a need to set up a monitoring unit to monitor both the
implementation of the plan and the functioning of the authority and publishes a performance review,
which would help in making timely adjustment in the plan. There are even problems in caused due
to delay in sanctioned Development Plan/ town planning schemes by government. Like the
Development Plan prepared in 1997 was sanctioned in May 2002. Sanctioning of the Plan is a
political issue and looking at the present political system it a difficult proposition to expect any
speedy sanction.
Development Plan is an important mechanism for development of the urban areas, but in real life
development is taking place on it own without any concern for the plan. Hence the Development
Plan remains a costly piece of document which doesn’t consider environment and the need of the
area and the people. Hence present environmental problem of Ahmedabad is partly due to lacuna
in the development planning system. Based on the lacunas identified in the study, an attempt is
made to prepare a framework for preparing an environmentally sensitive Development Plan.

CChhaapptteerr 11..IInnttrroodduuccttiioonn
1.1. Introduction
The dissertation looks at Development Plan and the development planning process of Ahmedabad
and tries to understand the extent of environmental consideration in it. A Development Plan
envisages the entire town/urban area as a single unit. Development Plan is necessary to achieve
overall development of the town/urban area in an integrated and co-ordinated manner. The
development or expansion of a town takes along time, and therefore the development is required to
be regulated in time on the basis of a plan. A Development Plan is thus a blue print of the various
proposals that are intended to improve the existing conditions and to regulate the future growth of
the town in a coordinated manner.
Ahmedabad is the largest city of Gujarat and the sixth largest of India. Gujarat became a state in
1960 and Ahmedabad was its capital. In 1970, the state capital was shifted to Ghandhinagar, but
Ahmedabad still retains the status of trade capital of Gujarat. During the course of time, to guide the
growth of this city, Development Plans were prepared under a legal backing of a town planning and
urban development act of the state. It been almost two decade since the first Development Plan
was implemented and recently in 2003 the revised Development Plan of Ahmedabad was approved
by the state Government. Today Ahmedabad is counted amongst the most polluted cities in India;
due to this the Development Plans contribution towards the city environment is becoming a
concern. Hence this study is an attempt to understand the overall Development Plan process and
the extent of environmental consideration in it. It also tries to look at the Development Plans/
Master Plans of cities in other geographical locations and extend of environmental consideration in
those plans e.g. London and Delhi. Through this process identify the lacuna in the present
development planning process of Ahmedabad and suggest changes to ensure a better
incorporation of environment and hence improving the overall environment of the City.
1.2. Rationale
A Development Plan should address sustainable development at the local level while reflecting
state, national and international goals. Decisions should be based on the best possible scientific
information and analysis of risks, in order to prevent or reduce the likely significant impact of plan
on the environment. But this is not the case in reality, most of the development only mention
environment in their aim, scientific studies are also conducted to some extent, but the proposal is
based primarily on the basis of economic criteria. Environment consideration only occurs at project
level where E.I.A has to be conducted. If one goes through E.I.A Notification 15th September 2005 it
covers entire range of projects which land use decision are taken at Development planning stage.
E.I.A of projects has been criticized on the ground, that because it is a response to a specific
development proposal, it may not address some wider or more fundamental considerations such as
alternative solutions or strategic location issues. Neither can it fully appraise the cumulative impact
of number of proposals, especially when they are individually too small. Increasing sensitivity
towards environmental issues in a Development Plan during the planning stage can help to address
these matters by considering alternative strategies or land uses and by considering the overall
environment effects of implementing plan. Therefore there is a need for clarity at preparation stage
showing how environmental issues have been taken into account and hence reduce the strategic
environmental effects. Projects E.I.A should be seen as a positive contribution to the planning
process and the findings can be feed into the next review of the Development Plan provided the
results are well founded. Therefore there is a need to evolve a new framework that increases the
environmental credentials and ensures an environmentally sensitive Development Plan.

1.3. Central Argument
The present deterioration of the city environment in Ahmedabad is due to lack of environmental
consideration in the statutory Development Plan prepared so far.
1.4. Research Questions
1. What is the history of urban planning and environment in India and what are the important
act and regulation for protecting the environment?
2. What are the urban planning instruments available today and what are the evolving issues
in development planning exercise
3. What environmental considerations are made in statutory city plan prepared by cities in
different geographical area?
4. To what extent is environment considered in Ahmedabad Development Plan?
5. What are the issues and environment component that need to be considered in a
Development Plan to make it more sensitive towards environment?
1.5. Aim and Objectives of the Study
Aim of the study- To develop a framework for preparing an environmentally sensitive
Development Plan, for the case of Ahmedabad.
Objective of the study –
In order to achieve the aim following objective should be achieved-
1. Study the history of urban planning and Environment in India, and to identify important acts
and legislation for protection of environment.
2. To identify the different available instrument for urban planning and to understand the
evolving issues in development planning exercise.
3. To understand the extent/ level of environmental incorporation in statutory Development /
Master Plans of other influential cities in different geographical areas.
4. Understand to what extent and how effectively the existing environmental issues or
concerns have been addressed in the Development Plan of Ahmedabad and understand
its implementation mechanism.
1.6. Study Area.
Ahmedabad, the biggest City of Gujarat, lies on 230 1' North Latitude and 720 37' East Longitude on
the bank of River of Sabarmati. It is one of the most rapidly growing urban centre of Gujarat and
being the trade capital it has a lot of industrial development within and around it. Along with the
industrial development and the increasing population load on the city, the environment of the city
has deteriorated. Till date Ahmedabad urban authority have prepared two Development Plans, the
present system of preparing the Development Plan needs revival and there is a need of
incorporating environmental consideration to prevent the present deterioration and to further
sensitize the development planning process and minimize the environmental damage. Therefore
considering the case of Ahmedabad the study tries to develop a framework for preparing an
environmentally sensitive Development Plan.
1.7. Scope and limitation
A Development Plan is prepared under a legal backing of a town planning act of the state. So
considering the state of Gujarat and by the Gujarat Town Planning and Urban Development Act,
1976, the environmental consideration in the Development Plan of Ahmedabad is assessed. This
work is based on review of Development Plan documents of Ahmedabad and other related

literature. The statutory city plan of influential cities in different geographical location -like Delhi
(capital city of India) and London (A lot of Indian town planning act is based on British acts) will be
considered for understanding the Environment status in their statutory city plans. The study focuses
on developing a Framework for preparing an environmentally sensitive Development Plan.
To further strengthen the study, it would have been desirable to take up more case studies, but due
to time limitation and availability of data/ literature only Delhi and London Development/ Master
Plan were taken up for the purpose of the study.
1.8. Methodology
The methodological structure was worked out in the following way-
Stage 1. Formulation of the project.
Formulation
Gujarat Town Planning and Urban Development Act, 1976 provides the legal mechanism for
preparing the Development Plan for the city of Ahmedabad. After reviews this act the certain
shortfalls in the Content of a draft Development Plan under section 12 of the act were observed.
Subsequently the Revised Draft Development Plan of AUDA -2011 was reviewed initially. The
development area only talks about the environment as a part of its aim, but this aim doesn’t reflect
much in the Development Plan; apart to it concern about air and water pollution. This reflects on
part of the concern authority that environment comes only while preparing the aim, but when it
comes to action, that is through proposal environment losses it importance. In the Development
Plan environment is just another popular word. Based on the initial analysis of the Ahmedabad
Development Plan and after going thought the Development Plans of European counties (London,
Scotland etc) which consider environment as an important component of the plan, a need was felt
for sensitizing the Development Plan of Ahmedabad towards environment and hence help in
reducing the environmental damage. Based on this the aim and objectives of the study was
formulated.
Research approach
Step 1
After the initial literature review of the available Ahmedabad Development Plans and related
documents, it was realized that there is a need for preparing a comprehensive history of the urban
planning and environment in India. Based on the urban planning and environment history the cities
for case studies were identified and the present mechanism provided by legislation and judiciary for
environmental protection were listed, in order to incorporate it in the Development Plan.
Step 2
With time the urban planning process have gone through various changes, cities around the world
have innovated new instruments for planning urban development. The available development
planning instruments were identified and the issues related to these instruments and urban
planning was highlighted.
Step 3
A detail critical analysis of the city plans in different geographical area was conducted and the
environmental issues incorporated and their attitude towards environment was identified. A detail
critical review of the Development Plan of Ahmedabad was also conducted in order to access to
what extent and how effectively the existing environmental issues or concerns have been
addressed in the Development Plan of Ahmedabad. Along with identification of the environmental
issues related to the Development Plan, the flaws in the implementation and monitoring mechanism
were identified.

Step 4
After identifying the issues and concerns, based on the lessons form the case study, a framework
for sensitizing the Development Plan towards environment will be evolved.
Stage 2. Nature and Sources of Information
Table 1.1. Nature and Sources of information for the Study
Task Data required Data source
Build a comprehensive history of
urban planning and environment.
Identify influences in Indian
planning
To identify important act for
protection of environment
Identification of planning
instruments in urban planning
Understand the evolving issues in
development planning exercise
Identification of suitable Cases
Critical review of the case area
statutory city plan.
the extent of environmental
consideration
Discussions with the concerned
authority
Critical review of all the
development plan document and
Town planning Act.
Objective-1.Study the history of urban planning and Environment in India, and to identify important acts
and legislation for protection of environment.
Objective-2.To identify the different available instrument for urban planning and to understand the
evolving issues in development planning exercise.
Developments Plans of
Ahmedabad published. Review in
different magazines. Discussions
with AUDA / AMC - the agencies
involved in preparation of
Development Plan till date.
acts, rules, events, regulation,
legislation relating to environment
and urban planning -with year and
their implication.
Multiple sources from books on
urban planning on India and world/
books on environmental acts and
events/ internet sources.
Detail about the instruments, their
use, status and their issues.
multiple sources from books,
magazines and Internet sites.
Objective-3. To understand the extent/ level of environmental incorporation in statutory Development /
Master Plans of other influential cities in different geographical areas.
Objective-4. Understand to what extent and how effectively the existing environmental issues or concerns
have been addressed in the Development Plan of Ahmedabad and understand its implementation
mechanism.
Latest City Development Plan/
master plan of the case area, the
relevant town planning act/
development act.
Published plans and Act and
Internet sites.
Ahmedabad Development Plan
prepared till date. Their preparation
process and implementation
process. Problems associated with
planning and implementation
Stage 3. Deriving conclusion and Proposals
After critical review of all the city Development Plans and identifying of all the environment
components which needs consideration. All the important issues will be highlighted and these
issues will be considered while preparing the framework for sensitizing the Development Plan of
Ahmedabad.

Figure 1.1 Structure of the Study
Initial Literature Review
Formulation of the study-
Development Plan and Environment: A case of Ahmedabad
Defining Aim and Objective
Objective1 - Study the
history of urban planning
and environment
Objective 2- identify
different available
planning instrument and
the evolving issue in
urban planning
Objective 3- Understand
the level of environmental
incorporation in the
statutory plan of other
influential cities
Objective4 -Understand to what extent and how
effectively the existing environmental issues and
concerns are addressed in the Development Plan of
Ahmedabad
Aim- Develop a framework for preparing an environmentally sensitive Development Plan,
for the case of Ahmedabad
Detail Literature Review
Issues
London Plan
Delhi Master Plan
Acts, Regulation and
Policies to be
incorporated in the
Development Plan to
protect Environment
Environmental Consideration

1.9. Chapter Outline
The study “Development Plan and Environment: a case of Ahmedabad”. It is set out in six chapters.
Chapter 1 – ‘Introduction’ set out the introduction of the study, rationale for the study, aim and
objectives and scope and limitation of the study. It also describes the methodology involved in the
study.
Chapter 2- ‘Urban Planning and Environment a Historical Review’ it describes the urban planning
and environmental history of India. The chapter identifies the important influences in urban planning
and environment and identifies important acts, regulation and policies to be incorporated in the
Development Plan.
Chapter 3- ‘Planning for Urban Development’ it identifies the different planning instrument / plans
available for urban planning and highlight the importance of the Development Plan and the need for
environmental incorporation in the plan. The chapter also describes the urban planning system in
India and discusses the issues involved in development planning.
Chapter 4- ‘Environment and Urban Development Plans’ it deal with the assessing the level of
environmental incorporation in the statutory urban plans, of influential cities – London and Delhi.
Chapter 5- ‘Development Plan and Environment- case of Ahmedabad’ deal with the entire
development planning process of Ahmedabad, from preparation to implementation and monitoring.
Its tries to assess the level of environmental consideration in the Development Plan of Ahmedabad.
Chapter 6- ‘Conclusions and Proposal’ based on the finding of the study, a framework is derived
for preparing an environmental sensitive Development Plan for Ahmedabad.

CChhaapptteerr 22..UUrrbbaann PPllaannnniinngg aanndd
EEnnvviirroonnmmeenntt aa HHiissttoorriiccaall RReevviieeww
2.1. Defining Environment
As the well known geographer Detwyler puts it- Environment is an aggregate of external conditions
that influences the life of an individual or population (Naik Mehul 1998).
MacGraw-Hill Encyclopedia of Environment Science defines it as follows – Environment – is “the
sum total of all conditions and influences that affect the development and life of Organism.”
Environment- the term environment has been derived from the term ‘Environ’, which means ‘to
surround’, French term ‘Environner’, Latin ‘in-viron’. Thus, etymologically environment means
‘surrounding conditions, circumstances effecting people’s life’.1
According to Gilpin- Environment, “from a scientific point of view, it is taken to mean everything that
is physical external to the organism; organisms of course include human beings”.2
Justice P.N. Bhagwati (1991), has made the term Environment more clear and simple to
understand. He opines that “the term refers to the conditions within and around an organism, which
affect the behavior, growth and development or life processes, directly or indirectly. It includes the
conditions with which the organism interacts.”3
The National Environment Protection Act, 1969 of U.S.A. and the Pollution Control Act, 1974 of the
U.K, though were the earliest and comprehensive environment enactments, but it did not define the
technical terms. The Environmental Protection Act (EPA),1986 of India was the first to define the
technical terms and it defines Environment- according to Section 2(a) of E.P.A, environment (a)
includes water air and land and (b) the interrelationship which exists among and between –(i) water
(ii) air (iii) Land (iv) Human beings (v) living creatures (vi) plants (vii) micro organism (viii) property.
This EPA definition embraces all biotic and a biotic components of environment, but there is a
criticism that it has failed to comprehend the modern concept of environment pollution and factors
which lead to the imbalance in ecosystem.
According to National Environment Policy 2004 of India “Environment” comprises of all entities,
natural or manmade, external to oneself, which provide value, now or perhaps in the future, to
humankind. Environmental concerns relate to their degradation through actions of humans.
2.2. Urban planning and environment- Acts and Regulations
During the 18th and 19th century landscape of England was reshaped by the industrial revolution
and Industrialization was accompanied by rapid urbanization. Though towns and cities existed
since dawn of the civilization, their rapid growth started only after the industrial revolution. The
theories and techniques adopted for urban planning underwent radical changes with the advent of
the machine and the coming in of the automobile on the urban scene. As the problems became
1 Collins, P.H. (1990), Dictionary of Ecology and the Environment, 62
2 Gilpin, A. (Undated), Dictionary of Environmental terms, 51, Queensland Univ. Press.
3 Justice Bhagwati, P.N. (1991), The Crucial Conditions, in Survey of the Environment, p. 165, The Hindu.

acute, remedies were searched for and new Acts, new Amendments and new legislation and new
organizational pattern began to appear to ensure a better environment.
2.2.1. Indian Scenario
In case of India, based on various available secondary sources, the history of urban planning and
Environment was constructed. The history of urban planning and environment of India can be
broadly divided in two phase’s pre-independence and post independence. In fact, the country has
had a long history of environmentalism with the passage and codification of acts started from 1853
during the British rule. The historical time-line of urban planning and environment constructed for
India, based on the available secondary sources span around a 153 years till date. But even before
1853, there were cities built based on planning principle like the earliest evidence of planning in
Indian sub-continent was Indus valley civilization, which advanced by 2500 B.C. these cities were
laid out according to some pre-conceived plans, with high standards of public health. The people of
Mohenjo-Daro and Harappa took pains to plan baths, lavatories, drains and fresh water tanks. This
reflected their concerns for community sanitation and health (TCPO, 1996). But the base for
present planning and environment laws/Acts to protect and prevent the environmental deterioration
started in 1853 with The Shore Nuisance (Bombay and Kolaba) Act.
According to Shastri, S. (2002), the structure of Environmental law in India can be divided into two
broad categories that are protective laws and planning laws and this can be further divided as given
below in table 2.1. For the purpose of the study, 153 years of planning and environment evolution in
India is divided into 4 phases as given below in table 2.2.
Source- Shastri, S. (2002)
2.2.1.1. Pre-Independence
The Early Years (1853-1897)
Water
Water was one of the earliest elements of nature which was of high concern to the people right
from start, during the early years the first act to be amended was shore nuisance (Bombay and
1853-1897 The Early Years
1898-1946 City Improvement Efforts
1947-1969 Start of Enviornmentalism
1970-2006 The Era of Enviornment
YEAR
Urban Planning and Environment -the Phases
Pre -
Independence
Post -
Independence
For Human biengs
For Non-Human
being For Production For Distribution
1. Water 1. wildlife 1. Land Utilization 1. Land ceiling
2. Air 2. Marine life 2. Irrigation 2. Town planning
3. Noise 3. Flora 3. Industry 3. slums
4. Nuclear 4. Mining 4. housing
5. Radiation 5. Grazing land 5. Recreational area
6. Toxic subsatnces 6.Catchment area 6. Parks
7. Waste land 7. Sanctuaries
8. Estuaries 8. Biosphere
Structural basis of environmental laws
Protective Laws Planning Laws
Table 2.1. Structure Basis of Environmental Laws
Table 2.2. Urban Planning and Environment India- The Phases

Kolaba) act of 1853 concerning water pollution in India, which authorized the collector of land
revenue in Bombay to order removal of any nuisance below the high - water mark in Bombay
harbors. This act was followed by other acts related to water like the Bombay Irrigation Act 1860
and North India Canal and Drainage Act 1873. The Indian Penal Code, passed in 1860 also had
provision of penalizing person(s) responsible for causing defilement of water of a public spring or
reservoir with imprisonment or fines. Later to follow was the Indian Easements Act 1882 which
allowed private rights to use a resource that is, groundwater, by viewing it as an attachment to the
land. It states that all surface water belongs to the state and is a state property and protects riparian
owners against ‘unreasonable’ pollution by upstream users. Apart from all this there were also
establishment of the Code of Criminal Procedure 1986, where sec 133 and 144 provide for removal
of public nuisance.
The Cities
In 1864 looking at the sanitary condition of the cities the first sanitary commissions in 1864 was
appointment for three presidencies of Bengal, Bombay and madras, under direction of the royal
sanitary commission appointed by British Parliament in 1859. After more than a decade later the
first municipal act was enacted in Bombay, known as Bombay Municipal Act 1872 and hence the
duties of the Corporation were set out. The next important event was enactment of the Land
Acquisition Act 1894; the act is valid till date and has bearing on major projects in city development.
This act was enacted for the purpose of compulsorily acquisition of land required for public purpose
or for purpose of companies.
City Improvement Efforts (1898-1946)
City Improvement and Town Planning Act
Cities were major environmental nuisance, urbanization leading to major environmental stress. This
led to the passing of the city improvement trust and town planning acts in India. The first city
improvement trust was established in Bombay in 1898, followed by Mysore in 1903, Calcutta in
1911and Hyderabad in 1912. In 1933 Bombay improvement act was merged with Bombay
Municipal Corporation. This process of constituting an improvement trust in different places in India
continued till 1946.
In India, the first efforts for planned growth was built into municipal acts through town planning
schemes and which aimed at slum removal, providing workers housing, circulation improvements
and improving sanitation. Hence State town planning acts were introduced in Bombay presidency
(1913), Madras presidency (1920) and the ex-princely state of Hyderabad and Mysore in about the
same period, this acts were enacted on the lines of the British Housing and Town Planning Act
1909. The end product of this Acts were largely land-use plans and had features like irrational land
use disposition, inefficient land development and utilization, leading to large scale physical
deterioration. The problems arising out of such physical structures were lack of a dispersed pattern
of work centers, sprawling residential dormitories, entailing long distance travel, inefficient transport
system and services.4
In between during 1915 Patric Geddes visited India, Geddes unsparingly explained that survey was
more important than good surface planning. The planner must consider the citizen's potential and
evolution within his environment. Later, in 1931 New Delhi, the new capital of India was planned
and design by Edward Lutyens, based on modern town planning principles.
4 TCPO. (1996), Urban and regional planning and development in India, Ministry of urban affairs and employment, New
Delhi.

Environment and Planning
The first international environment conference was held in London 1900 and the topic for
discussion was protection of wildlife of Africa. Later on in 1927 Indian Forest Act, one of the many
surviving colonial statutes was enacted to ‘consolidate the law related to forest, the transit of forest
produce, and the duty livable on timber and other forest produce, at this early stage, awareness of
man’s destructive tendencies were emerging.
The first major discussion on environment and planning in India was in 1946 where Health Survey
and Development Committee (HSDC) discussed several aspects of town planning, while dealing
with problems of improving mans physical environment.
2.2.1.2. Post- Independence
Start of Environmentalism (1947-1969)
Environment
Environmental issues which have been for a long time part of Indian thought and social process,
and were reflected in the constitution of the republic of Indian adopted in 1950. But the start of
modern environmentalism started in 1962, where the American environmental moments dates its
beginning to Rachel Carson’s book on pesticide pollution “Silent Spring”. Silent Spring is also
known as the bible and founding event of the modern environmentalism. But in the international
scenario apart from water and air the issue of solid waste was first dealt in U.S.A. in 1965 by
enacting the Solid Waste Disposal Act. And U.S. Congress financing a statewide survey of dumps
and landfills to better understand the scope of waste disposal problems in the U.S. The Act
provides more of waste management safeguards. At the end of this era in 1969, the National
Environment Protection Act, U.S.A. was enacted, mandating all federal agencies and departments
to consider and assess the environmental effects of proposals for legislation and other major
projects.
Town Planning Act and Cities
The City Improvement Efforts during 1898 to 1946 still had its effects after independence in India.
In 1950 the Madras City Improvement Trust Act followed by the Hyderabad City Improvement Act
were enacted. Apart from these a lot of town planning act come into existence like the West Bengal
Land Development and Planning Act 1948, followed by the Bombay Provincial Municipal
Corporation Act 1949, The Orissa Town Planning and Improvement Act 1956 and the Karnataka
Town and Country Planning Act 1961 amended in 1965. All these acts provided provision for
Planning Authorities at City and Town level for preparation of Development Plan and enforcing it.
In 1954 Bombay Town Planning Act came into being, incorporated the provisions of Bombay Town
Planning Act, 1913, and in addition made it obligatory on every local authority (barring village
panchayats) to prepare a Development Plan for the entire area within its jurisdiction which came
into force in 1957. All These Acts are based on the model Urban and Regional Planning
Development Act as proposed by the central government (TCPO, 1996).
Comprehensive urban and regional planning in India was however introduced only after
independence in Delhi (1957). The Delhi development act was enacted and the first Master Plan of
Delhi was prepared in 1964. This was nearly co-terminus with the central slum improvement act
(1956) as opposed to slum clearance. Up to the second five year plan (ending in 1960) the
preparation of urban land use plans become a priority so as to ensure planned growth due to rapid
urban population increase. During 1966, the Maharashtra Urban and Regional Planning Act was
enacted which had provision to prepare regional plans, Development Plans and town planning
schemes under the provisions of the Maharashtra Regional and Town Planning Act.
In 1958 Ancient Monuments and Archaeological Act was enacted to protect and preserve ancient
monuments and archeological sites. In case of Gujarat the first Act was enacted in 1961, which was

the Gujarat Panchayats Act, this act enables the district Panchayats to make bye-laws for
purification and protection and protection from pollution of sources of water and for other connected
matters. In 1963 Fazlore Rehman committee on urban land policy was formed to examine the
problems of urban land and suggest policy measures on the subject.
Industries and Environment
The first Act regarding Industries was 1948 -The Factories Act, which was the first to express
concern for the working environment of the workers. The 1987 amendment to the factories act
empowers the state to appoints site appraisal committees to advice on initial location of factories
using hazardous process and deal with disposal of water effluents. In 1951 Industries
(Development and Regulation) Act was enacted this Act provided for the development and
regulation of certain industries.
The Era of Environment (1970-2006)
The First Institutions to Protect Environment
1970 marks the starting point in Indian environmental history as the starting point in environmental
era with the Establishment of The Maharashtra Pollution Control Board the first state pollution
control board in India to begin operating.
The year 1972 was a landmark in the history of environmental management in India. Prior to 1972,
environmental issues such as sewage disposal, sanitation and public health were dealt with
independently by the different ministries without any co-ordination or realization of the
interdependence of the issues. In February 1972, a National Committee on Environmental Planning
and Coordination (NCEPC) was set up in the Department of Science and Technology. NCEPC
functioned as an apex advisory body in all matters relating to environmental protection and
improvement. However due to bureaucratic problems, that NCEPC faced in coordination with the
Department of Science and Technology and In 1980 The Tiwari committee was setup to suggest
the administrative and legislative measures that ought to be taken for the protection of the
environment. This committee gave five suggestions- 1) land and water management 2) Natural
living resource 3) Environmental pollution and E.I.A 4) Human settlements 5) Environmental
education and awareness. Based on recommendation of the Tiwari Committee NCEPC was
replaced by a National Committee on Environmental Planning (NCEP) 1981.
The International Event - Stockholm Conference
The watershed event in the environmental movement was the Stockholm Conference on Human
Environment (the Magna Carta on human environment) in June, 1972. The conference made it
apparent to all attendees that each nation needed to adopt comprehensive legislation addressing
health and safety issues for people, flora and fauna. The United Nations, organizers of the
conference, requested each participant to provide a country report. The findings by the Indian
conferees shocked even the most pro-development advocates in India. Stockholm served as the
genesis for the series of environmental measures India passed in the years to come. It has also
been suggested that international events such as Stockholm provided the cover Indian officials
needed to implement national environment policy without the vitriolic backlash normally expected
from industry (Shaman, 1996). Stockholm is also known for Indira Gandhi speech where she
quoted "Poverty is the greatest polluter". Since than, Indian has participated in the international
conferences and have been signatory to it declaration. Hence as a requirement, a lot of Acts and
legislation were amended to protect, avoid violation and ensure a better environment.
Acts for Protection of Environment
In year as a requirement of the Stockholm conference 1972 India amended the first Indian Wildlife
(Protection) Act 1972, which provides for the protection of birds and animals and for all matters that

are connected to it whether it be their habitat or the waterhole or the forests that sustain them. In
1972, after a decade later due to the American environmental moments dates its beginning to
Rachel Carson’s book on pesticide pollution “Silent Spring” 1962. America amended the Pesticide
Control Act, U.S.A, 1972, for control of pesticides for reduction of unreasonable risks to man and
the environment. This was followed by the 1974 Toxic substance control act U.S.A. in the same
year U.K. enacted Pollution Control Act U.K. 1974, which provides various regulatory and control
measure to wastes disposal. A similar concern for waste started in India, in 1975 when a High
powered committee on urban waste was by Government for review of problems of urban waste in
India. This committee, in its report made 76 recommendations, covering eight important areas of
waste management.
The burgeoning awareness of the 1970’s did not mark the first efforts by India on the environment.
As early as 1962, however, the Ministry of Health had begun to address water pollution issues by
appointing a study committee. The committee made recommendations for both central and state
level action. Jurisdictional questions remained unsolved between the states and central
government, but by 1965 a draft bill was finally being circulated which allowed the states to pass
resolutions authorizing Parliament to enact legislation on their behalves. By 1969, a bill, the
Prevention of Water Pollution, had been introduced. Ultimately in 1974 after the Stockholm
conference 1972, a modified version, the Water (Prevention and Control of Pollution) Act, passed in
1974, this was mainly passed for restoration and maintenance of wholesomeness and cleanliness
in our national aquatic resources. The Water Act also established the Pollution Control Boards at
central government and state government levels, institutionalizing a regulatory agency for
controlling water pollution marked the first true commitment on the issue by the Indian Parliament.
Hence 1974 The Gujarat Pollution Control Board established, the act provided for prevention and
control of water pollution and the maintaining or restoring of wholesomeness of water. In 1977 The
Water (Prevention and Control of Pollution) Cess Act, which was amended in 1992 provided for the
levy and collection of Cess or fees on water consuming industries and local authorities. In order to
provide the pollution control boards resources for equipment and technical personnel and to prompt
water conservation by recycling.
In the aftermath of the Water Act, Prime Minister Indira Gandhi moved to enact a series of
environmental measures. The Department of Environment (DOE), created in 1980, performed an
oversight role for the central government. DOE did environmental appraisals of development
projects, monitored air and water quality, established an environmental information system,
promoted research, and coordinated activities between federal, state and local governments. DOE
was criticized, however, by environmental groups who recognized that with its small political and
financial base the agency was weak and symbolic in nature. Environmentalists recognized quickly
that DOE would essentially serve as an advisory body with few enforcement powers (Shaman,
1996).
The Air (Prevention and Control of Pollution) Act of 1981 was the next area of focus following the
passage of the Water Act. The legislation designated the central board and state boards, which
governed water pollution duties, to also be empowered with the same authority and administrative
functions for the Air Act. In essentially all respects, the functions and authorizations exercised by
central and state officials in the Water Act remain the same. The Central Board sets national
ambient air standards. In addition, the state boards have the power to petition local magistrates to
restrain polluters from exceeding specified standards. This legislation, however, does not
supersede provisions of an earlier law, the Atomic Energy Act of 1962, which addressed radioactive
air pollution.
The Constitution
Although state governments have clearly delineated lines of authority and jurisdiction, Article 253 of
the Constitution provides the central government with sweeping powers to implement laws for any

part of India with regard to treaties made with another country or decisions made by an
international body
In 1974 the 42nd amendment to the Constitution was brought and inserted two new Articles: Art.48-
A and Art.51-A(g). The former, under Directive Principles of State Policy, makes it the responsibility
of the State Government to protect and improve the environment and to safeguard the forests and
wildlife of the country. The latter, under Fundamental Duties, makes it the fundamental duty of
every citizen to protect and improve the natural environment including forests, lakes, rivers and
wildlife and to have compassion for living creatures. The 42nd amendment adopted in 1976 and
went into effect January 3, 1977. Apart from this the language of the Directive Principles of State
Policy (Article 47) requires not only a protectionist stance by the state, but also compels the state to
seek the improvement of polluted environments.
The Town Planning Efforts
With the increasing trend of urbanization, leading to development progressing along the periphery
and outside the limits of local authority, led to enactment of the Andhra Pradesh Urban Area
(development) Act in 1975, followed by The Bangalore Development Authority Act, The Karnataka
Improvement Boards Act and the Gujarat Town Planning and Urban Development Act 1976 (the
Gujarat town planning act 1976 came into force in 1978). These Acts made provision for delineation
of development area for the city, incorporating the peripheral growth area around the city beyond
the limits of local authority. These Acts also led to constitution of urban development authority for
such area for its proper development. In the same year the 1976 Urban Land (Ceiling and
Regulation) Act was amended to create land for urban development.
Disaster and Movements
In 1979, the Three miles island U.S.A nuclear power plants disaster was an important event that
awakened the world towards the need to deal with such disaster. In India, in 1979 a new movement
was started, movement for environmental protection. It started with 1979 Silent valley Case-
Palghat, Kerala Hydro-electric proposed in the tropical forest, but the high court of Kerala refused to
interfere in the matter and relied heavily on government position. Than followed the biggest disaster
in Indian history in 1984, the Bhopal Gas Tragedy. Bhopal disaster led to major changes in India,
first it to passing of Bhopal Gas Disaster Act, 1985 which further led to Passing of Environment
Protection Act (EPA),1986 (the umbrella environmental legislation).
The Apex Environmental Body and Environment
In 1985 Ministry of Environment and Forest of Govt. of India was established and in 1986 the
Environment Protection Act, (amended 1991) the umbrella legislation came into existence. This act
is applicable to entire country and overrules other legislation, including local laws, which
empowered the central government to take all necessary measures to protect and improve the
environment. Obligation under the Stockholm declaration, The Environment (Protection) Rules -lay
down procedures for setting standards of emission or discharge of environmental pollutants.
Brundtland Commision
In the 1983 the UN set up the World Commission on Environment and Development, also called as
the Brundtland Commission. They produced "Our Common Future", otherwise known as the
Brundtland Report, suggested 22 legal principal for environmental protection and sustainable
development. Which framed much of what would become the 40 chapters of Agenda 21 and the
27 principles of the Rio Declaration on Environment and Development. It defined sustainable
development as development which; “meets the needs of present generations without
compromising the ability of future generations to meet their own needs”

The Other Rules and Regulations
In 1989, under EPA, government mandated the Hazardous waste (Management and handling)
rules - to control the generation, collection, treatment, import, storage, and handling of hazardous
waste and in the same year, the Central Motor Vehicles Rules were established which introduced
nation-wide emissions levels for both petrol and diesel driven vehicles. Subsequently in 1990 the
National Waste Management Council was constituted one of the NWMC objectives was municipal
solid waste management. The council is engaged at present in a survey of 22 municipalities to
estimate the quantity of recyclable waste and its fate during waste collection, transportation and
disposal.
In 1990 Environmental appraisal of Development Plans originated in UK and The European
Economic Community issues the first proposal for a Directive on the Environmental Assessment
(EA) of Policies, Plans and Programmes. Subsequently in 1992 Development Plans and Regional
Guidance (DOE, 1992) UK marked the beginning of EA of local authority Development Plan in the
UK.
In 1991 The Public Liability Insurance Act and Rules was drawn up to provide for public liability
insurance for the purpose of providing immediate relief to the persons affected by accident while
handling any hazardous substance and the ministry of environment and forests issued guidelines
for management and handling of hazardous waste.
In 1994 Environmental Impact Assessment (EIA) - Restrictions & Prohibitions on the Expansion &
Modernization of any activity or new projects unless Environmental Clearance has been accorded,
amended 2001 and in 1995 The UNDP introduces the environmental overview as a planning tool.
The International Events
The Earth day 1990 -Described as the largest organized demonstration in human history, followed
by the 20th anniversary of Stockholm, which took place in 1992 in Rio de Janeiro "Earth Summit"
and Declared that human beings are entitled to a healthy and productive life of harmony with
nature. The Rio de Janeiro earth summit agreed Agenda 21 and the Rio Declaration, These
documents outlined key policies for achieving sustainable development that meets the needs of the
poor and recognizes the limits of development to meet global needs.
The 74th Amendment Act
In 1992, with 74th Constitution Amendment Act (74th CAA), in fact, ushered in a new era in the
history of urban local government in the country. State legislatures were empowered to entrust local
bodies with necessary power and authority to enable them to function as institutions of local self-
government. It is a first serious attempt to ensure adequate constitutional obligation so that
democracy in the municipal government is stabilized.
The 74th CAA is, indeed a pointer to the determination of the state to bestow power to the people to
plan for themselves and participate in the decision-making process. The spatial and environment
planning in the planning system has also been envisaged by the act at various levels right from
nagar panchayats to a metropolitan area. It also provides for integration of the municipal plans with
district plans and through them with the state and national plans.
The Rules and Regulations in Last Ten Years
In 1995 another high powered committee on urban waste was setup. The Ministry of Environment
and Forests and the Central Pollution Control Board (CPCB) organized a meeting with municipal
authorities and other concerned ministers in March 1995 to evolve a strategy for the management
of municipal solid wastes. In 1995 CPCB established an Environmental Planning Cell and
introduced an environmental (land use) planning programme known as “Zoning Atlas for Siting of
Industries”. In 1996 government published guidelines for safe road transportation of hazardous

waste and the Chemical Accidents (Emergency Planning, Preparedness and Response) Rules for
combating disasters.
In 1998 Bio-Medical Waste (Management and Handling) Rules were issued is a legal binding on
the health care institutions to streamline the process of proper handling of hospital waste such as
segregation, disposal, collection, and treatment and Draft municipal solid waste (management and
handling) rules were issued.
For the benefit of planning in 1999, The Environment (Siting for Industrial Projects) Rules, 1999,
were laid down detailed provisions relating to areas to be avoided for siting of industries,
precautionary measures to be taken for site selecting as also the aspects of environmental
protection which should have been incorporated during the implementation of the industrial
development projects.
In 2000, Hazardous Wastes (Management and Handling) Rules were established; the rules lay
down the procedure for waste collection, segregation, storage, transportation, processing, and
disposal. This was followed by Final Municipal solid waste (management and handling) rules 2000
declaring that every municipal authority shall be responsible for the implementation of the rules and
for any infrastructure for collection, storage, segregation, transportation, processing and disposal of
Municipal solid waste. The Noise Pollution (Regulation and Control) Rules and The Ozone
Depleting Substances (Regulation and Control) Rules- have been laid down for the regulation of
production and consumption of ozone depleting substances were also established in 2000.
In 2002, The Wild Life (Protection) Amendment Act was amended to provide for the protection of
wild animals, birds and plants and for matters connected therewith or ancillary or incidental thereto
with a view to ensuring the ecological and environmental security of the country. In 2003 Bio-
Medical Waste (Management and Handling) (Amendment) Rules were amended. In 2003, Forest
(Conservation) Rules, 2003 super session of the Forest (Conservation) Rules, 1981.
In 2004 the Draft National Environment Policy (NEP) was published. The NEP, 2004 is a response
to national commitment to a clean environment, mandated in the Constitution in Articles 48 A and
51 A (g), strengthened by judicial interpretation of Article 21 Is recognized that maintaining a
healthy environment is not the state’s responsibility alone, but also that of every citizen. The NEP,
2004 is intended to be a guide to action: in regulatory reform, programmes and projects for
environmental conservation; and review and enactment of legislation, by agencies of the Central,
State, and Local Governments. It also seeks to stimulate partnerships of different stakeholders, i.e.
public agencies, local communities, the investment community, and international development
partners, in harnessing their respective resources and strengths for environmental management.
2.3. Summary
The formal planning and administrative system in India was introduced by the British colonizer,
hence the present planning system is mostly influenced or derived from British principle. The
earliest laws concerning environment (directly/indirectly), land and city management were
introduced by the British before the independence. It was during the British period when a lot of city
improvement trusts were established in cities and Town Planning Acts were enacted on lines of the
British Housing and Town Planning Act 1909.
After independence in 1947, town and country planning laws/ Acts were enacted in various states,
all these Acts provided for planning authorities at city level and town level for preparation of
Development Plan. These Acts are based on the Model Urban and Regional Planning Development
Act as proposed by the central government. However comprehensive urban and regional planning
in India was first introduced after independence in Delhi 1957, Delhi the capital city of India was the
first city to enact the Development Act in 1957 and the first Master Plan for Delhi was prepared in
1964. Delhi master plan was the first comprehensive Development Plan prepared in India and

many of the latter Master / Development Plans prepared by other cities in the country was based on
this Plan.
There are about two hundred laws dealing with environmental protection both before and after
independence in India. However, the pre-independence laws have not dealt with environmental
protection exclusively. For the purpose of this study, prior and post to Stockholm Conference, 1972
all the relevant Acts / Regulations and Policies in India related to development planning and
environment in India were identified.5 Below is summary of the list of Acts/ Regulation/ Policies that
should be or need to be incorporated or referred to while preparing a Development Plan.
Table 2.3. Acts/ Regulation and Policies to be Incorporated in the Development Plan
Relevant Acts, / Regulation/
Legislation / Policy
Objectives of the Acts / Regulation/
Legislation/ Policy
Rationale for Incorporation
The Easement Act, 1882 Allows private rights to use a resource that
is, groundwater, by viewing it as an
attachment to the land. It also states that
all surface water belongs to the state and
is a state property.
Understanding the issues related to
user rights Ground/ Surface water.
The land Acquisition Act, 1894 Compulsorily acquiring of land required
for public purpose
Important Act for land mobilization
The Bombay Provincial
Municipal Corporation Act 1949
Provision of civic infrastructure and
administration of the city
Understanding the role, responsibility
and powers of a municipal corporation
(Ahmedabad Municipal Corporation or
the AMC, is established under the
Bombay Provincial Corporation Act)
Indian Electricity Rules, 1956 To regulate the supply, transmission,
generation, and use of electricity.
Regulates and controlles the
horizontal and vertical clear distances
to be kept open to sky near vicinity of
grid lines.
The Gujarat Municipal Act 1963 Provision of civic infrastructure and
administration of the municipal area
Understanding the role, responsibility
and powers of the municipalities in the
Development area.
The Indian Wildlife (Protection)
Act 1972
Protection of birds and animals and for all
matters that are connected to it whether it
be their habitat or the waterhole or the
forests that sustain them.
Need to identify habitats of protected
birds and animals in urban area
The Water (Prevention and
Control of Pollution) Act 1974
To ensure that domestic and industrial
pollutants are not discharged into rivers
and lakes without adequate treatment
Need integration in the GDCR of
development area.
The Gujarat town Planning and
Urban Development Act, 1976
to consolidate and amend the law relating
to making and execution of development
plans and town planning schemes in the
state of Gujarat.
Legislation under which the
Development Plan is prepared
The Air (Prevention and Control
of Pollution) Act, 1981
To control and reduce air pollution. Need integration in the GDCR of
development area.
The Environment (Protection)
Act, 1986
To provide for the protection and
improvement of environment and for
matters connected there with in the
country.
It is the umbrella legislation under
which all the environmental legislation
are enacted.
The Constitution of 74th
Amendment, 1992
To achieve democratic decentralization
and provide constitutional endorsement of
local self governance authorities and
decentralization of planning and decision
making procedures.
Ensure adequate constitutional
obligation for local self governance
and decentralization of planning and
decision making procedures.
5 For Comprehensive historical list of Acts / Regulation / legislation / Events in Urban Planning and Environment refer
appendix -1.

Relevant Acts, / Regulation/
Legislation / Policy
Objectives of the Acts / Regulation/
Legislation/ Policy
Rationale for Incorporation
The Chemical Accidents
(Emergency Planning,
Preparedness and Response)
Rules, 1996
To deal with major chemical accidents and to
provide expert guidance for handling major
chemical accidents.
Under sec. 10 (1) mention measure to be
taken in industrial pocket to deal with
chemical accidents and coordinate efforts
in planning, preparedness and mitigation
of a chemical accident
Draft National Slum Policy 1999 To support the planned growth of urban areas
in a manner that will help to upgrade all
existing slums and informal settlements with
due regard for the protection of the wider
public interest
Under sec. 7- Planning for Integration,
the policy proposes Modification Existing
Planning Framework such as Master
Plans, Land Use Plans to ensure that
slums and informal settlements can be
properly integrated into the wider urban
area
The Environment (Siting for
Industrial Projects) Rules, 1999
Lay down detailed provisions relating to areas
to be avoided for siting of industries,
precautionary measures to be taken for site
selecting as also the aspects of environmental
protection which should have been
incorporated during the implementation of the
industrial development projects
To identify strategic location for Industrial
land use.
Hazardous Wastes
(Management and Handling)
rules, 2000
To control the generation, collection,
treatment, import, storage, and handling of
hazardous waste.
Need for environmentally sound
management of hazardous wastes
generated from the development area
and to identify strategic location for safe
disposal
Municipal Solid Waste
Rules, 2000
To provide scientific management of municipal
solid waste, To ensure proper collection,
segregation, transportation, processing and
disposal of solid wastes; and To upgrade
existing facilities to arrest contamination of soil
and ground water
To integrate the rules while preparing
proposal for solid waste management of
the development area and to identify
strategic location for safe disposal site.
Noise Pollution (Regulation and
Control) Rules, 2000
To regulate and control noise producing and
generating sources with the objective of
maintaining the ambient air quality standards in
respect of noise
Under sec. 3 (4) All development
authorities, local bodies and other
concerned authorities while planning
developmental activity or carrying out
functions relating to town and country
planning shall take into consideration all
aspects of noise pollution as a parameter
of quality of life to avoid noise menace
Bio-Medical Waste
rules, 2003
Legal binding on the health care institutions to
streamline the process of proper handling of
hospital waste such as segregation, disposal,
collection, and treatment.
To integrate the rules in the GDCR of
development area and promote proper
management and handling.
The Gujarat State Disaster
Management Act, 2003
To provide for effective management of
disaster, for mitigation of effects of disaster, for
administering, facilitating, coordinating and
monitoring emergency relief during and after
occurrence of disasters
Under Sec. 17(1) (2) of the Act, it
Proposes Recommendations to be made
to the appropriate authority regarding the
development plan.
Draft National Environment
Policy, 2004
To mainstream environmental concerns in all
development activities. Conservation of Critical
Environmental Resources, Intra-generational
Equity: Livelihood Security for the Poor, Inter-
generational Equity, Integration of
Environmental Concerns in Economic and
Social Development, Efficiency in
Environmental Resource Use, Environmental
Governance.
The objectives are to be realized through
various strategic interventions by different
public authorities at Central, State, and
Local Government levels. The NEP also
proposes substantive reform for the
development plan.
EIA- Draft Notification for
projects, 2005
To identify and evaluate the potential impacts
(beneficial and adverse) of development
projects on the environmental system
Projects E.I.A can be seen as a positive
contribution to the planning process and
the findings can be feed into the next
review of the Development Plan provided
the results are well founded
Draft National Urban Housing
and Habitat Policy, 2005
To promote sustainable development of
habitat in the country, with a view to ensure
equitable supply of land, shelter and services
at affordable prices
The policy proposes action-oriented
initiatives at all levels of Government and
specifies action that requires to be
integrated in development plan.

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3.1. Planning instruments/ Plans
Urbanization, a process which often leads to haphazard growth of cities, deterioration in living
condition, and worsening of environmental scenario has become a common feature in country
today. The trend is escalating the pressure on limited land resource available in the city and its
environs. The process of urbanization and increasing demand of land to accommodate the
increasing urban population lead to haphazard urban growth and productive agricultural land is lost
in the process. In this regards urban development planning assumes an important role to control
and regulate the growth of the city
In the Indian system, to guide the urban development planning process Urban Development Plans
Formulation and Implementation (UDPFI) guidelines have been prepared. These guidelines
propose a set of four interrelated plans as follows:
1. Perspective Plan
2. Development Plan
3. Annual Plan
4. Plans of Projects/Schemes.
3.1.1. Other Planning Instruments/ Plans
Apart from the plans mentioned above some cities also prepare Vision Documents/Plans, Structure
Plan, Comprehensive Plans, Strategic Plans and lately City Development Strategies (DCS), City
Development Plan (CDP) and Action Plan.
Vision Documents/ Perspective Plans
Vision documents are similar to a perspective plan, the idea behind preparing these vision
documents/ plans, is that Successful long-range planning can occur only if a city has a vision. This
vision documents broadly gives the ambitions and aspirations for the city development for the next
20 years and this is framed by a vision statements/goals. It provides a policy framework for further
detailing and it serves as a guide for urban local authority in preparation of the Development Plan.
Structure Plan6
Structure Plan contains the vision, goals, policies and proposals to guide the development of a City
over the next 20 years. The Plan contains details of all the relevant separate components that
make up the City, that is, its economic base and population, broad land use and development
strategies, commerce, tourism, industry, transportation, infrastructure and utilities, housing,
community facilities, urban design and landscape, environment and special areas. It does not
contain proposals for detailed physical planning for any specific area. Detailed physical proposals
shall be relegated to a subsequent stage of the Development Plan. The Development plan shall
provide for the citizens a more comprehensive and detailed perspective of the future of the city.
Lately The Master Plan idea has moved to Structure Plan, but it is considered more philosophical;
policy oriented, and in places where the structure plan doesn’t have statutory status, it became
more a sort of a book-shelf plan than an implementation plan.
6 With reference to CHKL, (undated), Kuala Lumpur Structure Plan 2020, [Online], Available:
http://www.dbkl.gov.my/pskl2020/english/index.htm [4 January 2006]

Comprehensive Plan
Comprehensive Plan has a long-range perspective, and is a policy document that provides a
coordinated approach to making many decisions regarding land use and the location of
development. The City Comprehensive Plan establishes an urban development strategy and
policies to guide the future growth and development (generally 5-20 years). The objective of the
plan is to provide necessary details and intended actions in the form of strategies and physical
proposals for various policies given in the perspective plan. It is a statutory plan conceived under
the state town planning act. This plan is similar to the Development Plans that are prepared in
India; it is also know as a Comprehensive Development Plan in some states of India.
Strategic Plan
Strategic Plan is sector based plans or issue/issues based plans like - economic Development Plan
for a city/ human resource Development Plan/ Transportation Plan. The purpose of the plan is to
articulate a set of measurable strategies and actions to facilitate development of the City (based on
the sector or issue) and to clearly define the goals, roles and responsibilities for achieving
successful outcome.
City Development Strategies (CDS)7
A City Development Strategy (CDS) is an action plan for equitable growth in a city, developed and
sustained through public participation to improve the quality of life for all citizens. The goals are a
collective city vision and action plan to improve governance and management, increasing
investments to expand employment and services, and systematic and sustained programs to
reduce poverty. A city is expected to drive the process and local ownership is essential. In other
words, a CDS is a Corporate Plan for the city.
City Development Plan (CDP)8
The City Development Plan (CDP) is the Municipal Corporation’s corporate strategy that presents
both a vision of a desired future perspective for the city and the Corporation’s organization, and
mission statements on how the Corporation, together with other stakeholders, intends to work
towards achieving their long-term vision in the next five to ten years. It is similar to a City
Development Strategies, but presently CDP in India are prepared under the JawaharIal Nehru
National Urban Renewal Mission (JNURM) and the only difference between CDS and CDP is that
CDP contains a Financially Operational Plan (FOP).
Table 3.1. Summary of the Planning Instruments / Plans
Planning
Instruments/ Plans
Objectives and Content of the Plan Legal Status
To define a vision for the next 20-25 years for the city
(ambitions and aspirations of the city)
To provides a policy framework for further detailing and it
serves as a guide for urban local authority in preparation of
the development plan.
Contains the vision, goals, policies and proposals to guide the
development of a City over the next 20 years
Does not contain proposals for detailed physical planning for
any specific area
Vision Document/
Perspective Plan
No legal Status
Structure Plan No legal Status
7 Asian Development Bank, [online], Available: www.adb.org [6 January 2006]
8 PMC. (2006), Pune City development plan, [online], Available: http://www.egovpmc.com/tp/cdp/pune_cdp-
final_draftreport.doc [19 January 2006]

Planning
Instruments/ Plans
Objectives and Content of the Plan Legal Status
To provide necessary details and intended actions in the form
of strategies and physical proposals for various policies given
in the perspective plan. (time-span 5-20 Years)
Is a policy document that provides a coordinated approach to
making many decisions regarding land use and the location of
development.
To articulate a set of measurable strategies and actions to
facilitate development of the City and to clearly define the
goals, roles and responsibilities. (time-span 1-5 Years)
Is a sector based plans or issue/issues based plans.
To improve governance and management, increasing
investments to expand employment and services, and
systematic and sustained programs to reduce poverty (time-
span 5-8 Years)
It is a corporate plan for the city
City Development
Plan/ City
Development
Strategies
No legal Status
Comprehensive
Development Plan/
Development Plan
Legal Status
provided by the
Acts under which
it is conceived
Strategic Plan No legal Status
3.2. Development Plan
A Development Plan is a Plan conceived within the framework of the approved Perspective Plan, it
is a medium term plan (generally 5-20 years) providing to the people the comprehensive proposals
for socio-economic and spatial development of the urban center indicating the manner in which the
use of land and development there in shall be carried out by the local authority and other agencies.
It is a statutory plan, adopted by the local authority for implementation with the help of schemes and
projects. Its proposals are precise and definite, in some cities this is also known as a Master Plan.
Development Plan envisages the entire town/urban area as a single unit. This is necessary to
achieve overall development of the town/urban area in a co-ordinate manner. The development or
expansion of a town takes along time, and therefore the development has to be regulated in time
on the basis of a Plan. A Development Plan is thus a blue print of the various proposals that are
intended to improve the existing conditions and to control the future growth of the town in a
coordinated manner.
3.2.1. Environment in Development Plan
A major criticism of development planning is that it has failed to adequately incorporate
environmental consideration and values in a Development Plan. Most of the Development Plan
including Ahmedabad Development Plan mentions environment, as an important component, but
these is limited to concerns about pollution of air and water. Air and water are mainly mentioned
because; majority cities like Ahmedabad have reached to a high pollution level, which are affecting
the health of the citizens. But around the globe the emphasis has changed with the realization that
environmental considerations should not be limited to concerns about just pollution control but
should be more positive in aiming to create more comfortable, pleasant and stimulating
surroundings natural and manmade environments. So considering the bio-centric view, one has to
look at element like air, water, and land resources, open spaces and natural resources,
archeological and historical resources, and areas subject to natural hazards and man made
hazards, and integrate it in the Development Plan. If initially proper environmental integration was
achieved, environmental impact statements will be much less likely to uncover unanticipated
negative effects requiring costly plan changes and delay.
Along with physical environment more important is the resulting Development Plan should be much
more sensitive to all the needs- social and cultural as well as physical needs of the people who live
in urban areas.

Development Plan and Environment: A Case of Ahmedabad. A Master Dissertation by Rohit Nadkarni

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