REPORT

OF THE

EXPERT COMMITTEE
ON LAL DORA
&
EXTENDED LAL DORA
IN DELHI

1
 Report of Expert Committee on Lal Dora

CONTENTS
.

page nos.

Foreword 3

Acknowledgements 6

Endorsement of the Report by Committee Members 7

Chapter 1: Introduction 8

Chapter 2: The Background 11

Chapter 3: Efforts of the Govt. of NCT Delhi 17

to address the problem of the Villages

Chapter 4: Problems of the villages and 19

efforts of DDA and MCD
at addressing them

Chapter 5: Aspirations of the village people 29

and their assignments

Chapter 6: Terms of reference: Committees response 37

with the reference to the problem faced
by villagers.

Chapter 7: Recommendations 43

Executive Summary 51

2
 FOREWORD

Decision of the Government of India in the Ministry of Urban Development to

address the long-standing problems of the villages of Delhi that had been swept into
the backwaters of progress by the torrent of urbanisation was not only timely but also
imperative. Besides, it gave us, the Members of the Expert Committee on Lal Dora
(ECLD), the opportunity to get associated once again in the noble task of improving the
living conditions and environment in the villages and bringing before the village-people
unprecedented opportunities of enhancing their prosperity. All of us, Members of this
Committee, have had long and pleasant experience of serving the people of Delhi in one
capacity or the other and have intimate knowledge of their problems. Discussions and
interactions on this issue over the past few months were a stimulating and rewarding
experience. Drawing up of this Report has been for us a labour of love.

The village-abadis of Delhi – 227 rural and 135 urbanised till date –have been
circumscribed by Lal Dora. Confined as it were by the Red Line, both in the literal and
figurative sense, they have got reduced to cramped, unhealthy pockets, lacking largely
even in the basic civic services. Surrounding agricultural lands, fields and farms, the
traditional and principal base for their livelihood over the ages, were taken away for a
pittance and resold at huge profit. Yet very little, not even a reasonable proportion, was
invested in introducing the basic-most civic services (water-supply, sewerage, solid
waste management systems etc) to them.

Little attention was paid to facilitate and smoothen their transition to alternate
means of livelihood. The choice before them for sheer survival was either to earn as
best as they could from their land/property or to let their younger generation take to
dubious get-rich-quick ways of life. The innate maturity and high value system of our
rural folk, based as it is on our noble cultural and spiritual tradition and the teachings
of our epics, they chose the former. Deprived of land for agriculture and facilities for
keeping cattle, they were driven to opening shops, starting small industries wherever
they could; renting out their premises for godowns, offices and the like. Some were
tempted to sell off their lands at prices, seemingly high but just a fraction of their real
intrinsic potential value.

The latest trend of strict segregation of the non-residential uses in residential

areas in urban colonies, is thus neither relevant nor even fair and just to the villages
that still retain their predominantly rural character.

3
 The Committee feels, strongly and unanimously, that the solution lies not in
making futile attempts at resisting the wave of urbanisation in Delhi, but in taking the
maximum advantage of the opportunities that urbanisation has to offer. Our national
capital has to be the pride of our great country. Its urbanisation with as intensive use
of land as is possible to accommodate its present population and the addition in future,
is inevitable. At the same time it must be ensured that sub-standard pockets (villages,
unauthorised colonies, slums, JJ-clusters etc), as well as our heritage areas including
the Old City be developed or redeveloped with wide street pattern and clean and decent
living spaces, limited 24-point mixed land-use (as recently approved by the Hon’ble
Supreme Court) and ample commercial spaces adequate for the present and up to 2021,
are planned for and provided. All this must be done while retaining the green character
of Delhi, improving the aesthetics and conserving, improving and beautifying our
heritage sites and places of healthy recreation.

With increase in population and limited space, one has to shed the reluctance in
going vertical. If other world-class cities have sky-scrapers, why must we limit our
constructions to 4 or 8 storeys? If DDA can have a 23-storey tower and MCD plans to
have 28-storey Civic Centre, why should a private enterprising citizen be denied the
opportunity to go still higher - a tower that provides for most of the requirements of
its residents in situ and is a self-financing (and profitable) Endeavour ? Liberty and
opportunity to private sector has to be provided if our dream of making Delhi a world-
class metropolis is to come true.

The Committee has recommended a strategy of development/ redevelopment

that aims at:
 Providing modern, decent living accommodation to all the present residents of
villages and for natural increase in the future;
 Enabling painless and desirable, limited segregation of residential and non-
residential activities;
 Renewal of decaying structures, markets and areas, including private properties;
 Building up of proper urban infrastructure for better health & hygiene;
 Integration of sub-standard decayed pockets (Lal Dora/urban villages etc) with
the surroundings of planned proper residential colonies and commercial areas;
 Putting vacant and encroached public land to proper use;
 Promotion of trade and commerce for creation of job-opportunities and economic
prosperity;
 Conservation and promotion of traditional arts & crafts and recognition to
artistes and artisans;
 Development/Beautification of Delhi befitting of our National Capital;

4
  Making development/redevelopment process largely self-financing and self-
sustaining and in consultation with the people;
 Quick enrichment of the villagers through optimally intensive utilisation of their
lands – vacant and built up – that will enhance its value several-fold through:
o self-effort if they are prepared to invest in development OR
o adopting PPP-route where land-owners are the main beneficiaries without
making any investment.
 Large-scale public satisfaction and enrichment and transformation of sub-
standard areas into good modern localities with urban facilities and rural
ambience.

This strategy can easily be adopted/adapted to transform other sub-

standard areas of Delhi, viz., unauthorised and regularised colonies, JJ-clusters,
slum areas etc on one hand and heritage areas like Old City and some villages,
localities on the Ridge, in Reserved Forest Areas and such others.
On behalf of the Members of the Committee and on my own behalf, I express my
heartful thanks to all those who contributed their wisdom and time in the making of
this Report.

New Delhi (P P Shrivastav)

12 Jan 07 Chairman, Expert Committee on Lal Dora b

ACKNOWLEDGEMENTS

The Committee expresses its thanks and gratitude to the wide cross-section of
the village-society who gave it the benefit of their views, suggestions and opportunity
for intensive interaction. Special thanks are due to the Hon’ble Union Ministers, MOS,
Chief Minister (and former CM) of Delhi, Speaker of Delhi Assembly, Members of
Parliament, Members of Delhi Assembly, Municipal Councillors, political leadership at
various levels, professional experts in the urban planning and administration, Officers,
academicians, Civil Society representatives, journalists and others. Special thanks are
due to the Secretary (present and former) and Addl Secretary in the Ministry of UD
for their support to the Committee.

I have no words to adequately express gratitude to my colleagues in the

Committee without whose willing help and cooperation, it would have been difficult to

5
complete this task. The Committee was enriched by the erudition and breadth of
outlook of Prof Jamal Ansari, the deep knowledge, wide experience of Shri R G Gupta
and the exhaustive data-base that he made available to us; the scholarly contribution of
Shri D D Mathur as former Chief of Town Planning Dept of MCD for a quarter of
century, the imaginative and inspiring plans of redevelopment of several sub-standard
and potentially valuable pockets prepared by Shri Vijay Singh. All these have gone into
the making of this Report. The pressure of work on Divisional Commissioner (Revenue) in
Delhi is tremendous. Yet Shri Narendra Kumar and his successor Ms Naini Jayaseelan
gave us whatever time they could spare. ADMs Shri A K Kaushal mainly and Shri Sanjay
Kumar Jha on a few occasions, represented them in the Committee’s meetings. As the
Chief Town Planner of MCD, Shri V K Bugga was a repository of knowledge and wisdom.
He was involved in so many Committees and was needed in so many meetings at so many
places. Yet as Member-cum-Convener of ECLD, his contribution was comprehensive and
admirable. He was ably assisted by Shri Ajay Das Biswas, Dy Town Planner, MCD who
worked for this Committee day and night. I am extremely grateful to him.

New Delhi (P P Shrivastav)

12 Jan 07 Chairman, Expert Committee on Lal Dora

6
 EXPERT COMMITTEE ON LAL DORA

Constituted by the Union Ministry of Urban Development

vide its order No. K-12016/5/2006-DDIB dated 26.7.06

We, the Members of the Committee have the honour of presenting the Report of
this Committee to you for consideration and acceptance of its recommendations.

(Prof Jamal Ansari) (R G Gupta)

Member Member

(Naini Jayaseelan) (V K Bugga)

Member Member-Convener

(D D Mathur) (Vijay Singh)

Co-opted Member Co-opted Member

(P P Shrivastav)
Chairman

7
 REPORT OF THE EXPERT COMMITTEE ON LAL DORA

CHAPTER – 1

INTRODUCTION
The Union Ministry of Urban Development vide its order No. K-12016/5/2006-DDIB
dated 26.7.06 (copy at Annexure-1a) set up a Committee of experts to look into the issues
of application of building regulations and development control norms in Lal Dora and
Extended Lal Dora areas and their integration in the overall process of the planned
development of Delhi. The Committee consists of the following experts:

Chairman Shri P P Shrivastav Member, North-Eastern Council (the

statutory Planning Body for the eight
States of the North Eastern Region)

Members i Prof Jamal Ansari Formerly, Actg Director, School of

Planning & Architecture, New Delhi

ii Shri R G Gupta Policy Planner, Delhi

iii Div. Commissioner Shri Narendra Kumar (upto Oct 06)

Govt. of NCT of Delhi Ms Naini Jayaseelan thereafter.

Member- iv Chief Town Planner Shri V K Bugga

Convener Mpl Corpn of Delhi

1.2 Subsequently, the Committee found it desirable to co-opt two other eminent
experts. One of them, Shri D D Mathur, has the unique experience of heading the Town
Planning Department of the Municipal Corporation of Delhi for quarter of a century (from
1965 to 1990) during which he remained associated with formulation and implementation
of the Master Plan of Delhi. Besides, he has teaching experience in the University of
Roorkee and the School of Planning & Architecture, New Delhi. The second co-opted
expert, Shri Vijay Singh, presently posted as Dy Commissioner (City Zone and IT) in the
Municipal Corporation of Delhi has a doctorate degree from JNU in land-development in
Delhi. He also has long experience of planning and administration of rural areas while
heading the Panchayat Department of the Govt of NCT Delhi. Besides, he is presently
engaged in holistic redevelopment of Jama Masjid area and some other congested areas of
Delhi including the walled city.
1.3 Terms of Reference of this Expert Committee on Lal Dora (ECLD) are as follows:

i. To examine the desirability and/or feasibility of integration of Lal Dora and extended
Lal Dora areas of Delhi in the overall process of Planned development of the city;

ii. If so, to recommend broad principles and terms and conditions for achieving the
integration, as mentioned at (i) above;
8
iii. To suggest planning and development control norms that should govern development
activity in Lal Dora and extended Lal Dora areas of Delhi;

iv. To consider the recommendations contained in the Tejendra Khanna Committee

report in respect of Lal Dora and extended Lal Dora areas and to suggest modalities
for implementation of the feasible recommendations; and

v. Any other matter related or incidental to any of the terms of references mentioned
above.

1.4 The Committee was to submit its recommendation in 3 months time but the
magnitude of the task was so large, involving as it did, intensive interaction with
interested members of the village community, leaders of public opinion and elected
representatives of the people, that it was not possible for ECLD to complete its work
within this deadline. Accordingly, ECLD requested extension of time till 31 Dec 06 and this
was given by the Ministry of Urban Development. (ANNEXURE -1b)

1.5 In order to obtain views and suggestions on the various issues involved from the
various sections of the Society including representative bodies, interest groups, NGOs, Civil
Society representations, experts, member of public and representative of the affected
villagers etc, a Public Notice was issued which appeared in the National Press on the 27 th &
28th August, 2006. (English version of the Public Notice is at ANNEXURE 2).

1.6 Around 90 representations were received in response to the Public Notice and all
these were closely studied. All the persons/groups concerned were invited for detailed
face-to-face interaction to fully understand and realistically appreciate their points of
view and suggestions. Detailed discussions were held with all those who came and these
proved invaluable. The Committee is grateful to them for the trouble taken by them and
for their valuable ideas and suggestions. The points made in all these representations and
interactions have been summarised in ANNEXURE 3.

1.7 It was also felt that in addition to the public hearings mentioned above, closer
interaction with the elected representatives of the people, especially those representing
the rural areas and are fully conversant with the area and feelings of the public, would
provide valuable input to the Committee. All the Hon’ble Members of Parliament from
Delhi were addressed accordingly for seeking their convenience for meetings. Widespread
discussions were held formally and informally and these included discussions with Hon’ble
Union Minister of State in Ministry of UD, Hon’ble Lt Governor of Delhi, Hon’ble Chief
Minister of Delhi, former Chief Minister, Hon’ble Speaker of Delhi Assembly, Hon’ble MPs.
from Delhi, Hon’ble MLAs of Delhi Assembly, Chairman of the Standing Committee and
Leader of the Opposition of MCD. VC DDA was also addressed and his reply was also
received. The Committee also met concerned officers of Govt. of NCT of Delhi and
Commissioner of MCD to elicit their views. A meeting organized by the Hon’ble Speaker of
Delhi Assembly collectively with the Hon’ble Members representing rural areas had to be
cancelled at the last moment on account of an unexpected last-minute local problem. The
inputs received from these close and detailed interactions were most valuable.
9
1.8 The Committee also visited some typical rural/urban villages based on their
geographical location, character and predominant activities of the people. These villages
included Azadpur and Badli (urbanized) and several other villages in different areas of
Delhi.

1.9 The Committee met formally in a total of 23 sittings where the various aspects of
the issues involved were discussed threadbare and unanimous consensus emerged in
identification of the problems of the rural people and finding ways of addressing them in
an effective, practical and time-bound manner.

1.10 The Committee was also keen to demonstrate implementation of two of its key
recommendations (viz., firstly of making a beginning in introducing transparency in
maintenance of village records and secondly of showing how with people’s participation
development in a village could be integrated with the surrounding areas) in the form of
two small pilot projects. Under the first project, rural maps and records already available
in South District were to be brought on to MCD’s Website within a month’s time. Under the
other, model redevelopment plans of a few villages were to be prepared. Both these could
be taken up with funds available under a sanctioned scheme of Delhi Government.
Unfortunately, these could not be initiated due to certain reasons. These pilot projects
could easily be taken up and completed in a period of 3 months or so.

1.11 The Committee would like to place on record its deep appreciation and gratitude to
all those members of the public and their leaders who took keen interest in favouring us
with their views and constructive suggestions. These proved to be of great help in bringing
this initiative and endeavour of the Government to solve the problems of the rural areas in
consultation with the people at this crucial point of time when the Master Plan of Delhi
with 2021-perspective is being finalized.
*** *** ***

10
 CHAPTER - 2
THE BACKGROUND

2.1.1 As per the 2005-06 edition of the Economic Survey of Delhi, the total population of
Delhi (2001 census) stood at 138,50507, out of which the urban population was 129,05780
(93.18%). Out of Delhi’s total area of 1483 sq km, the Urban area was 924.68 sq km. Thus
the area of rural Delhi stood at 558.32 sq km and the population was 9,44,727 (say 9.5
lakh) in 2001. Draft Master Plan 2021 has projected Delhi’s population in 2011 at 182.0
lakh and 230.0 lakh in 2021.

2.1.2 While Appendix 1 of the Delhi Land Reforms Rules, 1954 lists 358 villages in the UT
of Delhi, the Tejendra Khanna Committee Report has put the number of villages at 362.
Possibly some Revenue Estates created subsequently by the Lt Governor of Delhi have been
included in the list of villages. 135 villages out of these have been declared as urbanized
villages (ANNEXURE 4) and thus the remaining 227 remain as rural villages. 15 out of these
227 villages stand recommended by MCD (since the year 2000) to the Govt. of NCT of Delhi
for being declared as urban u/s 507 of DMC Act. The notification to this effect is yet to
be issued by Govt. of NCT of Delhi.

2.1.3 The metropolitan town of Delhi has grown on agricultural lands acquired from the
villagers. Initially, in building up of Lutyen’s Delhi, the villages were relocated; later
only their agricultural lands were acquired and the residential areas (abadi deh) were
circumscribed by a red line and that is how the term Lal Dora came into use. The process
of urbanisation over the years has been engulfing the villages. Urban Delhi grew fast
around them while the villages remained within the confines of their Lal Doras. The close
layouts and narrow lanes of old village abadis were conditioned by old (now outdated)
historical compulsions of collective security, considerations of mutual interdependence
and availability alround of vast open agricultural fields. Now with agricultural fields (that
provided the open environment) having been acquired by DDA or grabbed/colonised by
market forces driven by skyrocketing land-values, on the one hand and with natural
increase in village population on the other, the village abadis have become intolerably
cramped. It has not been possible to extend even the basic-most civic services like water-
supply and sewage-disposal in the narrow twisting streets and haphazard layouts within Lal
Dora in all the 135 urbanized villages as on date. Most of the dwelling units are
inaccessible to ambulances and fire-tenders to attend to emergencies.

2.1.4 What is still worse is that the villagers have been deprived of their principal, if not
the sole means of permanent sustenance – their agricultural fields and space to maintain
cattle. A farmer’s life is as inextricably linked

with agricultural fields as a tribal’s is to the forests that have sustained his past
generations. One-time compensation at government rates for land acquired tends to go as
fast as it comes. It is hardly an adequate recompense for land (with ever-escalating value
in the urbanization process) that is a permanent and perennial source of sustenance.

11
Deprived of agricultural land and facilities for keeping cattle, the villagers were driven to
opening shops, start small industries wherever they could; renting out their premises for
godowns, offices and the like. With urban Delhi hard-pressed for dwelling units to house
the flood of in-migrants from elsewhere, and consequent sky-rocketing of value of vacant
land, many villagers were tempted to sell off their lands to colonizers and builders. The
areas covered by extension of Lal Dora and agricultural fields around the villages – both
acquired and unacquired – became favourite hunting ground of the middle-class – lower
and higher – to satisfy their need of cheap housing. Thanks to the alleged collusion
between colonisers and enforcement agencies, highly sub-standard unauthorized colonies
mushroomed in these areas. A big list of 1432 such colonies is slated for regularization as
of date and reportedly, a proposal to add 88 more to this list is under consideration.

2.1.5 In the shadow of these developments and with their age-old traditional means of
sustenance taken away from them, can one blame the villagers for the shops and
industries, godowns and show-rooms that have come up in violation, technically speaking,
of the laws and bye-laws, rules and regulations? In the struggle for survival and
sustenance, it was either this technical violation or taking to violence and crime.

2.1.6 The solution to the problems of rural villages lies in finding ways that would inspire
the villagers themselves, at least the younger generation, to demand that they be
permitted to enhance the value of their property by making as intensive use of their lands
as feasible through redevelopment. The Committee also feels, very broadly at the macro-
level, that with our rural brethren (6.82% of Delhi’s total population) living in 37.64% of
the total land area of Delhi, it should not be difficult to adequately meet not only the
present but also the future needs of our villages. Creation of good modern housing and
commercial areas in multi-storey complexes would mean substantial enhancement in the
value of their property. It would not be necessary for anyone to move away from their
original area: all their non-residential activities could also be met in the vicinity itself. In
fact, new markets could be created for fresh commercial and trading activity adding to the
prosperity of the villages. That would also relieve the acute scarcity of commercial
premises in Delhi which is causing so many problems for the traders. Further details of this
strategy will be discussed elsewhere in this Report.

2.2 Among the factors for deterioration of the situation in village abadis as seen today,
are the following. The first Master Plan of Delhi (1961-81) prescribed principles for
development of rural areas in Delhi, but detailed planning remained partial especially in
respect of rural villages. Even in the
villages included (or proposed to be included) in the urbanisable limits of Delhi,
implementation of detailed guidelines in respect of development of abadi areas remained
partial and unsatisfactory. On 16 Feb 77 the Ministry of Urban Development issued orders
regarding regularization of unauthorized colonies. It was further specifically clarified (vide
Order No. J-13037/113/74/UDI/II-B dated 22 Mar 77) that “the unauthorized
colonies/residential and commercial structures located within the ‘Lal Dora’” would also
be covered. In 1979 a Working Group was constituted to formulate a Perspective Plan for
the Development of Sub-standard Areas of Delhi (1980-2000). This included villages as well,
but was not followed up. A Mini-Master Plan giving details of physical and financial
planning of all the essential services was formulated in 1984, but was not implemented.
12
This was further revised during the period 1991 onwards and a few facilities were
provided. Another ambitious project Sardar Patel Gramodaya Yojna was inaugurated in
1997 but remained largely unimplemented.

2.3 The revised Master Plan - MPD-2001 - that was enforced in 1990, did lay emphasis on
integrated development of rural areas. Unfortunately, the zonal plans, area development
plans and redevelopment plans prepared by different authorities did not indicate abadi
(Lal Dora and extended Lal Dora) on the maps and attempts, if any, to implement
whatever had been planned or to integrate the development of abadis with the
surrounding areas remained thoroughly inadequate.

2.4 Even in cases where decision had been taken to urbanise some villages, delay in
issue of notification declaring them as urban and acquisition of land for meeting the needs
of village communities resulted in unplanned growth around the villages. Also, instead of
making allowance for natural increase in village population and reserving adjacent land for
the same, new colonies were planned in such lands, e.g., East of Kailash, Dwarka, Rohini
and Vasant Kunj. These were developed on acquired agricultural land of villages.
Responsibility for preparation and implementation of various schemes under the program
was never clearly defined. This responsibility as well as that of framing and enforcing
development controls was transferred from one agency to another. Building control
regulations were neither prescribed in the Master Plan nor made effective in urban villages
(Lal Dora or Extended Lal Dora) under the erroneous but convenient assumption that since
such regulations were not applicable in the village abadis, the same would also not apply
to urbanized villages as well.

2.5 Large scale unauthorised construction that began on account of the above and of
lack of integration of urbanized village ‘abadis’ with the process of planned development
in the surrounding areas, soon spread to all parts of Delhi. In February 2006 the Ministry of
Urban Development constituted a Committee under the Chairmanship of Shri Tejendra
Khanna, former Lt Governor of Delhi, to look into various aspects of unauthorized
construction and misuse of premises in Delhi. In its Report (May 2006) the Tejendra Khanna
Committee highlighted the urgency of the need to look into problems of Lal Dora and
Extended Lal Dora areas, with specific reference to their non-integration with the overall
planned development of Delhi. That perhaps prepared the ground for setting up of this
Expert Committee on Lal Dora (ECLD).

2.6 At this stage, it would be desirable to clarify some terms that have come into
common parlance.

2.7 The land earmarked for village abadi and the agricultural land of the village were
duly demarcated in the land settlement of 1908-09 and the abadi site was circumscribed in
the village map in red ink. That is how it came to be commonly known as Lal Dora. The
land falling within Lal Dora is not assessed to land revenue. Those falling outside the
village abadi (Lal Dora) are meant for purpose connected with agriculture and are subject
to land revenue.

13
2.8 Similarly the term Extended Lal Dora does not appear in any of the provisions of
the revenue laws. However, the East Punjab Holding (Consolidation and Prevention of
Fragmentation) Act, 1948 as extended to Delhi did provide for extension of abadi for
residential and common purposes and for common needs of the villagers. Consolidation
operations (detailed in Chapter 3 ahead) began in Delhi in 1952 and orders extending Lal
Dora were issued in Delhi from time to time. The extended village abadi was enclosed
within the new peripheral boundary known as `phirni’ (generally a road at the periphery)
and the area between the original Lal Dora and the post- consolidation `phirni’ was
treated as Extended Lal Dora area. Plots in the Extended Lal Dora are given separate
Khasra numbers in revenue records. These constitute free-hold residential land with
ownership name recorded in Khatouni (Register of permanent Land Record). The Extended
Lal Dora plots can be transacted authorisedly through registered sale deeds and the
ownership is mutated accordingly in the revenue records. On the other hand, the
ownership of land falling within Lal Dora is only held by way of possession and is not
recorded in the revenue records.

2.9 The entire village Abadi bears just one Khasra number and the competent authority
to certify the boundary of village abadi is the Revenue Department of the Govt. of National
Capital Territory of Delhi.

2.10 Rural villages that fall within the urbanisable limits as per Master Plan of Delhi are
declared urban u/s 507 of the DMC Act through a notification issued by the Govt of NCT
Delhi. The legal consequences of urbanization of a village is that the provisions of Master
Plan/Zonal Plan/relevant Area Development Plan/Building Bye-laws become applicable and
the provisions of the Delhi Land Reforms Act ceases to operate as per the provision u/s 1(2)
of the said Act. The moment, a village is declared urban u/s 507 of DMC Act, Lal Dora
ceases to exist. The clarification in this context was issued by the Union Ministry of

Urban Development vide their letter dated 23.3.01 (ANNEXURE 5). Depending on the body
having territorial jurisdiction, development plans of urban villages are prepared by DDA or
MCD in accordance with the norms stipulated in Master Plan of Delhi.

2.11 Villages falling in the Rural Use Zone that have NOT been notified u/s 507 of DMC
Act nor any change of land-use declared under the DDA Act, 1957 are termed as Rural
Villages. Here the traditional revenue records like Khasra-Khatouni (Khasra is the unit
number assigned to a specific plot of land and Khatouni is record of ownership and other
details like area, record of mutations etc), Shijra (map of the Revenue Estate), Jamabandi
(record of ownership and of possession under the East Punjab Act), etc are maintained by
the Revenue Department of Govt. of NCT of Delhi.

2.12 Applicability of Building Regulations

Rural villages are exempt from the operation of certain sections of DMC Act
pertaining to Building Regulations only in so far as the areas of village abadis as defined in
the revenue records are concerned provided that the exemption is not applicable to
Factories, Ware Houses, Cold Storages, and Slaughter Houses. The said exemption was
authorized under MCD’s Notification of August 1963 (ANNEXURE 6). This notification only
exempted the residents of the abadi area from obtaining sanction of building plan for their
14
residential units. It did not exempt buildings from the purview of Building Bye-Laws.
Residential Buildings within Lal Dora and Extended Lal Dora are permitted two and a half
floors. These stipulations have been made amply clear in the Office Order No.
TP/G/683/04 dated 03.02.04 issued by Commissioner, MCD (ANNEXURE 7). Building
activity in urban villages is governed by the relevant stipulations contained in the Master
Plan/Zonal Plan/Development Plan of concerned village/Building Bye-laws.

2.13 The Hon’ble Supreme Court in its judgment dated 07.05.04 (M C Mehta Vs. UOI &
Others) directed MCD to consider withdrawal of the notification dated 24.08.1963. The
deliberative wing of MCD approved the withdrawal of the notification vide its Resolution
No. 683 dated 21.02.05 as recommended by the Sub-Committee constituted for the
purpose. Government of NCT of Delhi was accordingly requested to notify withdrawal of
the notification of 1963. However, the matter came to be reconsidered by the Corporation
after 10 months on the basis of the Standing Committee’s Resolution of 27.02.06 approving
a Private Member’s proposal that the said 1963-notification should not be withdrawn. The
Government of NCT of Delhi was thereupon informed accordingly.

2.14 Development Plans for Urbanised Villages are to be prepared by DDA/MCD as per
norms stipulated in the Master Plan of Delhi. In the process, vacant areas around the
villages are reserved for such community facilities that are deficient in the villages.
Unfortunately, the lands earmarked for the same get encroached/built upon and the local
bodies are unable to remove them. DDA/MCD has prepared development plans for about
70-75 villages but these were implemented only partially. Development plans of two urban
villages are appended as ANNEXURE 8) as samples.

2.15 Recently the Union Ministry of Urban Development has again directed that MCD and
DDA should take up preparation of development plans of the villages for which no plans
have been prepared so far. It remains to be seen if this would also end up as an exercise
in futility for lack of effective enforcement.

2.16 Provision of Draft Master Plan -2021: The urban limits of Delhi are proposed for
extension up to interstate boundary leaving one revenue village at the periphery as buffer
green. Hemmed as border villages in the north-east and the south of Delhi are between
highly urbanized areas of Ghaziabad/ NOIDA and Gurgaon, it is highly doubtful that these
border villages would be able to escape the wave of urbanization. The chances are that
they would also get urbanized. However, it must be very strictly ensured that the Ridge,
water bodies and recreational green areas are preserved and deterrent punishment should
follow attempts at their defilement and encroachment. In this context the proposal in
Draft MPD-2021 to increase green/recreational use to 18-20% (and commercial from 3-4% to
5-6%) is a welcome step.

*** *** ***

15
 CHAPTER - 3

EFFORTS OF THE GOVT OF NCT DELHI

TO ADDRESS THE PROBLEM OF THE VILLAGES

3.1 Revenue Settlement was last carried out in Delhi in the years 1908-1909. The lands
earmarked for village abadi and those meant basically for agricultural purposes were
duly demarcated. The Village Abadi i.e., essentially the residential (Ghar Gitwar)
component of the community was shown in the village map circumscribed in red ink.
The Abadi deh thus came to be known as Lal Dora in common parlance. Lands falling
within village abadi (Lal Dora) were not assessed to land revenue. The agricultural
fields outside the village abadi were subject to land revenue. Villagers of Delhi, as
villagers elsewhere, depended predominantly on agriculture.

3.2 Deluge of refugees as an aftermath of the partition coupled with natural increase in
population and in-migration from the rest of the country, led to extensive
fragmentation in these rural pockets, making the holdings uneconomical. Essentially
to meet these fresh challenges, Punjab enacted a new law providing for compulsory
consolidation of holdings of agricultural land. This Act was extended to the Union
Territory of Delhi in 1951. Under the provisions of this Act, the work of consolidation
of Holding was initiated in some of the villages from 1951 and completed in 102
villages by the year 1954. Thereafter, Delhi Land Reforms Act 1954 was enacted and
came into force in Delhi. The East Punjab Holding (Consolidation & Prevention of
Fragmentation) Act 1948 which continued to remain extended to Delhi, was also
amended to provide for extension of village abadi while undertaking Consolidation
of Holdings. Among the objectives were to (a) Enable extension of village abadi, and
(b) Provide a source of income for the Village Panchayat and for benefit of the
village Community.

3.3 In the Rules framed under the Consolidation Act, common purposes were specified
as follows: -

“Pasture lands, cremation or burial grounds, Khalihan, land for keeping cattle, fisheries,
tanks, skin flaying center, public latrines, fuel plantation, water channels, training places,
well for drinking purpose, sewage tank, market, mela ground, rural dispensary, veterinary
center, village theater, guardwara, temple, mosque or church, drains, community
orchards, community center, young farmers club, etc.”

3.4 Consolidation operations were taken up next in the year 1970 and 70 villages were
covered. This programme was included in the Third Five Year Plan of Delhi and Plan
funds were provided. The 102 villages covered during 1951-54 could not be
benefited in this manner since the relevant legal enabling provision did not exist at
that time.

16
3.5 It would thus be seen that Consolidation work was taken up sporadically, instead of
being a continuing exercise to cover all the villages although phenomenal increase
in population continued leading to rapid urbanization and generating tremendous
pressure on land and squeezing of rural population within the Lal Dora. Timely relief
by way of extension of Lal Dora, while land was still available around the villages,
could not be provided to the villagers of Delhi. It was only in a few villages that
Phirni or Extended Lal Dora was provided.

3.6 Consolidation operations in 1970 led to extension of Lal Dora and provision for the
needed community services (like additional house sites, pathways, Phirni, School,
hospital, community services etc.) was made. As a result, the value of land in such
villages rose considerably. However, situation has deteriorated even in these
villages in the intervening over 3 decades. In other villages where Abadi was
circumscribed almost a century back (in 1908-1909), the situation is pitiable. In
small houses more than 15 to 20 people and the animals are living together leading
to serious health hazards. The position is that on the one hand the space within Lal
Dora has become grossly insufficient to meet the rising needs and aspirations of the
increasing population and on the other, the land outside Lal Dora cannot (on pain of
punishment under the Delhi Land Reforms Act, 1954) be put to any use other than
agriculture.

3.7 It is very heartening that the Government of India and the Government of NCT Delhi
have taken congnizance of the increasingly serious problems faced by the villagers
of Delhi for no fault of theirs, and initiated a study of the same so that appropriate
measures could be taken at the earliest.

*** *** ***

17
 CHAPTER-4

PROBLEMS OF THE VILLAGES AND

EFFORTS OF DDA AND MCD AT ADDRESSING THEM

THE PROBLEM
4.1.1. Our villagers had by and large been traditionally living on agriculture and
agriculture-related activities. The situation changed with large-scale acquisition of their
fields and farms by DDA for Planned Development of Delhi. With loss of their fields and
farms and space for agriculture-related activities, the villages lost their traditional
ambience. The villagers, restricted within the confines of Lal Dora, lost their age old
traditional agricultural-cum-cattle based livelihood. Whatever little they got as one-time
lump-sum monetary compensation for their acquired lands, did not last long. Lacking in
experience/training in other marketable skills, they had little choice except to use the
only asset that they were left with, viz., their properties within (and in some cases
outside) the Lal Dora. Some opened shops, some set up small household industrial units
and some rented them out to others (naturally, to outsiders). Offices, godowns and
workshops also came up this way. Many properties were outright sold to non-villagers to
get some cash. The speculative buyers of such properties exploited the situation and made
huge profits.

4.1.2. The Government and the local bodies have been taking a lenient and sympathetic
view to these new activities of the villagers to earn a living. Mixed land-use was tolerated.
Running of household industries in Lal Dora with up to 1 KW of power and employing up to
5 workers was permitted. Later an order was issued permitting (with prior approval of the
Administrator) electric connection for up to 20 HP to be given by the Electricity Supply
Utility without insisting on a factory-licence. This created an impression among the
Villagers who are more used to word of mouth than tortuous procedural paper formalities
that they could go in for industries beyond the threshold of household industries.

4.1.3. Of late, the villagers have started feeling apprehensive over the likelihood of action
(sealing/demolition or other penal action) being taken against such existing usage of their
properties as are technically not permissible under the existing rules & regulations, laws &
bye-laws. If penal action like sealing and demolition etc is started, that would deprive
them of their means of sustenance for the second time. That would not at all be fair. This
is the first problem of the villagers.

4.2.1. The second problem of the villagers is that of utter lack of civic services in the
villages and the inaction of the civic authorities in providing the same. The grievance is
that village lands were acquired at the official acquisition rates, which are admittedly far
lower than what the market is prepared to offer. (It is an open secret that a substantial
proportion of payment in land deals remains unaccounted.) These lands fetched very high
sale prices in auctions conducted by DDA. Despite the huge profits made, not enough was
invested in providing basic civic amenities in the village abadi areas. By and large, villages

18
lack even the most basic civic amenities (like treated drinking water supply, proper storm
water drainage system, sewerage, proper street-lighting and safe electric supply system,
effective scavenging system etc). Women face problems since at many places the open
fields around the villages that were used earlier for morning ablutions have been built
upon after acquisition and are no longer available. The villagers see no prospects of any
remedial action. They are told that proper civic services cannot be provided in the
existing cramped, twisting layouts.

4.2.2. Villagers have seen the fate of the villages – 135 of them - that have so far
been declared as Urban Villages, consequent upon their inclusion in the expanding urban
limits. Conditions there hardly improved. Habits and practices of pre-urbanisation days
continued to persist – out of ignorance or by design. Building activity picked up furiously
within Lal Dora in the time-gap between declaration of urbanization under the
Master/Zonal Plan and issue of notification u/s 507 (a) of the DMC Act and continued even
after that. Market forces generated by acute land-hunger of urban Delhi have been pushing
up real estate value skywards and this has proved too strong to resist, especially by the
enforcement agencies. This process continues in spite of observations of the Hon’ble
Supreme Court (in the case of M.C. Mehta vs. UOI) that exemptions given to rural villages
did not extend to villages notified as urban villages under Section 507 (a) of the DMC Act.
God forbid, if a disaster like fire or earthquake occurs, the narrow roads and the twisting
streets would seriously hamper fire-fighting, emergency rescue, relief and casualty
evacuation operations.

4.2.3. Urbanization has thus not brought about the desired and the expected
improvements even in the villages that have been officially urbanized. As for the rural
villages, with pastoral surroundings gone, most of them remain 'rural' and 'villages' in name
only.

4.2.4. A situation has been reached in the villages where it will be grossly unfair to swoop
against existing mixed land use cases where Rules & Regulations or Building Bye-laws have
been ignored in the past and to close them down. At the same time those who out of
sentiment or other obvious reasons, press that villagers should be left alone and no
existing exemptions be touched, are being equally myopic. Genuine and sincere well-
wishers of the villagers may consider encouraging the village-elders to accept the
inevitable and not deny the benefits of urban life that their children already yearn for, but
to encash the rare opportunity of material prosperity and better quality of life that
urbanization has to offer.

4.3.1 The third problem of the villagers originates from the fact that the speed of
acquisition of agricultural lands has outpaced utilisation of these lands for creating housing
and other urban infrastructure. DDA could neither guard the acquired vacant lands
effectively, nor did it permit the Private Sector to develop them or participate in their
development. The result was extensive encroachments on them and mushrooming of
unauthorised colonies - highly sub-standard and deficient in urban design and services.
The tragedy is that villages have lost their charm and development remains stalled despite
the very heavy price by the villagers for planned development of Delhi.

19
4.3.2 The responsibility of counseling and advocacy among the unintended villager-
victims of Delhi’s urbanization phenomenon should legitimately fall on the local bodies,
governmental agencies, Voluntary Organisations and most of all on the elected
representatives of the people. The village youth should also be encouraged to let their
elders know about their true feelings on their preference – life in cramped pockets
deficient in civic services as against living in properly planned accommodation in multi-
story complexes with all amenities in the vicinity. All must combine to see that rural
villages of today do not suffer the same fate as befell such rural villages of yesteryears
which got urbanized and are Urban Villages of today.

4.4.1. There is yet another problem relating mainly to Urban Villages, but the Committee
feels that an easy solution to this fourth problem could be found very quickly and without
waiting for a broad overall strategy to emerge.

4.4.2. It has been observed by MCD that people undertaking construction in urban villages
do not come forward for getting their building plans sanctioned. But the fact is that if a
villager who volunteers to seek sanction of his building plan, it is not entertained by the
Building Dept of MCD on the ground of his inability to establish his ownership of the plot to
the satisfaction of MCD. This is despite the well known ground reality that the entire old
abadi bears a single Khasra number and the record of ownership of individual plots is
generally not available (or updated) by the Revenue authorities. The exercise to get a
certificate to this effect is time consuming and allegedly generally expensive.

4.4.3. Following a number of court cases on rejection of building plans on the above score,
MCD has drafted a policy for urban villages which has been pending approval of the
Standing Committee of MCD. Details of this proposed policy are given under para 4.7.2.

4.5 Both MCD and DDA have from time to time been making attempts at evolving
appropriate policies, development control rules and building bylaws to suit special
requirements of villages.

Building control policy proposed by DDA

4.6.1. DDA sought comments of MCD sometime back (vide their letter to MCD No. F.3
(29)1994-MP.Pt.III/D-374-85 dated 26.09.05) on the norms/regulations proposed by them
for building activity in villages (rural and urban). Relevant excerpts from the letter are
reproduced below:-

“Building plans to be considered only for plots which form part of Lal Dora/abadi area in case the following
conditions are fulfilled:-
i) The land use will be residential and construction shall confine to a maximum of 3 stories with
maximum permissible FAR and height as per building bye laws.
ii) Revenue Department of GNCTD to certify that the plot forms part of Lal Dora/abadi area.
iii) No projection outside the plot line, except sunshade projection of 45 cm shall be allowed.
iv) The application shall provide proper documentary evidence or a certificate from the GNCTD
(Revenue/L&B Department) that land is not under notification for acquisition.
20
 v) Plots located in the erstwhile villages/notified area committees of Mehrauli, Najafgarh and Narela
etc. which now have the status of census towns would be considered on the same basis.
vi) For all dead end roads or cul-de-sacs up to 150m in length, the ROW will be 4.5 m and for all other
roads and dead end lanes above 150m, the ROW will be kept 9 m except in villages where
redevelopment plans have been prepared.
vii) Development charges will be recovered as decided by the competent authority from time to time.
viii) Conformity will be maintained with Master Plan/Zonal Plan, with specific attention to ROW of master
Plan roads and land use.
ix) Amalgamation of plots may be permitted subject to condition that FAR shall be permissible on the
basis of amalgamated plot (with height relaxation up to maximum of 15m). However, group housing
shall not be permitted in the villages, including amalgamated plots.
x) The following guidelines shall be followed - CFO (DFS) for fire safety; Rainwater harvesting;
Structural safety
xi) The building activity in all villages (including the villages in the development areas) will be
controlled by MCD and NOC from DDA will not be needed for approval of building plans.

4.6.2. DDA has prepared a Redevelopment Proposal for Dhul Siras Village in Dwarka, Sector
24 in consultation with the Delhi State Industrial and Infrastructure Development
Corporation (DSIIDC). DDA wishes to use this effort as a model for the redevelopment of
the villages in Delhi. The salient features of this proposal are:

 Exploiting the real estate potential of the village by increasing accessibility.

 Enhance property values by provision of parking, increased residential
accommodation, drainage, sewerage and public transport.
 Power sub-station on a site adjacent to the village
 Village ponds to be partly conserved as a water body and partly reclaimed for
providing facilities.
 Freight complex, two hotel sites and a golf course.
 Export oriented activities.
 Other employment oriented activities.
 Flatted residential development.
 School and health facilities.

4.6.3. The important lesson to be drawn from the above is that to be effective, Urban
Planning has to precede development. Unfortunately, in practice, it has been lagging far
behind in Delhi. Had the MPD-2021 and its related Zonal Plans been finalized and
published around the mid-90s, there would have been total clarity of the intentions and
knowledge about the direction of planning over the coming two decades. In absence of
advance planning unplanned and illegal developments on the ground have come up and
caused untold misery to the people and created serious difficulties in planned
development of the national capital.
Efforts of MCD
4.7.1. MCD has made no change in its policy governing building activity in rural villages.
However, an insight into its thinking on this subject can be seen from a note submitted by
Commissioner MCD to the Hon’ble Supreme Court around four years back. The note
highlights the following issues: -

21
A.
i “Considering that urbanization is hallmark of the entire NCTD, practically speaking, there is no
defined boundary between the urban rural areas. Almost every part of NCTD is either already
urbanized in all respects or slated for urbanization in the near and intermediate future. The
disparity among the villages, which are within and outside the urban limits, is fast disappearing. As
such the exemptions given to rural areas need to be withdrawn and it needs to be examined
whether entire Delhi be notified under Section 507 (a) of the DMC Act.
ii Since the pattern of development of village is typical in character due to the activities carried out
by the residents of the villages and their style of living, urban laws cannot be imposed on such area.
iii Carrying out industrial activities in rural areas is against the orders of the Hon’ble Supreme Court,
which has restricted it to conforming areas. Whether there is a need to enforce further restrictions
of power from the existing order of allowing 1 kW power for units employing 5 workers needs to be
reviewed further in the context of the Supreme Court Orders.”
B. The official note further elaborates that the issues discussed above raise the following
questions:
a. “Is there any real distinction between rural and urban Delhi in the context of the fast changing
developments in Delhi?
b. Once government declares by Notification under Section 507 of the DMC Act that a village or group
of villages ceases to be rural area with effect from a particular date as published in the gazette,
should not the development control and building permission procedures be made applicable
immediately?
c. Notification of 24th August 1963 has exempted ‘abides’ in the rural areas from the provisions of the
MCD relating to building activity from Sections 322, 333, 334, 335, 336, 342 and 347. This is only in
respect of ABADIS as defined in the revenue records. This exemption is not applicable to the non-
residential categories of activities like warehouse, factories, cold storage and slaughterhouse.
d. However for other industries like small-scale industries, electricity connections up to 20 HP are
given without license by DVB. Sanction of building plan is not required for such industrial activity
inside the Lal Dora, which is non-polluting nature. As per revised master Plan of 2001, this is
restricted to 1kW power and five workers.
e. What happens during the period from the time a village is urbanized to the time its development
plan is prepared? The result is that Lal Dora exemptions continue to be taken advantage of by
unscrupulous elements and unauthorized colonies start mushrooming and factories start working.
f. It needs to be clarified that industrial activity should only be permitted in industrial areas and not
in residential areas as laid out in the Supreme Court case ‘maili’ Yamuna. No industry in non-
conforming areas should be allowed. The exemptions given to Lal Dora areas should be withdrawn
by notification at the earliest possible. Time taken to notify a village under Section 507 of the DMC
Act should be minimized. Or else much of the damage is done in the interim period when people
know that the village is to be declared as urban area. Unauthorized colonies come up before the
notification and continue after that due to lack of knowledge and application of laws.

g. In urban villages, it is well recognized that the normal building bylaws can not apply due to
historical factors. Rural activity intersperses with urban activity like rearing animals and dairies
and opening shops and trading. There is a need for a separate set of laws governing urban villages
since it is not possible to regulate their activity under normal building bylaws.”
C. In short the key issue relate to the following:-
i Applicability of provisions of Section 313 of Delhi Municipal Corporation Act 1957 in extended ‘Lal
Dora’.
ii Nature of industries to be allowed in extended Lal Dora keeping in view the excessive pollution levels
prevalent in Delhi.
iii Application of building regulations under Section 332-347 of DMC act in extended ‘Lal Dora’.
iv Restrictions on transfer of land in extended Lal Dora.
22
 v Grant of water and electricity connections to buildings constructed by persons who have purchased
land from local residents under existing laws, which do not prohibit transfer of land.

4.7.2. After a number of court cases on rejection of building plans on the point of
ownership (Ref. para 4.4.1 to 4.4.3 above), MCD has drafted a policy for urban villages
which has been pending approval of the Standing Committee of MCD. As per this draft,
building plans in urban villages shall be considered by MCD if the following conditions are
fulfilled:-
 Revenue Department of the GNCTD certifies that the plot forms part of lal dora/abadi area.
 The applicant shall identify location of the plot on the basis of approved development plan of the
village.
 The applicant shall submit an affidavit declaring ownership/possession of the plot vesting with
him/her. Documentary evidence, if available, shall also be submitted with the affidavit.
 The applicant shall indemnify MCD in respect of all proceedings in Courts/other authorities in case of
disputes on this score.
 The applicant shall also submit a certificate from Revenue Department of GNCTD that the plot under
question is not under notification for acquisition.
4.7.3. How far would it be fair to burden the villager, unaccustomed to all these
procedural paper formalities that involve knocking at so many office-doors? Instead, it
should be the responsibility of the concerned authorities to bring about transparency in
their functioning by putting all the information that they have and that they want the
applicant to submit to them, in the public domain (website) for anyone to access at ease.
Had individual ownership records been prepared at the time when Lal Dora/Extended Lal
Dora areas were declared as urban villages, these difficulties would not have arisen.
Unfortunately it was not done either by Revenue Authorities or the Development
Authorities.

4.7.4. The above would show that the no clear-cut policy has emerged so far to address
the problems of the villages and the villagers (Lal Dora/ Extended Lal Dora) so far.

4.8 The Union Ministry of Urban Development is to be complimented for addressing

the problems of urbanization in a holistic manner and setting up a number of expert
committees to examine the different aspects of the issue and give their
recommendations.

4.9 The Tejendra Khanna Committee on Unauthorized constructions and misuse of

premises in Delhi has addressed the issues connected with Lal Dora and observed the
following:
“9.3 The farmers of Delhi whose agricultural lands were acquired have, in general, been put to a
great disadvantage. Firstly, their lands were acquired for a pittance, at the rate of about of about Rs.
3,000 per acre in 1957. Subsequently in 1966-68, the acquisition rates were revised to between Rs.
25,000-Rs. 30,000 per acre. The rate was revised to Rs. 5 lacs per acre in 1981 to Rs. 8 lacs per acre in
1993, to Rs. 16 lacs in 1998 and Rs. 24 lacs in the year 2004.
In the initial stages of acquisition of land, the farmers were given an alternative piece of
land measuring 400sq.m by way of residential plot and one person from the farmer’s family was offered
government employment. With the passage of time, the size of the alternative residential plot was
reduced to 250sq.m and the practice of giving employment to member of the farmer’s family was done
away with completely. Even though the villagers were assured that integrated development of the so-

23
called ‘urbanized village’ will go hand in hand with the urbanization in their neighborhood, no such
planned village development has actually taken place.
9.4 It is a clear and unanimous view of the Committee that the interests of the Delhi villagers,
which have suffered in the past, should be dealt with sympathetically. Three separate types of
developments which have taken place in the Lal Dora or extended Lal Dora areas need to be carefully
considered:-
(1) Construction of additional story beyond two and a half stories normally permissible in the
city under the MCD Building Bylaws or allowed in Lal Dora without MCD permission in rural
areas.

(2) Some Lal Dora premises have been sold to commercial buyers who have established
showrooms, eateries, etc.
(3) Some Guest House/show rooms/Factory outlets have been established in the Lal Dora areas
abutting on major highways, such as NH-8, viz. in the area of village Mahipalpur.
(4) Commercial activity of non-village origin, such as Fashion designer outlets are being
conducted within the Lal Dora areas even along smaller streets.
9.5 (1) Future construction and land use Dora areas have to be brought within an appropriate
framework of regulations, to accord with public safety and convenience. However, special
Building Bylaws will need to be framed for village abadis (Lal Dora and Extended Lal Dora)
keeping in view the peculiar nature of the abadis and absence of sufficient land for leaving
setbacks etc. In addition, in order to accommodate the heavy population pressure and
dearth of alternate residential sites, a height authorization up to 4 storeys or 15 m) on
plots abutting on the ‘phirni’ and up to 3 storeys (11.5 m) on other interior plots may be
permitted.
(2) Individual micro-plans (local area plans) for proper development of the villages should be
carefully drawn up in consultation with the village community. Sufficiently wide access
roads to enable fire tenders and ambulances to reach premises, which may require such
assistance, should be provided for, with the cooperation of the villagers and other current
users.
(3) Complete property ownership records should be developed and maintained on a digital base.
All existing properties should be surveyed/evaluated from the standpoint of structural
safety. Any building generating safety concerns should be earmarked for remedial action by
the owners/occupants within a time bound period, failing which they should be got vacated
and marked for being dismantled, if no other structural remedy is available.
(4) Commercial activity may be permitted on narrow streets below 9 m or 6 m width provided
such streets are designated as pedestrian shopping streets.
(5) All existing show rooms or guest houses abutting major public roads may be regularized, in
view of the general policy recommendation to allow non-residential activity such roads,
subject to the availability of service road and some additional parking facilities. There is no
reason why villagers who happen to have plots within the Lal Dora abutting on major road
should be denied the opportunity of exploiting the favorable location to their advantage, in
the same way as an owner of similar premises outside the Lal Dora area.
(6) All the above facilities meant for the Lal Dora area should be equally extended to land
falling in the Extended Lal Dora i.e., between old Lal Dora and the new ‘phirni’ demarcated
at the time of consolidation of land holdings by the land revenue authorities.
(7) Plots in the extended Lal Dora area should also be allowed to be used for running
educational and health care institutions, professional training institutes, etc., subject to
availability of parking space and adequately wide access roads.
9.6 Besides the above, institutions connected with education, health care, religious and cultural
charitable organizations have been established in the surrounding agricultural belt around
the village abadis. Representatives of Delhi’s villagers have urged these institutions should

24
 be allowed to be run where they are presently located and necessary land use conversion
should be allowed to them in the larger interests of the welfare of the villagers themselves.
9.7 As and when a policy of permitting private colonizers/developers to develop
housing/commercial/institutional facilities in areas earmarked for further expansion of the
urban area of Delhi is put into effect, farmers owning sufficient land may be permitted to
participate in such a development process. However, they will be required to follow the
norms that may be prescribed for the purpose.”
“11.34 (10) Village Development Plans by way of Local Area Plans (Laps) should be prepared
in consultation with the residents, for all Lal Dora and Extended Lal Dora Areas, in each
village.”

4.9 It is the legitimate right of the residents of villages – both rural and urban - to get
the benefit of urban services (like water, sewerage, power) clean and healthy environment
for themselves and their younger generations. Their transition from rural to urban living is
inevitable, but there is no reason why it should not be smooth and profitable for them. In
stead of letting the middle-men take away all the profits, the villagers have to be made
aware of the opportunities and counseled to come together and join in developing their
lands in a planned manner and get richer in the process. Their land has very high intrinsic
potential value: only it has to be properly planned and environment improved to encash
the value-addition. The land has to be utilized as intensively as needed and practicable to
accommodate all of them in proper comfort by adequately satisfying all their needs (viz.,
physical and social infrastructure, trading & commerce, household industries, offices and
institutions etc) as are consistent with area planning. The Committee is convinced that this
is very much within reach today but will become increasingly difficult with passage of
time. We must act now: there is little time to lose.

4.10 This Expert Committee on Lal Dora has gone deep into the problems and carefully
considered concrete suggestions aimed at:
a. Providing relief to the villages by developing them in a manner that preserves their
heritage to the extent possible,
b. Enabling civic services to be extended to them,
c. Permitting enhancement of land-value by improving the layout and environment in a
manner that exemptions applicable to the village abadis are not withdrawn
d. suggesting instead that official agencies should bring about transparency in regard to
relevant village maps and village data by bringing them on to website so that all
needed data could be downloaded without visiting offices;
e. Liberalizing the norms and simplifying the procedures to make them hassle-free
f. Making development norms for villages easy to understand and follow
g. Upgrading the civic services and environment in villages in order to integrate them
with the surrounding planned urban development and in a manner that the villagers
are benefited by enhancement of value of their lands.

25
4.11 In the chapters that follow the Committee has taken account of the aspirations of
the people obtained first hand (Chapter-5) and thereafter (in Chapter-6) analysed the
relevant issues with reference to its mandate (Terms of Reference) and finally made
specific recommendations to address the problems of the villages and villagers on a short-
term as well as long-term basis and permanent basis in Chapter-7.

*** *** ***

26
 CHAPTER - 5
ASPIRATIONS OF THE VILLAGE PEOPLE
AND THEIR ASSESSMENT

5.1 The Committee is grateful to all those persons from the villages, representatives of
the interest groups, leaders of public opinion and all others who sent in their
representations and offered suggestions in response to our public notice published in the
national press. Face-to-face interaction with them gave the Committee the opportunity to
properly understand and appreciate the genuine grievances and consider the solutions
suggested by them. In fact, practically all the recommendations of the Committee are
based on the suggestions received from the affected people and their representatives.
Aspirations of the people as expressed by them in their representations and in the course
of discussions that followed are summarised below and grouped under relevant heads for
the sake of convenience. A fuller summary is appended as Annexure 3.

5.2 Aspirations of the People as expressed by them:

A. Relating to Lal Dora and Extended Lal Dora Boundaries
i. Lal Dora/Extended Lal Dora should cover the entire area up to:
 Phirni where it does not define the boundary of Extended Lal Dora.
 One km from the Lal Dora.
ii. Extended Lal Dora should be merged with Lal Dora.

B. Relating to Relaxation of Development Controls and Building Bye-laws

iii. Merger of villages with the surrounding development should not be attempted since it
would put numerous restrictions on the development of the villages.

iv. Exemptions under the Notification dated 24 August 1963 should continue.

v. Lal Dora and Extended Lal Dora should be exempted from the provisions of DMC
Act/DDA Act/ Land Acquisition Act since such provisions create hurdles for the
development of villages.

vi. Ownership of plots should be treated as free-hold.

vii. Residential buildings up to 6 storeys and commercial buildings up to 4 storeys should be

allowed in the village abadi and building control norms should be related to plot sizes.

viii. All types of constructions for personal use for residential and commercial purposes in
Lal Dora and Extended Lal Dora may be allowed and no building bylaws may be
enforced up to 15 m height on phirni road and 11.5 m in the interior plots and with no
restrictions on ground coverage, FAR and setbacks.

ix. No permission should be needed for construction of basement and G+3 floors.

27
 x. In case of plots over 1500 sq m in Lal Dora and Extended Lal Dora, villagers may be
allowed to construct multistorey flats/apartments on the pattern of group housing on
payment of development charges to MCD @ Rs 200/- per sq m.

xi. Car parking should be allowed in the basement and the basement should be exempted
from FAR.

C. Relating to Strict Enforcement of Development Control Rules

xii. Peripheral road/Lal Dora road (phirni road) should be kept free from encroachment.

xiii. All encroachments should be removed.

xiv. No industrial activity should be recommended by the Committee in Lal Dora and
Extended Lal Dora.

xv. Only small shops like kirana (general merchandise) stores, medical stores, hair saloon,
milk and butter shops should be permitted in Lal Dora.

xvi. Development in Lal Dora should be strictly residential in character with only
complimentary facilities allowed therein.

xvii. Instead of uniform Building by-laws, area specific by-laws should be adopted and made
applicable within Lal Dora.

xviii. FAR should be rationalized.

D. Maintenance of Ownership Records

xix. Ownership records of Lal Dora should be maintained by patwari or else a
government department should do it, since house tax receipts are not taken as proof of
ownership.

E. Development Proposals

xx. Whenever Lal Dora is extended, new peripheral road should be constructed.

xxi. 25% of the Lal Dora areas be utilized for EWS housing in Group Housing Schemes.

xxii. The recommendations of Tejendra Khanna Committee should be implemented.

F. Liberal Land-use Policy

xxiii. Lal Dora/Extended Lal Dora areas should be declared as mixed land use areas and
conditional/restricted commercial activities should be allowed facing roads not less than
8 m wide. This would allow flexibility for liberal provision of relatively cheap
commercial retail and office use premises for the benefit of not only the villagers but
also the middle and low income population residing in the vicinity.

28
 xxiv. Phirni road should be considered as commercial street and commercial activities should
be allowed even along the roads that are less than 6 m wide.

xxv. All 80’ wide roads with 70% commercialization should be declared as commercial streets.
Computer/vocational institutes on such streets should be allowed to operate including
banks and government offices.

xxvi. Commercial activity such as banquet halls, coaching centers, etc. should be permitted
along roads, which are more than 3 m wide.

xxvii. Commercial establishments such as offices of real estate, insurance, cargo agencies,
small call centers, godowns, warehouses, service stations etc. should be allowed in Lal
Dora as the villagers work in these offices.

xxviii. Small-scale industries such as Dal mills and flourmills, shoe making units and cottage
industries and agricultural produce processing units which do not generate pollution,
nuisance or any other adverse impact on residents should be encouraged.

xxix. In the villages that are located in the vicinity of major bus terminals, railway stations,
and domestic and international airports, low budget small hotels and guesthouses should
be permitted.

xxx. Villagers should be allowed to keep cattle within the phirni.

xxxi. Commercial establishments that have been operating for more than 40 years, existing
showrooms and guesthouses on major public roads, and commercial offices should be
regularized.

xxxii. Educational, health care units (including gymnasia and nursing homes), professional
institutions and barat ghars; in fact, all those activities that are allowed in plotted
colonies should be allowed in Lal Dora/Extended Lal Dora, subject to provision of
adequate parking space.

G. Other Policy Issues

xxxiii. In case of acquisition of agricultural land, villagers should be allotted plots free of cost in
the nearby areas.

xxxiv. Seeking permission from DDA/MCD for opening a college should not be necessary subject
to the condition that construction is done as per rules and guidelines of Directorate of
Higher Education.

xxxv. Villagers were promised industrial plots measuring 300 sq. yd. to the farmers in the Lal
Dora, but no action has been taken in this regard. This Committee should recommend
immediate action in this regard.

29
 xxxvi. Gram Sabha land should be used for providing facilities within the villages and, where
necessary, plotted land may be used for providing facilities and the owner of such land
should be given Gram Sabha land in exchange.

xxxvii. Gram Panchayat should be revived so that consultation with government can be done.

H. Need for Planning and Regulation

xxxviii. Construction in Lal Dora/Extended Lal Dora be brought within proper framework of
regulations.

xxxix. Urban Planning and land use policies should be enforced in village abadi.

xl. Commercial activity should be allowed in Lal Dora along major roads after due
permission and sanction of building plans.

xli. Village plans showing all roads and location of facilities such as hospitals, community
halls and parks should be prepared after proper survey and development in the village
should be regulated according to plan.

5.3 The committee was greatly benefited from its intensive and free and frank
interaction with the Hon’ble Members of Parliament, elected representatives of the people
and other dignitaries. Discussions with the Hon’ble Lt Governor, Hon’ble Chief Minister and
Hon’ble Speaker of Delhi Assembly proved to be extremely fruitful. Interactions with the
Hon’ble Members of Parliament and of Delhi Assembly and Municipal Councillors were very
educative since the elected representatives, leaders of various interest groups were aware
of those aspects of the problems of the people that are generally not known or properly
understood. The solutions that they suggested were generally just, fair and practical. The
following issues emerged and these need to be addressed to enable a mutually acceptable
development of the villages in the context of urbanization that is inevitable.

i. The village plans already prepared by DDA/MCD should be made available on the
website of MCD as also available maps showing Lal Dora areas and their surroundings
(Gaon Sabha lands, open lands, colonies that had come up, etc). These should be
superimposed on the aerial photographs that were now available. That would bring
about transparency and the villagers would be saved of spending a lot of time and
money in knocking on many doors to get the information.
(Note: Deputy Commissioner/City Zone, MCD informed that a proposal is under
consideration for computerization of Gaon Sabha land records under the scheme titled
“Strengthening and modernization of Panchayat unit and its Functions”. The Chairman
of the Committee advised the Deputy Commissioner/City Zone to take up the matter
personally with Div. Commissioner, GNCTD for requisite funds and initiate the work on
the project. No decision has yet been taken on this suggestion.)

ii. These two points were discussed with the Divisional Commissioner in detail and it was
requested that funds for these tasks may be released out a sanctioned scheme of the
Delhi Government. Hon’ble CM Delhi to whom these ideas were mentioned liked them
30
 and convened a meeting to expedite the process, but the meeting had to be deferred
on account of her indisposition.

iii. Framing of specific Building Bye-laws to regulate the building activity in Lal Dora and
extended Lal Dora.

iv. Municipal Councillors suggested that all existing activities by the original villagers in
Lal Dora might be allowed to continue except polluting industries and such godowns as
generate high volume of traffic and cause congestion. Agro based industries and their
storage space should be provided in the rural area considering the rural tradition and
the present need of the villagers.

v. The need for preparing redevelopment plans in consultation with the villagers was
emphasized. Example of villages in Chandigarh where this was done with the active
cooperation/suggestions of the villagers was cited. It was also explained how steep
enhancement of land value resulting from planned redevelopment had encouraged
villagers to go in for proper redevelopment of their village.

vi. Hon’ble Members of Delhi Assembly also raised the issue of ownership title of land
owned by the villagers within Lal Dora. It was insisted that proper ownership record
should be maintained by the Revenue Department of Delhi Government.

vii. Serious objections were raised over the recently published Zonal Development Plan of
Zone-J prepared by DDA in which the status of Lal Dora had not been spelt out clearly,
particularly those that fall in the regional park. The Committee therefore included this
point in its objection/suggestion sent to DDA on the Draft Development plan of Zones J
(South Delhi–II i.e., south of Mehrauli-Badarpur and Mehrauli-Mahipalpur Roads ) and L
(West Delhi-III i.e., south of Rohtak Road and west of Najafgarh Drain) (ANNEXURE 9).

viii. The Committee discussed in detail the various aspects to be taken into consideration
for categorising the villages based on pre-dominant activities prevailing in the village.
Accordingly, it was decided to identify villages having pre-dominant industrial use,
residential use, Commercial use, Religious Institution like Ashram, heritage value and
villages falling in the ridge.

ix. The representative of Div. Commissioner (Revenue) was requested to supply the list of
villages for which consolidation (Chakbandi) has not been done yet. He was also
requested to place before the Committee any relevant decisions of the court which
shall be binding for the Committee.

x. The villages for which the extension of abadi has not been done should be listed and
their abadi area be extended based on suitable terms and conditions. A proper phirni
road be provided along with a green belt wherever possible.

xi. Most of the Gram Sabha lands have been encroached and attempts should be made to
retrieve all the Gram Sabha land. In cases of gram Sabha land which are far away from
the abadi, may be exchanged with the villagers and proper facilities be developed on
31
 these lands. In case of excess gram Sabha land available, this may be considered for
disposal by the Govt. and using the funds for the development of the village.

xii. In future, whenever, the lands of the villagers are acquired by DDA for planned
development, the immediate area adjoining the village should be kept reserved for
the facilities of the villages. These conditions should be made mandatory at the time
of acquisition.

xiii. Health, Education & Religions institutions, commercial, godowns; industries should be
allowed in the Lal Dora/Extended Lal Dora.

xiv. Presently, there is no ownership document available with the villagers residing in the
Lal Dora. As a result, the villagers have to face problems in getting their building plans
sanctioned or obtaining loans from banks. Suggestions have been made to formulate a
suitable mechanism through which ownership right can be given to the individuals
residing in Lal Dora.

xv. A proper sewerage system is provided in the villages. Suggestion has been made
regarding grouping of villages and providing proper sewerage and sewerage treatment
plant.

xvi. The entire urban extension/urban development is taking place on the lands acquired
from the villagers thereby depriving them of their livelihood. Therefore, in order to
safeguard the future of the villagers and integrate the activities of the village with the
urban areas, development plan should take into consideration the existing activities,
attitude and social status of the villagers into consideration.

xvii. Cattle are inseparable elements of the life of villagers and therefore space for one
dairy colony close to every village should be left to allow the cattle oriented activities
of the villagers. The present concept of developing dairy colonies away from the
villages in one part of the city is not practical as villages residing in a village in South
will not go for the dairies in the Northern end of the city.

xviii. Suggestions were given by Hon’ble MLAs that every Patwari of the village should keep
a detailed map of Abadi-Deh clearly indicating the ownership by possession of all the
residents of Lal Dora. This is an important record and should be utilized while
confirming the ownership of the properties within Lal Dora after village has been
urbanized.

xix. When the villages are included in urban areas as urban villages, MCD Act and DDA Act
are applicable in the villages and the 1963 notification ceases to operate as soon as
the village is declared Urban Village. Thus, MCD is bound to apply building regulations
to the entire urban village (old as well as extended abadi) and village residents have
to get building plans approved from various authorities. The court has only asked for
enforcement but this move has raised a furore amongst villagers which has taken a
political hue. The ground situation, too, is not immediately conducive to application

32
 of bye-laws as variants of existing building bye-laws may have to be evolved for the
villages whose morphology is of organic development.

xx. Hon’ble MPs suggested that the extended abadi of the village due to natural growth of
population should be treated as part of the village. Leaving aside any unauthorized
colony which has been established adjacent or on four sides of the village and the plan
(map) of which has been submitted to Delhi Govt. for regularization, the entire area
should be declared as village. In this connection, the report of the Committee which
was unanimously approved by Delhi Vidhan Sabha in terms of which recommendations
have been made to the effect that the population due to natural growth spread over
the area of 1000 sq.m. on four sides of the village and should be included in the
Master Plan for implementation. Simultaneously, the recommendations made in the
report of Tajendra Khanna Committee regarding mixed land use in the villages should
be implemented.

xxi. Hon’ble MPs pointed out that, in the existing Master Plan the reference to “Parks” is
generic and does not specifically mention “ Amusement and Water Parks”. He
suggested that the request of the owners of Amusement parks to use Extended Lal
Dora land for entertainment and amusement/water parks be specifically included in
the proposed Master Plan of Delhi.

xxii. The Committee was of the view that there is no reason why the villagers, who happen
to have plots within the Lal Dora abutting on a major road, should be denied the
opportunity of exploiting the favorable location to their advantage, in the same way,
as an owner of similar premises outside the Lal Dora Area.

*** *** ***

33
 CHAPTER – 6
TERMS OF REFERENCE : COMMITTEE'S RESPONSE
WITH REFERENCE TO THE PROBLEMS FACED BY THE VILLAGES

6.1 Chairman and Members of the Committee, together and individually, carefully
considered their mandate with reference to the material provided in the written
representations in response to the Public Notice issued, their views and suggestions during
interaction, discussions (and site-visits), with the representationists and their leaders,
special interest groups, village elders, elected representatives of the people at various
levels, officers and others. The Committee carefully analysed each point made, related it
to the Terms of Reference (TOR) and reached unanimous consensus on the various issues.
Given below are the TORs (with sequence altered to make the narration logical and
sequential) along with broad views and comments of the Committee.

6.2 The Committee has carefully considered the views and recommendations contained
in the Tejendra Khanna Committee Report in respect of Lal Dora and extended Lal Dora
areas (vide Para 4.11 ante) and fully agrees with them and feels that:
(i) With large scale acquisition for Planned Development of Delhi, the villagers of Delhi lost their
agricultural lands around their villages. The compensation was given at the official rates but these were
disposed off through auctions where they fetched very high price. Yet even the basic civic amenities
were not provided in the villages. Some villages were urbanized, but even these Urban Villages continue
to face serious problems of congestion, poor layout, lack of civic amenities, degraded environment etc.

(ii) The villagers were deprived of their traditional and permanent means of subsistence but little effort
was made to upgrade their skills to enable them to take to alternate means of earning their livelihood.
Driven to the edge, they had no choice except to make a living out of the only asset that they were left
with, viz., their landed property (lands and houses). Some opened shops, some started small industrial
units (which grew in course of time) or godowns, some rented them out and others went in for one-time
income by sale (outright or in partnership) of their property. The buyers made a big profit by
constructing houses, guesthouses, eateries, showrooms or industries. To deprive the villagers of their
means of subsistence by terming them as irregular or illegal would mean depriving them of means of
livelihood once again. That would be most unfair and unjust. It would be a bigger blow to them than
the earlier one - of depriving them of their lands – where at least something was paid as
compensation.

(iii) The village limits were sharply circumscribed in red but little thought was given to the problem
of finding space for the natural growth of population and to their needs for alternate means of livelihood
(e.g., space for commerce, manufacturing, physical and social infrastructural needs like roads, streets,
civic services; schools, hospitals, recreation facilities, playgrounds etc). Their dwelling units were
restricted to 2½ storeys.

(iv) This Committee (ECLD) is strongly of the view that these cases of mixed land-use were dictated by
dire necessity of keeping body and soul together. These have to be treated not from a myopic technical
viewpoint and subjected to sealing and demolition, but with sympathy and utmost consideration.
Deprived of honest means of subsistence and without a viable practical alternative, such coercive
measures will only have the effect of driving the villagers, especially the youth, to clandestine, dubious
34
 and perhaps criminal ways of earning money. Instead, they need be made fully aware of the fact that by
making more intensive use of the available land and improving the environment, it would be possible for
them to (a) accommodate all their needs – residential, commercial, infrastructural, social etc and (b)
also considerably enhance the value of their property in the process. Only the old mindset has to be
broadened and the inevitability of high rise constructions will have to be accepted, of course, with
proper norms for safety, health, access, parking etc. This way it would also be possible to cater
adequately to all their commercial and social needs, segregated from but within easy reach of the
residences. Till that is done, these existing non-residential activities should be permitted to continue.

(v) Instead of withdrawing the existing exemptions forcing the villagers to do tortuous paper-work (like
obtaining permissions and NOCs from numerous offices), it is the Government Departments and Public
bodies that should be directed to go in for transparency in their record-keeping and to bring all relevant
and useful data on their website (in public domain) so that the villager-applicants are able to get
authentic copies from their nearest cyber-café, if not from their children’s computer at home. All maps
(with Khasra boundaries and development plans superimposed), ownership records and other relevant
data should be digitalized and put on web-site. It should be possible for the citizen of Delhi to apply for
and get permissions over the internet. (One of the distinguished Members of this Committee has already
taken the initiative in this direction and introduced a system under which around 1,30,000 applications
along with requisite fees (as per Court directions to traders) were received and duly acknowledged over
the internet within a few days – all properly classified and with all relevant details available at the push
of a button- without anyone having to spend hours at municipal offices).

(vi) Village Development Plans should be prepared with involvement of the village community. This may
need sincere efforts at counseling and considerable extension work to make the village community
realize and appreciate the need for proper planning and going high-rise to get maximum enhancement of
value of their lands, which have very high potential value on account of locational advantages and short-
supply-high-demand situation that exists in Delhi. They have to be convinced of the inevitability of the
process of urbanisation in the national metropolitan capital of our country with fast growing economy and
counselled to take full advantage of the process in value-addition of their assets to carve out a brighter
future for themselves and their younger generations.

6.3 The Committee’s view on the point in the TOR relating to examining “the
desirability and/or feasibility of integration of Lal Dora and extended Lal Dora areas
of Delhi in the overall process of Planned Development of the city” is unambiguously
and categorically in the affirmative. We strongly feel that Delhi can no longer afford to
have over 200 sub-standard, cramped pockets of insanitation that once had plenty of open
spaces, farms and fields full of greenery. The people (9.5 lakh as per 2001-census) were a
happy, satisfied lot, full of faith and patience, bristling with health and earning their
livelihood based on agriculture and cattle, through honest hard labour. Now, deprived of
their farms and fields and cramped within the red-lines, they are feeling highly insecure
about their future. Continuance of such a state of affairs is highly risky and not at all
desirable. The genuine problems of the Lal Dora/Extended Lal Dora areas have to be seen
in the correct perspective, properly understood and appreciated from the human angle and
addressed in a sympathetic manner. The best course and perhaps the only one with win-
win prospect, is their comprehensive redevelopment so that villages get the benefit of
civic services, improved environment and infrastructure with plenty of scope for
commercial and other livelihood activities there itself, and thus get integrated with the
rest of planned metropolitan Delhi while still retaining their rural flavour.

6.4 This has to be done fast in a short span of time preferably with the village
community taking the initiative, with involvement of experts and in
cooperation/association with the Private Sector. The Government has to facilitate the

35
process by adopting the Task-Force approach with total focus on completion of the task
within a specified time – say 3-4 years.

6.5 As regards the remaining TORs, viz., “broad principles and terms and conditions
for achieving the integration” and “planning and development control norms that
should govern development activity in Lal Dora and extended Lal Dora areas” and
other “related or incidental” matters, one has to consider the existing planning
framework that has legal validity and then think of the improvements or modifications that
are needed.

6.6 The Draft Master Plan of Delhi - 2021 as recently published suggests that the entire
area within the NCTD, barring a string of fringe villages abutting the boundary of NCTD will
be urbanized. Thus most of the villages in the NCTD will soon become part of urbanisable
area. Even the few fringe villages, hemmed as they are between highly developed and fast
urbanizing neighbouring areas of Haryana (Faridabad and Gurgaon) and UP (NOIDA,
Ghaziabad etc) and of metropolitan Delhi, will find it difficult to resist the pressures of
market forces. They are bound to aspire for and acquire in course of time, all the social,
economic and physical dimensions of urbanized villages. Thus the distinction between
rural and urban villages may vanish in course of time.

6.7 The broad principles and terms & conditions for achieving integration and evolving
planning and development control norms that should govern development activity in Lal
Dora and Extended Lal Dora areas will therefore have to be aimed at comprehensive
development of the villages in such a manner that their
 layout gets improved with proper access road and street pattern,
 essential civic services (like water-supply, sewage disposal, storm water drainage,
electricity, etc) are brought it,
 social needs (schools, hospitals, playgrounds, parks etc) are provided for and most
importantly
 means of livelihood are catered to.
Having lost its agricultural base and with industries shifted, the main activity in Delhi now
is commercial (trading, wholesale & retail sale and services). These need adequate shops,
godowns, offices for the entire range including multinationals, corporate houses, Business
houses, Call Centres and other IT-related activities and such like. Planning norms have to
be so designed as to permit of smooth transition of existing undesirable activities to
properly planned locations in the vicinity and facilitate their shifting and growth there.

6.8 Among the other “related or incidental” matters mentioned in TOR, the most
important point is to see that the present privileges and exemptions available to the rural
areas are not withdrawn. On the other hand, the system should be so liberalized and
modified by introducing transparency and easing of procedures taking advantage of
available IT-solutions as to make exemptions unnecessary. Some examples are given in the
following paragraphs.

6.9 Under the existing disposition, original inhabitants in villages that are not declared
as urban are exempted from seeking planning permission for extensions and alternations to
their residential premises provided the altered/extended premises are to be used for
36
residential purposes only and are limited to 2½ storeys with height restrictions. This
exemption has been misconstrued and it is now the general impression amongst the
village-folk, actively supported by their leaders that all kinds of development are allowed
without the need for seeking any official permission. The legal position is quite clear that
such concessions are deemed withdrawn once a village is notified as urban. This factor is
generally ignored on the plea, right or wrong, that whatever has been already built upon
under relaxed rules cannot be corrected retrospectively to comply with the new rules.
The main reason is, however, the mindset of the people and their psychological resistance
to withdrawal of a long standing facility. It has to be admitted that the process of
obtaining sanctions is not only painfully slow and tortuous. It is also a painful open secret
that the process is generally expensive involving compromise of moral principles if the
sanction is to be obtained. Here again it would be far preferable to improve the system
than withdraw the exemption. As said earlier also the remedy lies in simplifying the
rules and planning norms, making them user-friendly and bringing about total
transparency in the system. It should be made possible for applications to be sent and
queries/sanctions received electronically within a time frame. Responsibility for
certifying that the rules have been followed could be given to the qualified registered
architect/expert hired for the job.

6.10 Another factor that must be taken into account is that many villages, whether urban
or rural, have distinct characteristics of their own and need to be given a special
treatment rather than painting all of them with the same brush. Development norms would
have to be liberal enough to be able to cater to the special needs of individual villages and
preserve its desirable social, cultural, economic and physical characteristics.

6.10.1 The following shortcomings in the villages have also to be remedied in the
Comprehensive Development Plans of the villages:
 Absence or proper access, narrow roads and twisting very narrow streets and a cramped layout with
no access even for emergency vehicles (ambulances, Fire Tenders and Rescue Vehicles);
 Serious shortage of parking spaces;
 Non maintenance of light and air planes leading to very poor light and ventilation in buildings that
are in unhealthy proximity of each other;
 Encroachments on Goan Sabha lands needed for social services and markets; jumbled and exposed
Power-lines close to buildings posing danger of electric shocks, electrocution and fires;
 Need for commercial potential to be fully exploited for the benefit of the people, etc

6.11 Property values in villages remain depressed on account of the aforementioned

deficiencies and degraded environment and insanitation. Comprehensive Redevelopment
can unleash the unrealized potential of real estate value and lead to a planned expansion
of commercial usage, adequate parking facilities, wider streets, pedestrian-vehicular
segregation and other amenities including hard and soft landscaping. In fact, it is now an
imperative necessity to prevent the villages from degenerating into pockets of civic chaos
with destruction of cultural and heritage assets and complete takeover by
outsiders/unscrupulous builders/land Mafia and depriving the villagers of what is their
legitimate due.

6.12 The mechanism for achieving renewal of villages through comprehensive

redevelopment should have the following elements:

37
  Awareness campaigns, extension work and advocacy by motivated and trained social workers to
mobilize the village community to explain how the villagers can easily enhance the value of their
property several-folds through comprehensive redevelopment, and also meet all their residential,
commercial and other needs within the village area and in the vicinity.
 Village residents may be encouraged to come together and seriously consider making more intensive
use of land without which it would not be possible to improve the layout or the environment or even
to lay proper drainage/sewerage systems. The value of their property would remain depressed.
 Residents may be encouraged to form Cooperatives or Village Group Housing Societies members of
which should be allowed to amalgamate their plots, get a redevelopment plan prepared by a
consultant hired by them and get the necessary permission from designated authorities to build as
per the approved redevelopment plan. Individual micro-plans (Local Area Plans) for proper
development of the villages should be carefully drawn up in consultation with the village community.
 In case the village community so desires (or if it has problems in coming together to form such
Societies), the Government may get Redevelopment Schemes prepared by hiring qualified experts
from the market to preparation of Redevelopment Schemes to achieve compact and energy efficient
development and, if necessary, go in for high rise development to achieve intensive use of land.
 Those among the villagers who want to retain their existing houses would be free to do so provided
that they limit their buildings to a maximum of 15 meters. The existing exemption (doing away with
getting building plan sanctioned) should continue. They would, however, have to make adjustments
to accommodate essential civic services lines and road/street if that is necessary for the
Redevelopment Scheme of the village.
 Comprehensive Redevelopment Plan should reflect village characteristics in the urban form and
retain heritage and residential character of the village. Traditional crafts of the villagers should be
promoted and if possible a site of the village should be reserved for the development of a village
haat where the craftsmen display their skills and also own shops to sell their manufactured products.
A food bazaar may also be incorporated in the complex to attract tourists and enhance business.
 Multi-storey car parking facilities may need to be provided at the periphery so that volume of traffic
on village roads can be reduced to a minimum. Wherever redevelopment proposals are implemented
to generate additional commercial spaces to increase employment avenues for the villagers, one or
two layer basement parking should be insisted depending upon the requirements (as per MPD-2021).
 Non-residential uses to service the contemporary living and work requirements of villagers may be
permitted both as a stand-alone use on a plot or mixed with residential use provided such
development does not vitiate the quality of residential and work environment in the village.
 Building heights limitation may be raised to allow more floors depending on the ROW of the abutting
street.
 A PPP or a tripartite arrangement between the community, the local government and the private
entrepreneur should be relied upon to achieve comprehensive redevelopment of villages.

6.13 In spite all the weaknesses in the civic-planning sense, it is heartening to note that
the villages have retained a substantial proportion of original inhabitants who have strong
and active associations of both residents and traders. The predominantly residential
character has also been maintained and commercial uses are confined mainly to the
periphery. These qualities will greatly help in the efforts to improve the living conditions
in the villages.

6.14 The Committee was not inspired by the past record of the concerned existing
bodies/agencies in providing even the basic civic amenities in the villages or looking after
their livelihood problems when their lands were getting acquired for Planned Development
of Delhi. Their preoccupations leave them with little time to think of the present problems

38
of the 9.5 lakh village population, or plan for their future well in time and in a realistic
manner.
6.15 The Committee feels that a compact and totally dedicated Task Force may be set up
under a dynamic head and it should be mandated to prepare the villagers for the
betterment of their villages on a long-term basis and plan comprehensive redevelopment
projects of the Villages in a time-bound manner and get such plans implemented in
consultation with the villagers preferably in cooperation with the Private Sector and
complete its task within the prescribed span of time, say within the 11 th Plan period. Its
role should include advocacy and involving the village community meaningfully in their
redevelopment in a manner that they are able to reap the benefits of escalation in the
value of their property, get accommodated in the village itself, practically in situ and their
commercial/social and other essential needs are met in the vicinity. Planning and
Development could be done by commissioning known professionals and associating Private
Sector in an appropriate manner. Funds for this could perhaps be found from the
Jawaharlal Nehru Gram Vikas Yojana.
6.16 It is against this backdrop that the Committee has made its recommendations that
are enumerated in Chapter-7.

*** *** ***

39
 CHAPTER – 7

RECOMMENDATIONS
7. Based on the deliberations on the various issues pertaining to the rural villages, the
Committee is happy to make recommendations – general and specific - for consideration of
the Union Ministry of Urban Development.

7.1 Transparency in Land Records and Permission Process

i. Complete property ownership/possession in Lal Dora/Extended Lal Dora areas must be recorded,
digitized and put on Website. Since the data is incomplete, a beginning may be made with whatever
is available and public be invited to submit affidavits suggesting corrections. These may be displayed
on the web and any claims/disputes arising therefrom may be resolved in the normal manner. In due
course the ownership rights in Lal Dora areas should be settled. This will be of great help to villagers
in proving the single entity status of their holdings while seeking building permissions, obtaining Bank
loans etc.

ii. Master Plan and Zonal Plans should be digitized and put on the Website.

iii. Individual Village Development/Redevelopment Plans and Revenue maps of villages (Shijra) should also
be digitized, superimposed and brought on to Website in a manner that the citizens are able to
relate the map to the ground.
iv. Location of each urban and rural village with demarcation of Lal Dora and Extended Lal Dora should be
shown superimposed on the satellite image of NCT Delhi. Land use in the immediate surroundings
should also be shown.
v. Demarcation of ‘Gaon Sabha’ Lands and public spaces and encroachments, should be shown on
Revenue map (Shijra), superimposed on satellite image and put on website.
(Note: Statistics of Gaon Sabha lands and extent of encroachments on them, as furnished by Govt of
NCT Delhi are enclosed as ANNEXURE-13. However, the Dept has also said that these are provisional,
incomplete and may not be treated as authentic.)
vi. All available and relevant data in this context should be collected, brought on to the website (and
updated periodically) and the people be invited to point out inaccuracies and give suggestions for
improvement.
vii. Land Use maps, Building Footprints and Floor-wise Building Use Maps of Lal Dora, and Extended Lal
Dora areas (erstwhile or otherwise) should be prepared and put on the Website.
viii. Satellite image of Delhi (except certain areas on security considerations) showing existing structures,
infrastructure and amenities (especially within and around villages) should also be put on the
website.
ix. Basic information about socio-economic characteristics, physical features, historical background and
heritage of villages and the nature of economic establishments and enterprises should also be
collected and put on the website.

7.2 Strategy of awareness and incentive based Development

40
A. Awareness Campaigns
i. Awareness campaigns, extension work and advocacy by motivated and trained social workers should
be organized to explain to the village community how they can easily enhance the value of their
property several-folds through comprehensive development/redevelopment, and this way also meet
all their residential, commercial and other needs within the village area and in the vicinity.
ii. The concerned authority should take up this task itself or through NGOs and make the village
communities aware of the need to get out of existing insanitary cramped environment and made to
realize that the process of ongoing urbanisation cannot be wished away. The counseling and
extension effort should aim at motivating the village community, especially the youth, to go in for
planned compact development (even if it entails construction of high-rise buildings) to meet all of
their floor space requirements within the village and its vicinity. This will also yield monetary
benefits through increased rental and property values.

iii. Residents of Villages should be encouraged to come together to make more intensive use of their
land without which it would not be possible to improve the layout or the environment or even to lay
proper drainage/sewerage systems. Unless this is done, the value of their property would remain
depressed. They may be encouraged to take the initiative for these improvements themselves
and form Cooperatives or Village Group Housing Societies, members of which should be allowed
to amalgamate their plots, get Layout Plans prepared by experts from the market and get the
necessary permission from designated authorities and develop and build as per the approved
Local Area Plan.

B. Planning for improvement

i. For bringing about comprehensive development of villages, Local Area Plans (LAPs)
for all the villages, rural and urban (i.e., existing and erstwhile Lal Dora/Extended
Lal Dora areas) should be got prepared by the Government/DDA/MCD by
commissioning suitable qualified experts from the open market for the purpose.
These LAPs should aim at compact space and energy efficient development and, if
necessary, go in for high rise structures to achieve intensive use of land. These
experts should consult the village community and Associations etc. The Local Area
Plans should address the common acute problems of villages, which include the
following:
a. Lack of (or terrible deficiency in) civic services like water supply, drainage, sewerage and solid
waste management system;
b. Absence of proper access, narrow roads and twisting streets and a cramped layout with no
access even for emergency vehicles (ambulances, Fire Tenders and Rescue Vehicles);
c. Serious shortage of parking spaces;
d. Non maintenance of light and air planes leading to very poor light and ventilation in buildings
that are in unhealthy proximity of each other;
e. Encroachments on Gaon Sabha lands needed for social services and markets; jumbled and
exposed Power-lines close to buildings posing danger of electric shocks, electrocution and fires;
f. Need for commercial potential to be fully exploited for the benefit of the people and to relieve
the acute shortage of planned commercial space.

ii Accordingly, the Local Area Plans should:

a. ensure that ample space is created for relocating the existing and projected residential,
commercial, institutional and other needs of the villagers for the next twenty years, in the
village area itself or in the vicinity;

41
 b. aim at achieving a judicious mix of residential, commercial and institutional spaces to ensure
sustainable development of the village. The planned commercial activity should be adequate
and should aim at engaging the local community in the development process by providing them
ample work opportunities and thus helping them to upgrade their income, status and quality of
life;
c. reflect village characteristics in the LAP and retain heritage and residential character of the
village. To promote traditional crafts, a suitable site should be reserved for the development of
the village haat where the craftsmen can display their skills and also own shops to sell their
products. A food bazaar may also be incorporated in the complex to attract tourists and enhance
business.

d. Permit non-residential usages to service the contemporary living and work requirements of
villagers both as a stand-alone use on a plot or mixed with residential use provided that such
development does not vitiate the quality of residential and work environment in the village.

e. Provide adequate car parking facilities (preferably multi-level underground parking and with
30% of FAR for commercial component to make it self-sustaining) at the periphery so that
volume of traffic on village roads can be reduced to a minimum. Wherever redevelopment
proposals are implemented to generate additional commercial spaces to increase employment
avenues for the villagers, multi-level parking should be insisted upon as per norms of
requirement prescribed in the Govt Notification of 22.9.06 or as per MPD-2021 when it comes
into force.

f. Encash the new opportunity provide by proximity of the village to the Metro lines and stations
in boosting its development and economy. From this viewpoint, extension of Metro-routes to
new areas to cover villages with high potential, should also be recommended.

g. An area to the extent of 20% of the village abadi should be earmarked in the vicinity for
expansion and provision of facilities for the village.

h. In case of large-scale acquisition of agricultural land for Planned Development of Delhi in

future, should ensure that the development of Village abadi areas are integrated in the specific
scheme of planned development.

C. Development Control Norms/Regulations

i. Area specific development regulations may be needed for villages that need special attention e.g.,
heritage villages or villages lying in the ridge area or forest zones. There should be provision in the
Master Plan of Delhi to accommodate such area specific development regulations which should
override the general regulations proposed in MPD-2021.
ii. A PPP or a tripartite arrangement among the community, the local government and the private
entrepreneur should be relied upon to achieve comprehensive development/redevelopment of
villages on self-sustaining basis.

iii. Those among the villagers who want to retain their existing houses should be free to do so
provided that they limit the building-height to a maximum of 15 meters. The existing exemption
(of doing away with getting building plan sanctioned) should continue provided that the
construction is done under supervision of registered architect who should certify and take the
responsibility of adherence to safety-norms and other prevailing building parameters. They
would, however, have to make adjustments to accommodate essential civic service lines and
road/street if that is necessary for the Redevelopment Scheme of the village.

iv. The following concessions should be given in Lal Dora/Extended Lal Dora areas in view of limited
availability of land, and to encourage village residents to come together and amalgamate their small
plots, the minimum size of plot for high-rise buildings should be reduced to 2000 sq m (from 3000 sq
m elsewhere) for group-housing. FAR and maximum ground coverage applicable should be as follows:

42
 Plot size Ground Coverage FAR Subject to conditions

2000-3999 sq m 40% 400 given below.

4000 sq m and above 40% 500 -do-

Conditions:
(a) Minimum of 12 m wide road will be provided. Where land for road-widening is surrendered
(free of cost) from the plot area, the permissible FAR will be proportionately increased as
TDR incentive.
(b) Other infrastructure norms – as prescribed in the Master Plan for Delhi with the exception
that minimum set-back of 3 m should be provided on all sides.
(c) Car Parking norms - as prescribed in the Master Plan for Delhi. Multi-level underground
parking in basement up to the envelop-line.

v. Left over requirement of parking of the village should be met by constructing multi-storied parking
lots on the periphery of the Lal Dora or Extended Lal Dora where land can be found for the purpose.
One-third of the total space should be left for commercial component to make the facility self-
sustaining.

vi. In order that villages, in the course of development, take advantage of the prevailing acute
shortage of and demand for commercial space in Delhi (that has resulted in traders’ unrest and
exorbitantly high costs) the LAPs of villages should plan for maximum possible commercial space
and also consider planning Multi-storey commercial buildings for offices, markets and IT-
education facilities. Norms as recommended for group housing vide sub para iv above (especially in
regard to Ground coverage, FAR and parking) would apply to commercial structures as well, subject
to such special conditions as may be provided in LAP keeping in view local conditions that differ from
village to village.

vii. In Extended Lal Dora areas the list of permissible land-uses should include group housing, commercial
centres, specialized institutions, non-polluting non-nuisance creating House-hold industries and
recreational/amusement parks. These will have to abide by the prescribed standards of physical
infrastructure and transportation/ parking requirements as per the Master Plan of Delhi-2021. FAR
and Ground Coverage shall be governed by the conditions vide sub-para iv above.

viii. If a residential Building Plan application submitted through a registered architect is certified by him
to conform to the aforesaid parameters (vide sub paras iv, v and vi above) and if the other infra-
structural requirements prescribed by the Master Plan Notification dated 22 Sep 06 of the Govt of
India (ANNEXURE-11) will be followed and that he would be responsible for any violation of the
above, the Building Plan would be deemed to be sanctioned for plot size up to 500 sq m. For bigger
size plots and for non residential use on plot of any size, the Building Plan would be deemed to have
been sanctioned unless valid objections are sent by the sanctioning authority within 30 days of
submission of Building Plan application. Also all the objections shall be pointed out by the
sanctioning authority at one time. Similar conditions should apply for grant of Completion
Certificate.

7.3 Task Force mechanism to give focused attention to villages

i. Looking to the pre-occupation of the local bodies that has been resulted in the villages getting
neglected, the Committee strongly recommends that a compact and totally dedicated Task Force
should be created for a limited period, say for the Eleventh Plan Period, and entrusted exclusively
with the responsibility of development/redevelopment of villages as suggested in this Report. The
mandate of this Village Development Task Force (VDTF) should include all the tasks given in the
preceding paras and it should plan and implement comprehensive redevelopment projects of the

43
 Villages (including Census Towns) in a time-bound manner preferably through tripartite partnership
arrangements involving the village community, the public agencies and the Private Sector.

ii. VDTF should involve the village community meaningfully in preparation of Local Area Plan for the
village and in implementation of the same. The development/ redevelopment should be done in a
manner that the residents are able to reap the benefits of escalation in the value of their property,
get accommodated in the village itself, practically in situ and their commercial/social and other
essential needs are also met in the village itself or in the vicinity.

iii. Funding of VDTF should not be left to bodies that face resource-constraints themselves. Its needs
may be met out of Plan Funds say under the Jawaharlal Nehru National Urban Renewal Mission
(JNNURM).

iv. For extension of civic services to the villages, the normal principles may be followed (Trunk services
to be provided by MCD/Jal Board etc at their cost; peripheral services to be shared by the
beneficiary-colonies/villages and the internal services to be met by the development under the LAP
(Local Area Plan) for the village.

v. With involvement of the Private Sector, Building Trade etc, it should be possible to make the project
self-financing and self-sustaining. Banks should be willing to liberally extend loan facilities to the
village-community and others for construction of buildings, commercial structures and setting up
enterprises.

7.4 SPECIAL CONSIDERATIONS FOR THE VILLAGES

7.4.1 Mixed Land Use and Permissible Activities in LD/ELD areas

i. Though village abadi is primarily residential, traditionally many livelihood activities (like keeping
cattle, ghanis to extract oil, smithy, carpentry and various other such activities) had been going on in
villages for ages. This issue of mixed land use has, therefore, to be treated more liberally than in a
normal urban residential colony. Soft commercial activity like retail, food, offices and in fact, all the
24 categories of activities that the Monitoring Committee of the Hon’ble Supreme Court has
permitted in mixed land use areas of Delhi (ANNEXURE-12) should be allowed liberally in Lal
Dora/Extended Lal Dora areas. Existing institutions (socio-cultural, educational, religious etc) should
also be permitted to continue till they are relocated as per LAP. Activities that should be permitted
in the Extended Lal Dora would include institutional, commercial, group housing, recreational, etc
ensuring a minimum ROW of 24 m of the abutting road.

ii. Many villages developed certain commercial activities of the type of wholesale, retail, warehousing
and industry, which became their means of sustenance after the loss of their farms and fields. For
example, Dal Mills, small hotels, warehousing and courier service establishments have come up near
the Airport. Retail trade and offices have come up in villages in south Delhi. All these economic
activities should be allowed to continue till they get reorganized in a planned manner under the LAP.
Only the polluting or nuisance creating ones should not be permitted. Manufacture or bulk-storage of
hazardous and noxious materials/goods should not be permissible in either Lal Dora or Extended Lal
Dora area.

iii. Activities prohibited under GOI Notification dated 07 Sept 06 regarding Mixed Use Regulations shall
not be permitted in Lal Dora/Extended Lal Dora till implementation of LAPs where the location for
these activities would be specifically earmarked in the Commercial areas.

iv. The entire range of offices – multinationals, corporate houses, Call Centres, IT-related activities etc
and others, should be permitted to continue. In fact, LAP should be so designed as to facilitate their
continuance and growth and their smooth transition from undesirable or untenable locations to

44
 properly planned areas within the villages or in the neighbourhood where adequate parking facility
can made available either in the basements or multi-storey blocks.

v. Besides the villages with pre-dominantly commercial, industrial, and warehousing activities, there
are two other kinds of villages in Delhi, viz., villages with heritage structures and those in reserved
forests or in the Ridge area. These need special planning and development. The villages with
heritage structures or those near them (like Hauz Khas, Mehrauli etc) should be re-developed to
highlight their heritage character with local and international tourism as their pre-dominant
economic activity. Villages in Reserved Forest area like Ayanagar, Dera, Mandi, Jaunapur etc which
are located on the southern ridge, activities connected with eco-tourism or institutional activities in
the field of education, art and culture should be preferred. Industrial and commercial warehousing
activities shall not be permitted in the villages falling in the Southern Ridge and in Reserved Forest
Areas.

vi. All kinds of encroachments on the Gaon Sabha land in the heritage and reserved forest villages should
be removed and they should be converted to green. Some livelihood activities could perhaps be
accommodated in the additional spaces (after adjusting relocations of mixed land-uses within the Lal
Dora area) for the relevant types of activities in the LAP.

7.4.2 Interim Arrangements

i. Till the LAPs are prepared, the existing non-residential activities should be frozen at their present
level. Only residential alterations and extension may be permitted as per the existing relaxations
extended to the rural villages.

ii. For urban villages, for sanction of building plans in the erstwhile Lal Dora area, an affidavit from the
applicant should be accepted as proof of ownership and single entity of the plot, in cases where
revenue record is not available.

iii. Land allotted in Extended Lal Dora under consolidation proceedings, should be allowed to be sold
legally by the owners without any restriction (as laid down in the DLR Act) for healthy and beneficial
growth of the village and the villagers as well. This will stimulate the development process of the
village. Moreover, since most of the villages in Delhi are proposed to be urbanized during the next 20
year, the procedure for consolidation of landholding may not be needed any more and may be
dispensed with.

7.4.3 Gaon Sabha Lands

Availability of original Gaon Sabha lands should be verified and recorded village wise with
information about the extent of area available/encroached/utilized for specific socio-cultural
facilities/physical infrastructure etc. Special drives should be organized to get encroachments vacated and
to promptly utilize the encroached pockets for providing public utilities/facilities for the spillovers from the
Village or for increasing the green cover in Delhi.

7.4.4 Rehabilitation Measures

Specific developmental projects/schemes should be chalked out for the villagers to provide
alternative occupation in terms of industry/work-centre wherever the agricultural lands of the villagers are
acquired for the planned development of the city and where relocation in situ or in the vicinity is just not
possible in the LAP.

7.4.5 Conservation Measures

Special effort should be made to conserve and preserve the handicraft, the heritage and historical
character of the village by giving incentives and relaxations in the process of redevelopment of the Lal
Dora/Extended Lal Dora in terms of land/loan/permissibility of commercial land use or additional FAR.

7.4.6 Compensation Measures

45
 The earlier practice of allotment of plots in developing colonies to villagers whose
lands have been acquired for Planned Development of Delhi should be resumed and care
should be taken that plots are given in the neighbourhood.

7.5 Pilot Projects to serve as demonstration models

To demonstrate implementation of two of the key recommendations (viz., firstly of
making a beginning in introducing transparency by bringing available village records on
to Website; and secondly of showing how with people’s participation development in a
village could be integrated with the surrounding areas) two small pilot projects should be
taken up.
 Under the first project, rural maps and records already available in South District should be
brought on to MCD’s Website within a month’s time.

 Under the other, LAPs of a few villages should be prepared (e.g., Mehrauli-Kishangarh,
Mandi, Mandavli-Fazalpur and Sarai Kalekhan. Nizamudddin Basti may also be taken up as an
example of extension of this strategy to urban sub-standard areas).

These pilot projects could be taken up with funds available under a sanctioned scheme of
Delhi Government. (In fact, ECLD would have got it done during its tenure. Unfortunately,
these could not be initiated due to certain reasons). It is possible to complete this pilot
project in 3 months time and that should be done. .

7.6 Extension of this Development Strategy to other sub-standard areas

(e.g., Unauthorised/Regularised Colonies, JJ-Clusters, Slum pockets and special
areas as defined in the Master Plan)

The mandate of this Committee is limited to Lal Dora and Extended Lal Dora areas,
but the Committee would humbly suggest that the strategy of
development/redevelopment recommended above for villages could gainfully be extended
to other sub-standard areas of Delhi. The advantages in adopting such a course of action
would include the following:

 It will be a people-centric strategy of development based on intensive preparation

of the target groups through carefully drawn up awareness campaigns and incentives
(of upgrading their standard of living and of their gaining prosperity through value
addition of their property without having to make monetary investments), with no
element of coercion, to be implemented in consultation with the residents and with
their willing cooperation.
 With more intensive use of land, it would be possible to accommodate practically all
the residents in situ or at least in the vicinity. Thus it would avoid dislocation.
 It will also be possible to flood the market with adequate commercial space bringing
down their cost (which is exorbitantly high at present) and that would provide
livelihood opportunity to the needy besides easing the problem of traders who were
misusing residential premises for commercial activity on account of dearth of
planned commercial spaces in Delhi.
 With intensive utilization of land on the PPP principle, development will become
largely self-financing and self-sustaining.

46
  With provision of civic services, sanitation and improvement of environment, there
will be appreciable value addition to the property and their market value will go up.
The owners will gain substantially from the sharp rise in the value of their property.
 This awareness-cum-incentive based strategy of development is likely to result in a
win-win situation for all concerned.

********

EXECUTIVE SUMMARY
OF
EXPERT COMMITTEE ON LAL DORA
AND EXTENDED LAL DORA

1 INTRODUCTION
MOUD on 26.7.2006 set up a Committee of Experts to look into the issues of application of building
regulations and development control norms in Lal Dora and Extended Lal Dora and their integration in
the overall process of the planned development of Delhi. Shri P.P. Shrivastav,(Chairman) Sh. R.G.
Gupta; Prof. Jamal Ansari; Divisional Commissioner; as members and Chief Town Planner, MCD as
convener member.

2 BACKGROUND
The process of urbanization over the years has been engulfing the villages in Sub standard areas.
Urban Delhi grew fast around them while the villages remained within the confines of their Lal Dora.
The close layouts and narrow lanes of old village abadis were conditioned by old (now outdated)
historical compulsions of collective security, considerations of mutual interdependence and availability
around of vast open agricultural fields.

The villages have been deprived of their principal. The areas covered by extension of Lal Dora and
agricultural fields around the villages–both acquired & un acquired , became favorite hunting ground
of the middle and higher class to satisfy their need of cheap housing & commercial establishment up a
large extent. A big list of 1432 such colonies is slated for regularization as of date, many of them
around villages.

On 16 Feb 77; MOUD issued suitable orders regarding regularization of unauthorized colonies. It was
further specifically clarified (vide Order No. J-13037/113/ 74 / UDI / II-B dated 22 March 77) that
“the unauthorized colonies residential and commercial structures located within the ‘Lal Dora’ would
47
also be covered. In 1979 a Working Group was constituted to formulate a Perspective Plan for the
Development of Sub-Standard Areas of Delhi (1980-2000). This included villages as well, but was not
followed up. A Mini-Master Plan giving details of physical and financial planning of all the essential
services was formulated in 1984, but was not implemented. This was further revised during the period
1991 and onwards up to 96-97 and a few facilities were provided. Another ambitious project Sardar
Patel Gramodaya Yojna was inaugurated in 1997 but remained largely unimplemented.

The revised Master Plan–2001 was enforced in 1990, did lay emphasis on integrated development of
rural areas. The last comprehensive orders of regularization of unauthorized colonies on Govt. and
private lands are of 10- 04- 2004 of MOUD. Unfortunately, the zonal plans, area development plans
and redevelopment plans prepared by different authorities did not indicate abadi (Lal Dora and
extended Lal Dora) on the maps.
In February 2006 the Ministry of Urban Development constituted a Committee under the
Chairmanship of Shri Tejendra Khanna, former Lt. Governor of Delhi, to look into various aspects of
unauthorized construction and misuse of premises in Delhi. In its Report (May 2006) the Report it
was highlighted the urgency of the need to look into problems of Lal Dora and Extended Lal Dora
areas.

Provision of Draft Master Plan – 2021: The urban limits of Delhi are proposed for extension up to
interstate boundary leaving one revenue village at the periphery as buffer green. Hemmed as border
villages in the east and the south of Delhi are between highly urbanized areas of Ghazaiabad / NOIDA
and Gurgaon, it is highly doubtful that these border villages would be able to escape the wave of
urbanization. In this context in Draft MPD-2021 the proposal should have been to increase green /
recreational use to 18-20% ; and commercial from 3-4% to 5-6% .

3 EFFORTS OF GNCTD TO ADDRESS THE PROBLEM OF THE VILLAGES

Last Revenue Settlement was carried out in Delhi in the years 1908-1909. Lands falling within
villages abadi (Lal Dora) were not assessed to land revenue, but agricultural fields outside the village
abadi were subject to land revenue.

Act was extended to the NCTD in 1951. under the provisions of this Act, the work of consolidation of
Holding was initiated in some of the villages from 1951 and completed in 102 villages by the year
1954. Thereafter, Delhi Land Reforms Act 1954 was enacted and came into force in Delhi. The East
Punjab Holding (Consolidated & Prevention of Fragmentation) Act 1948 which continued to remain
extended to Delhi was also amended to provide for extension of village abadi while undertaking
Consolidation of Holdings. In the Rules framed under the Consolidation Act, common purposes were
specified as follows:

“Pasture lands, cremation or burial grounds, Khalihan, land for keeping cattle, fisheries, tanks,
skin flaying center, public latrines, fuel plantation, water channels, training places, well for
drinking purpose, sewage tank, market, mela ground, rural dispensary, veterinary center, village
theater, gurudwara, temple, mosque or church, drains, community orchards, community center,
young farmers club, etc.”

48
It is very heartening that GOI & GNCTD have taken cognizance of the increasingly serious problems
faced by the villagers of Delhi for no fault of them, & initiated a study of the same so that appropriate
measures could be taken at the earliest.

4 PROBLEMS OF THE VILLAGES AND EFFORTS OF DDA & MCD AT

ADDRESSING THEM.
There are numerous problems of land use, mixed land use; traffic, width of streets, roads; phirni;
absence of parking areas, huge malls, encroachment by outsiders, payment of less compensation,
stopping of allotment of alternate plots etc. All these problems listed under have been taken care while
making recommendations in last Chapter .

1. Residential, commercial, public & semi public use.

2. Un- authorised construction within and outside Lal Dora / Extended Lal Dora.
3. Household & other type of industries and warehouses.
4. Utter lack utilities & services (water, sewerage, drainage, solid waste management and
power).
5. Ill treatment of ponds.

6. Lack of community facilities viz. Health, Education, Security, Safety & Justice.
7. Acquisition of land at low prices.
8. Stopping of alternate allotment of plot.
9. Accessibility of vehicles on narrow roads.
10. Complete lack of parking sites.
11. Problems of mixed land use inside and outside the Lal Dora.
12. Non sanction of building plans.
13. Not getting NOC from Revenue Department of Delhi Govt.
14. Building Control Policy proposed by DDA but not implemented.
15. DDA prepared a redevelopment proposal for Dhul Siras village in Sector-24 of Dwarka &
may be taken as an example to follow to the extent possible in other villages.
16. Urban planning should proceed development and not otherwise.
17. System of sanction of building plans so far not being finalized.
18. Liberalizing norms and simplifying the procedure to make villagers Hassle-Free.
19. Making Development Norms for village easy to understand and follow.
20. Upgrading the civic services and environment in villages in order to integrate them with
urban areas y.

5 ASPIRATION OF THE VILLAGE PEOPLE & THEIR

ASSESSMENT
Villagers, interests groups, leaders of public opinion and others raised various points,
heading given under. All these points have been tried to be answered in
recommendations.

1. Relating to Lal Dora and Extended Lal Dora boundaries ( 2 points were raised)
2. Relating to relaxation of Development Controls and Building Bye-laws (9 points)
3. Relating to strict Enforcement of Development Control Rules (7 points)

49
4. Maintenance of Ownership records (1 point)
5. Development proposals (3 points)
6. Liberal Land-use policy (10 points)
7. Other Policy Issues (5 points)
8. Need for planning and regulations (4 points)

The Committee was greatly benefited from its intensive and free and frank
interaction with the Hon’ble MP’s , elected representatives of the people & other
dignitaries. Discussions were with the Hon’ble L.G, Hon’ble C M & Speaker of
Delhi proved to be extremely fruitful. They put up 22 points as details given in
Chapter-5 & taken care & answered in recommendations.

6 - TERMS OF REFERENCE: COMMITTEE’S RESPONSE WITH

REFERENCE TO THE PROBLEMS FACED BY THE VILLAGES
The Committee has carefully considered the views and recommendations contained in
the Tejendra Khanna Committee Report and the desirability and / or feasibility of
integration of Lal Dora and extended Lal Dora areas of Delhi in the overall process of
Planned Development of the city.

The following are the main shortcomings in the villages and have to be remedied in the
Comprehensive Development and Re-development Plans:
 Lack of Identity due to absence of gate and related Street furniture etc.
 Payments of less compensation than required.
 Lack of status due to non-transparency, awareness & lack of knowledge.
 Entry of non desirable elements, land uses etc.
 Absence of proper access, open spaces & facilities on the periphery.
 Acute shortage of parking spaces.
 Non maintenance of light and air planes in most of the cases.
 Encroachments on Gaon Sabha lands by Public and private sector.
 Need for commercial potential.

All these and points have been taken care in the chapter of Recommendations.

7 RECOMMENDATIONS
1. Transparency in Land Records and Permission Process.

i. Complete property ownership / possession in Lal Dora / Extended Lal Dora with location of
villages.
ii. Knowledge of Master Plan and concerned Zonal Plans by explaining and propagating them
again and again.

50
iii. Individual Village Development / Redevelopment Plans & Revenue maps with clarifications
required by the villagers.
iv. Demarcation of ‘Gaon Sabha’ Lands and extent of encroachments.
v. Land Use maps, Building Footprints and Floor-wise Building.

2. Strategy of awareness and incentive based Development.

A. Awareness Campaigns
i. Comprehensive development / redevelopment
ii. Make more intensive use of their land by forming Cooperatives or Village Group
Housing Societies for planning, development, redevelopment, laying of different
types of infrastructure, Management and maintenance.

B. Planning for improvement.

i. Local Area Plans (LAPs) from qualified experts from the open market.
The Local Area Plans should address the all the common acute problems of
villages.

ii. Accordingly, the Local Area Plans should have:

a. Land use for the next 20 years,
b. Judicious mix of land use, with adequate commercial component.
c. Reflect village characteristics in LAP with village haat and food bazaar.
d. Permit non-residential usages both as a stand-alone use on a plot or mixed
with residential use.
e. Provide adequate car parking with 30% of FAR for commercial components
to make it self-sustaining economically.
f. Village to be linked with the Metro lines and stations if possible in boosting its
development and economy.
g. 20% of the village abadi land should be earmarked in the vicinity for
expansion and provision of facilities for the village.
h. In case of large-scale acquisition of land village abadi areas are integrated in
the specific scheme of planned development.

C. Development Control Norms / Regulations

i. A tripartite arrangement among the community, the local government and
the private entrepreneur to achieve comprehensive development /
redevelopment
ii. To retain their existing houses villagers should be free to do so; provided
they limit the building height to a maximum of 15 M . The existing

51
 exemption of construction should continue under supervision of registered
architect.
iii. Plot size Ground coverage FAR Subject to conditions

2000-3999 sq.m. 40% 400 given below

4000 sq.m & above 40% 500 -do-

Conditions:
(a) Minimum of 12 m wide road will be provided. Where land for road-
widening is surrendered (free of cost) from the plot area, the permissible FAR
will be proportionately increased as TDR incentive.
(b) Other infrastructure norms – as prescribed in the Master Plan for Delhi with
the exception that minimum set-bak of 3m should be provided on all sides.
( c) Car parking norms – as prescribed in the Master Plan for Delhi. Multi-level
underground parking in basement up to the envelop-line.

iv. Left over requirement of parking by constructing multi-storied parking lots

v. Villages should plan for maximum possible commercial space and would
apply to commercial structures as well,
vi. In Extended Lal Dora areas, the list of permissible land-uses should
include group housing, commercial centers, specialized institutions, non-
polluting, non-nuisance creating House-hold industries and recreational /
amusement parks.

3. Task Force mechanism to give focused attention to villages

i. Village Development Task Force (VDTF)-tripartite partnership
arrangements involving the village community, the public agencies and the
Private Sector.
ii. Funding of VDTF may be met out of Plan Funds say under the Jawahar Lal
Nehru National Urban Renewal Mission (JNNURM)
iii. Trunk services to be provided by MCD / Jal Board etc. at their own cost;
peripheral services to be shared by the beneficiary-colonies/villages and
the internal services to be met by the development under the LAP (Local
Area Plan) for the village.
iv. With involvement of the Private Sector, project self-financing and self-
sustaining.

Special consideration for the villages

Mixed Land Use and Permissible Activities in LD/ELD areas
52
i. To be treated more liberally than in a normal urban residential colony. Existing
institutions (socio-cultural, educational, religious etc.) should also be permitted to
continue till they are relocated as per LAP ensuring a minimum ROW of 24m of
the abutting road.
ii. All these economic activities should be allowed to continue till they get
reorganized in a planned manner under the lAP
iii. Activities prohibited under GOI shall not be permitted in Lal Dora / Extended Lal
Dora.
iv. Others should be permitted to continue. In fact, LAP should be so designed as to
facilitate their continuance and growth and their smooth transition from
undesirable or untenable locations to properly planned areas.
v. Villages with heritage structures & those in reserved forests or in the Ridge area.
vi. All kinds of encroachments on the Gaon Sabha land in the heritage and reserved
forest villages should be removed and they should be converted to green.

Interim Arrangements
i. Till the LAPs are prepared, the existing non-residential activities should be frozen at their
present level.
ii. An affidavit from the applicant should be accepted as proof of ownership.
iii. Land allotted in Extended Lal Dora under consolidation proceedings, should be allowed to
be sold legally by the owners.

Gaon Sabha Land.

Special drives should be organized to get encroachments vacated.

Rehabilitation Measures
Alternative occupation in terms of industry/work-centre wherever the agricultural lands
of the villagers are acquired.

Conservation Measures
Preserve the handicraft, the heritage and historical chatacter of the village

Compensation Measures
Allotment of plots and should be resumed and care should be taken that plots are given
in the neighborhood.

Pilot Projects to serve as demonstration models

53
Mehrauli-Kishangarh, mandi, Mandavli-Fazalpur and Sarai Kalekhan, Nizamuddin
Basti
Other Sub-standard areas e.g. Unauthorized / Regularized colonies, JJ-Clusters, Slum pockets and special areas as defined in the Master Plan

Strategy of development / redevelopment recommended above

for villages could gainfully be extended to other sub-standard
areas of Delhi.

19.01.2007

Dear

Subject: Set up of a Task Force in Delhi:

Task force would be for Physical & Financial planning, Development, Redevelopment
of: (i) Urban villages, (ii) Rural villages, (iii) Census Towns, (iv) Unauthorized
colonies, (v) Unauthorized-regularized colonies; based on new norms of planning,
development controls, system of amalgamation of plots etc. based on various
Notifications and Reports (Tajendra Khanna, PP Srivastava and KK Mathur). The Task

54
Force would be only for 5 years to be coincided with 11 th Five year plan of Delhi.
Names of main plans to be completed in a period of say 1 year are as under:

(i) Zonal Plans – 17 in Numbers based on new Master Plan – 2021 AD.
(ii) Local Area Plans including of villages; about 250 in numbers.
(iii) Plans of unauthorized colonies about 1500 in numbers.
(iv) Plans of 17 Unplanned Industrial Areas notified in December 05.
(v) 300,000 commercial spaces.
(vi) 200 Banquets halls.
(vii) Village Haats.
(viii) Special plans of heritage villages in terms of Entrance gates & other historical
features.
(ix) Villages in reserved forests and on Ridge.
(x) 500 Parking Sites; on surface, basements and multi storied.
(xi) Plans of Street Furniture.
(xii) Trunk Infrastructure – Water, Sewerage, Drainage, SWM & Power.
(xiii) Peripherals Infrastructure - Water, Sewerage, Drainage SWM & Power.
(xiv) Internal Infrastructure - Water, Sewer, Drainage SWM & Power.
(xv) Trunk roads, Arterial roads Peripherals & internal roads.
(xvi) Connection with MRTS (if possible).

2) STRUCTURE (in brief)

1. Chief Minister Delhi / Minister of State - UD

2. Minister of UD – Delhi Govt.
3. CEO – (Add. Secretary GOI level) in the Ministry of UD-D. Adm.
4. Advisor1 to the Task Force.
5. Members of (i) Planning, (ii) Engineering, (iii) Finance, (iv) Lands, (v) Social and interaction
Work, (vi) Member Secretary.
6. Other members:
(i) Non Official
One MP of Ruling Party and the second of Opposite party,
Two MLA of ruling party and the third of Opposite party,
Two Members of Nagar Nigam
and the other two of specific villages
(ii) Official Members.
(i) VC DDA, (ii) Comm. MCD, (iii) Jal Board, (iv) Electricity Regularity Power Authority (v)
Engineering Chief, (vi) Heads of other executive bodies.
7. Other officers and staff of different disciplines would be taken from organizations like: DDA,
MCD, CPWD, etc only on deputation.

1
He should be a qualified person of Regional planning, Urban Planning, Architecture & Engineering with Bachelor or
Post Graduate Degrees or Fellow Ship of National Institutes. Experienced of working in parliament, NCR, Delhi Adm.,
DDA, D.Adm owned corporations like DSIDC, DAMB, DTTDC, DLPPC, etc. He should have a total experience of more
than 40 years at senior executive level.

55
3. FUNCTIONS
Coordination, Integration, Evaluation & Monitoring of (i) planning, (ii) development , (iii)
construction (iv) feed back and (v) ultimately governance of 5 Basic elements viz. Man,
Nature , Society, Networks, & Structures at Macro, Meso, & Micro level of different land
uses. Functions would be as under:

1. To start a T.V. and Radio channel to educate public at large for planning of Delhi.

2. Transparency in Land Records & Permission Process about Property ownership, Lal Dora /
Extended Lal Dora & Phirni; Master Plan & Zonal Plans; local area plans incluiding of
villages along with revenue maps with marking of Gaon Sabha Lands with encroachments.

3. Strategy of awareness and incentive based Development

4. Task Force mechanism to give focused attention to villages

a. A tripartite arrangement among the community, the local government and the private
entrepreneur to achieve comprehensive development / redevelopment.
b. Funding of Task Force may be met out of Plan Funds say under the Jawahar Lal Nehru
National Urban Renewal Mission (JNNURM)
c. Trunk services to be provided by MCD / Jal Board etc. at their cost; peripheral services to be
shared by the beneficiary-colonies / villages and the internal services to be met by the
development under the Local Area Plans for the village.

5. Special consideration for the villages

Mixed Land Use and Permissible Activities in LD/ELD areas

6. Interim Arrangements
i. Till the LAPs are prepared, the existing non-residential activities should be frozen at
their present level.
ii. An affidavit from the applicant should be accepted as proof of ownership.
iii. Land allotted in Extended Lal Dora under consolidation proceedings, should be
allowed to be sold legally by the owners.

7. Gaon Sabha Lands

Special drives should be organized to get encroachments vacated.

8. Rehabilitation Measures
Alternative occupation in terms of industry/work-centre wherever the agricultural lands of the
villagers are acquired.

9. Conservation Measures
Preserve the handicraft, the heritage and historical chatacter of the village

56
10. Compensation Measures
Allotment of plots and should be resumed and care should be taken that plots are given in the
neighbourhood.

11. Pilot Projects to serve as demonstration models

Mehrauli-Kishangarh, mandi, Mandavli-Fazalpur and Sarai Kalekhan, Nizamuddin Basti

It is for consideration of the higher authority to constitute a TASK FORCE on the

points given above with or without modifications.

With Regards

Sajjan Kumar.

57