KEY WORDS:

Mixed Use, Master Planning, Public Realm, Delhi, MPD-2021.

Master Planned Mixed-Use:

Lessons from Delhi

Manu Mahajan Tekton

Volume 5, Issue 2, September 2018
pp. 8 - 19

ABSTRACT

Traditional Indian cites were mix-use developments, with

finely juxtaposed street-based living, production and trading.
In contrast, cities in the West formulated mix-use policies in
1960s to deliver vibrant and compact urban areas.

In India, the modern planning movement completely ignored Manu Mahajan is Assistant Professor of
Urban Design at School of Planning and
mixed-use and city master-plans propagated strict land-
Architecture (SPA), New Delhi. He holds
use zoning regulations. Nevertheless, mixed-use activities
Masters Degrees in Urban Design from
proliferated even in strict land-use zones, as people and
SPA, New Delhi and Urban Economic
markets responded to the absence/separation of vital and Development from DPU, Bartlett
interdependent uses. Only recently have the master-plans Faculty of Built Environment, University
of Delhi, Bangalore, Mumbai etc., introduced provisions for College London, where he was a
mixed-use. Commonwealth Scholar. Manu has more
than 15 years of consulting experience
This paper discusses the impact of mixed-use in Delhi, in projects of urban design, urban
where despite its well-intentioned insertion, it has become planning and heritage management
a threat as a ‘planned’ element. It has caused externalities projects. His areas of research include
transformation of inner cities and de-
such as privatization of erstwhile public space, unsafe
industrialization.
pedestrian environment, degenerated residential quality, and
infrastructure deficiencies. The paper examines these impacts
He sketches in pen and ink and has
and attempts to understand mixed-use as a design tool in the exhibited his works at many places
Indian context to inform relevant policies. in India.
m.mahajan@spa.ac.in

8 TEKTON: Volume 5, Issue 2, September 2018

Introduction Delhi has undergone massive transformation
Mixed use emerged out of some of the ill- due to mixed-use property development, as
effects of the early 20th century planning promised by the master plan, but the desired
frameworks of strict zoning and segregated benefits have not been achieved in the
land use such as lack of vitality of urban implementation of the policy.
environment and urban sprawl etc. Since its
The paper first presents a historical and
Overall, it is seen that the
theoretical review of the concept of mixed use
metropolitan core of Delhi has
and its potential benefits. A summary of key
undergone massive transformation
policy provisions is discussed subsequently,
due to mixed-use property
followed by empirical observations on the
development, as promised by the
impact of the mixed use. The paper concludes
master plan, but the desired benefits
with specific factors which might have led
have not been achieved in the
to an unintended impact of the policy in
implementation of the policy.
In last three to four decades, mixed
emergence in 1960s in North America and
use has emerged as an important
Europe, the concept of mixed use has gained
planning concept in American and
popularity due to its environmental, social and
European cities, essentially as a
economic benefits and all the major urban
reaction to the non-vitality of mono-
planning concepts such as New Urbanism,
functional and segregated land
Sustainable Urban Development, Compact
uses of the early 20th century town
City and Smart Urbanism have used it as a key
planning and also as one of the
principle. In India, historically, cities always
significant tools in regeneration of
had mixed use. However, modern land use
their inner-city/ town centres that
planning changed that. In past 10 or15 years,
were facing urban decay.
metropolitan cities of India have attempted
to re-adopt this concept in different forms by the case of Delhi and puts forward certain
either changing their land use regulations or recommendations important to realization of
by introducing new policies such as Transit- the potential of the policy.
oriented Development.
Mixed Use- a Traditional or
The present paper reviews the introduction Contemporary Concept
of mixed-use policy in the case of Delhi and In last three to four decades, mixed use has
its impact and whether the desired merits emerged as an important planning concept
could be achieved or not. The study is limited in American and European cities, essentially
to the metropolitan core of Delhi only and is as a reaction to the non-vitality of mono-
undertaken with the help of visual surveys, functional and segregated land uses of the
related local planning documents, media early 20th century town planning and also as
material and interaction with planning officials. one of the significant tools in regeneration
Overall, it is seen that the metropolitan core of of their inner-city/ town centres that were

TEKTON: Volume 5, Issue 2, September 2018 9

Manu Mahajan

facing urban decay (Grant, 2002). Looking these planning frameworks especially related
back at the history of urbanization, the mixed to the harm done to the urban vitality and
use finds its application in the structuring urban sprawl (Hirt, 2007). One of the first
of all the towns especially during medieval literature on this concept was Jane Jacob’s 1964
period and pre-industrial settlement pattern book The Death and Life of Great American Cities
(Wardner, 2014). In fact, it has been argued as advocating fine-grain mixing of diverse uses to
the most ‘ubiquitous characteristics of cities create vibrant and successful neighbourhoods
and urban areas’ throughout the world urban in 1960s (Grant, 2002; Hirt,2007). In subsequent
history (Herndon, 2011) till the Industrial decades, till the end of 20th century, mixed
Revolution. Some of the common traits of form use assumed centre-stage in many important
of settlement in medieval period exhibited the planning paradigms such as New Urbanism,
same concept of tight and close intermingling Smart Growth, Compact City and Sustainable
of functions of the built environment including Development (Hirt, 2007; Wardner, 2014;
places to live, socialize and produce and Coupland, 1997) and is also linked to
environmental quality, equity and efficiency
Often mixed use implies a
of post-industrial city (Grant, 2002). Traditional
combination or mixing of commercial,
and re-emerging mixed-use concepts of 1960s
residential and industrial land uses
differ in few ways, one important difference
as opposed to the segregation of
being the placement of the latter within the
residential land uses from non-
context of zoning ordinances, thus wherein in
residential land uses (Aurand, 2010).
traditional context, the entire city was a mixed-
Thus, having the residential use in the
use settlement, modern mixed-use districts are
area becomes the defining parameter
merely single tiles within a mosaic of mostly
in the definition (Coupland, 1997)
single use zoning classifications (Herndon, 2011).
distribute goods and services, essentially due to
walking as a primary mean of transportation, Definitions and Benefits
high density and clear distinction between Mixed use has been interpreted in wide
urban and rural. Herndon (2011) notes that variety of ways in post 1960s and some of the
“fundamental shift in this pattern of settlement important ones are briefly discussed here to
planning was brought by five factors, namely form an appropriate context for the case of
industrialization, urbanization, advances in Delhi. In a very simplistic way, mixing different
transportation, zoning ordinances and rise of land uses in the same geographical area is
affluent middle class.” mixed use, though the nature of mix and
scale of geographical area are crucial. Often
Thus, the town planning framework based on mixed use implies a combination or mixing
single-use function and strict zoning ordinances of commercial, residential and industrial
of 19th century and early 20th century led to land uses as opposed to the segregation of
demise of the mixed use (Grant, 2002; Hirt, residential land uses from non-residential
2007). The re-emergence of the mixed use in land uses (Aurand, 2010). Thus, having the
the first place is attributed to the ill-effects of residential use in the area becomes the

10 TEKTON: Volume 5, Issue 2, September 2018

 Master Planned Mixed-Use: Lessons from Delhi

Figure 1: Benefits of Mixed-use Development (based on Coupland, 1997)

defining parameter in the definition (Coupland, and proposed that former is used in green-field
1997). Another definition is linked to physical cases and latter in in-fill and redevelopment.
and functional integration and the combined
revenue generation potential of different uses Though centred on re-introducing vitality
in the mix as defined by Urban Land Institute in urban areas and improving town and city
(ULI, 1987). On a conceptual level, three aspects centres, mixed use has encompassed many
“increased intensity of land uses, increased strands of sustainable development as well
diversity of uses, and integrating segregated as theory of good urban form with objectives
uses” become defining features of a mixed-use of economic vitality, social equity and
development (Grant, 2002). Depending on the environmental quality (Grant, 2002). Wide-
scale of the mix, four types of mixed use are range benefits and outcomes of mixed use
defined by Rowley (1996)- within buildings, development, as adopted from Coupland (1997)
within building blocks, within the street or are illustrated in Figure 1.
other public spaces and within neighborhoods-
moving downward on the scale of fine-grained Expected benefits of mixed use development
mix. Smart growth paradigm defines it as are as follows.
diversity of compatible land uses that serve the
needs of the local population and these uses 1. Attractive pedestrian environments,
are easily accessible to residents, preferably enhanced social interaction and restoration
by walking or public transit (Aurand, 2010). of richer, more vibrant and diverse urban
Grant (2002) shows the difference in definition life (Hirt, 2007).
of the term within the two streams of New 2. Creation of economically efficient
Urbanism- traditional neighbourhood design composition of compatible land uses by
(TND) and transit-oriented development (TOD)

TEKTON: Volume 5, Issue 2, September 2018 11

Manu Mahajan

discouraging intensive office development 5. Longer delivery and higher construction cost
(Tucker, 1980). of mixed-use project against the single use
3. Provision of residential accommodation close (Coupland, 1997, Niemera, 2007).
to work and entertainment.
4. Preservation of historic buildings and One important aspect for realization of the
retention of scale and character of older benefits of mixed use is the challenge in
areas (Tucker, 1980). creation of mixed use itself and requires
5. Reduction in the car ownership and usage
Although unauthorized, such
by enabling people to live near places where
development was a response
work, shop and play is present (Grant, 2002,
to the needs of areas that were
Wardner, 2014).
predominantly residential but having
6. Construction efficiencies and a more
plenty of livelihood opportunities.
The mixed-use regulation was a
a capable and diverse development team
quick response to prevent sealing
(Wardner, 2014). Addressing the concerns and
and demolition of thousands of
interests of multiple stakeholders with their
illegal/ unauthorized commercial
competing needs is essential to achieve mixed
establishments in residential areas
use along with management of different levels
as per the Supreme Court Order
of service and intensity of use requirement
in 2006. There was a rampant
(Wardner, 2014).
proliferation of unauthorized
commercial development in
Looking at the specific context of Delhi, the
housing areas.
definition of mixed use takes into account a
rapid realization of the site’s potential residential and non-residential mix necessary
(Wardner, 2014). to sustain everyday life. It involves mix of uses
7. Benefit to service providers of activities within buildings, and within layouts, sites or
as some supplement the competencies of continuous street frontages with different uses
others in the exchange of good and services in the metropolitan core of Delhi.
(Wardner, 2014).
Mixed Use in Delhi - Policy Changes
At the same time, main disadvantages of the Town planning in Delhi since the first master
mixed use are also highlighted as follows. plan of Delhi in 1962 followed a rigid and
1. Hard to dispose of the property due to segregated zoning-based land use for the city
multiple occupants. and the adoption of mixed use as a policy is
2. Requires active management of property. quite recent and the context of its introduction
3. Requirement of separate access for each use. is not exactly related to the paradigm change in
4. Conflict between activities in the form of urban planning that has occurred in the west
traffic, noise etc. since 1960s as discussed above. The mixed-use
regulation was a quick response to prevent
sealing and demolition of thousands of illegal/

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 Master Planned Mixed-Use: Lessons from Delhi

unauthorized commercial establishments available commercial space, 2) to achieve a

in residential areas as per the Supreme better synergy between workplace, residence
Court Order in 2006. There was a rampant
Thus, it can be argued here, that on
proliferation of unauthorized commercial
one hand, this policy was a major
development in housing areas. This came about
deviation from the earlier single-use
as a reaction to lack of planned, accessible
zoning regime, and, at the same time
and affordable provisions for adequate
was informed by influence of the
commercial and institutional spaces by the
planning practices of 1970-90s in
Development Authorities in past few decades.
Europe and North America wherein
Although unauthorized, such development
mixed use was seen a major tool for
was a response to the needs of areas that were
inner-city regeneration.
Thus, mixed use policy was
and transportation, and 3) to allow access
adopted in Delhi as a special
to commercial activities in the proximity of
regulation to avoid large scale
the residences and thus reduce the need of
public outcry as well as to handle
commuting across various zones in the city.
this specific legal problem of
unauthorized development.
MPD-2021 applied a differentiated approach to
predominantly residential but having plenty of promote mixed use based on the categorization
livelihood opportunities. of residential colonies (a term common in Delhi
and includes residential areas ranging from
Thus, mixed use policy was adopted in Delhi as approx. 15,000 to 1,00,000 inhabitants) on the
a special regulation to avoid large scale public basis of property tax assessment. Three board
outcry as well as to handle this specific legal types of mixed use are permissible based on the
problem of unauthorized development. 2183 category of residential colony and road widths.
streets were notified by the Government of These three uses are:
Delhi in 2006 for local commercial and mixed- 1) Commercial activity in the form of retail
use activities (DDA, 2007). Later in 2007, with shops and offices.
the notification of revised Master Plan-2021 2) Other activity in the form of pre-primary
(MPD-2021) for the Delhi, this regulation was schools, nursing homes, guest houses, banks,
incorporated as a separate chapter and is now fitness centre, coaching centers, offices of
a major policy doctrine in the recent Transit- NGOs, vocational training centres.
oriented Development (TOD) regulations of the 3) Professional activity involving service
city (MoUD, 2015). based occupations such as doctors, lawyers,
architects, management offices etc.
As per MPD- 2021, broad objectives of
introduction of a liberalized provision of Detailed regulations are provided by the Master
mixed use in residential areas were, 1) to Plan for percentage of the total built-up area
meet the growing demand of commercial to be used for mixed use based on the nature
activities and overcome the shortfall of of development, i.e., plotted vs. group housing.

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Manu Mahajan

Figure 2: neighborhood streets transformed to commercial roads with erstwhile public space along plot boundaries becoming
inaccessible and privately guarded, Esasur Vithi Road, Greater Kailash-I (Source: Author)

Thus, it can be argued here that on one hand, 1. Privatization of Erstwhile Public Space:
this policy was a major deviation from the Major roads in the metropolitan core of the
earlier single-use zoning regime, and, at the city (about 15-20 km radius), especially at the
immediate periphery of the residential areas or
These new retail, hospitality and
at the interface of two residential pockets have
medical/professional facilities do
attracted all sorts of commercial, institutional
not cater to the local residential
and professional activities, ranging from retail
areas but form city/sub-city level
showrooms, service-sector oriented offices,
infrastructure requiring continuous
access and frontage from the main In case of Delhi, this transformation
road/streets. is on the contrary, leading to
an erasure of pedestrian space
same time was informed by influence of the
of a footpath along the road/
planning practices of 1970-90s in Europe and
streets. Moreover, the problem is
North America wherein mixed use was seen a
compounded by regular access of
major tool for inner-city regeneration.
cars to the individual properties, in
direct conflict with movement of
Present Impact in Delhi
pedestrians along the road.
Delhi has seen massive transformation after
the notification of the mixed-use policy and new restaurants, hospitality sector and medical
almost all the major streets ranging from 18m facilities. In the disguise of nursing homes and
to 60m in the city now have proliferation of guesthouses, as permitted under the mixed-use
one or other form of three mixed use activities norms, city has seen conversion of residential
permitted as per MPD-2021. Following are plots into boutique hotels and specialized
significant externalities generated by the medical centres.
implementation of mixed use policy in Delhi in
last ten years since its inception in 2006. These new retail, hospitality and medical/
professional facilities do not cater to the local
residential areas but form city/sub-city level

14 TEKTON: Volume 5, Issue 2, September 2018

 Master Planned Mixed-Use: Lessons from Delhi

Figure 3: No space for pedestrians on newly christened mixed-use streets, Lala Lajpat Rai Road, East of Kailash and Internal
Street, Block-F, East of Kailash (Source: Author)

infrastructure requiring continuous access and 2. Unsafe Pedestrian Environment

frontage from the main road/streets. This has led As residential plots have transformed into wide
to small 4-5 m setback spaces directly accessible variety of commercial establishments, the
from the main streets instead of earlier boundary original setbacks have remained intact. Earlier
configuration of residential development with
Thus, one finds penetration of
compound walls and dedicated footpath space
non-residential uses, mostly
along the roads have been replaced bit by bit
acting as city-level functions,
by boundary less conditions wherein footpaths
into the residential areas, in turn
have become extension of the setback space of
affecting the residential quality and
the individual commercial establishments. This
character of the neighborhoods and
transformation is quite distinct and different
threatening the safety and social
from typical mixed-use street development
mix of neighborhoods.
wherein properties sit right at the edge of the
walls of the residential plots due to revised property line and have active interface with the
redevelopment property regulations. At the same footpath/ pavement space leading to safe and
time, all these newly developed properties have comfortable pedestrian experience.
their own private security (guards as commonly
known in Delhi), not only looking after the In case of Delhi, this transformation is on the
property but also managing the setback space contrary, leading to an erasure of pedestrian
and access from the main street. These sub-city/ space of a footpath along the road/streets.
city level functions also attract cars from rest Moreover, the problem is compounded
of the city and thus setback space and earlier by regular access of cars to the individual
footpath space are used for parking with security properties, in direct conflict with movement
guards acting as parking managers. This is clearly of pedestrians along the road. The condition
an encroachment of earlier public space by new is also forcing people to walk at the edge of
commercial establishments. the main carriageway, a particularly unsafe
situation for old people and children.

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Manu Mahajan

Figure 4: neighborhood streets transformed to commercial roads with erstwhile public space along plot boundaries becoming
inaccessible and privately guarded, Esasur Vithi Road, Greater Kailash-I (Source: Author)

3. Degeneration of Residential Quality neighborhoods and threatening the safety and

MPD-2021 provides for inclusion in mixed use social mix of neighborhoods.
only 24 kinds of commercial activities meant
to cater to the local residential neighborhood. 4. Infrastructure Deficiencies
MPD-2021 also provides for nursing homes, Rampant commercialization of residential
banks, guest houses etc. as other activities fabric is not backed by enough planning
ranging from 2/3 to 100% of FAR on plot
rd at local area and thus city suffers from
sizes of 200 sq.m. and above with additional congestion and traffic management along
condition of minimum road width being these mixed-use roads/ streets. Residential
18m. This particular regulation is leading streets also suffer from unauthorized parking
to the intrusion of large format commercial as commercial functions attract visitors from
development, not necessarily catering to across the city and not necessarily from the
the local residential areas. As most of the local neighborhood. Additional load on basic
planned residential development (belonging services is not quantified yet as piece by piece
to 1960s and 1970s) in the metropolitan core transformation is under progress in the city.
of Delhi fits the minimum prescribed norms
of 200 sq.m. plot size and 18 m road width, Conclusion
the entire area is susceptible to commercial The case of Delhi shows that in the first ten
transformation due to high real estate years of implementation of the mixed-use
opportunity cost. policy, the strategic objectives have not been
achieved except for meeting the demand of
Thus, one finds penetration of non-residential commercial activities. Neither the synergy
uses, mostly acting as city-level functions between residences and work place nor the
into the residential areas, in turn affecting reduction in commuting needs across the city
the residential quality and character of the zones has been observed. In fact, one can argue

16 TEKTON: Volume 5, Issue 2, September 2018

 Master Planned Mixed-Use: Lessons from Delhi

Figure 5: Continuous building activity and rising infrastructure deficiencies leading to undesirable residential quality, Main
Road, GTB Nagar and Hansraj Gupta Marg, Greater Kailash (Source: Author)

that mixed use has led to commercialization etc.) defeating the very objective of mixed use
of the housing stock and congestion in the as the promoter of public realm.
metropolitan core of Delhi. Instead of achieving
the expected social and environmental Some of the larger forces behind the observed
objectives, mixed use has acted as a catalyst for outcomes of the mixed-use policy in Delhi are
real estate development purely for private gain. opportunity costs of conversion of use due to high
real estate property values, induced changes due
Neither the synergy between
to introduction of rail-based mass transit system
residences and work place nor
in the past 15 years, and high car ownership.
the reduction in commuting
These three specific characteristics/conditions
needs across the city zones has
of Delhi along with nature of residential
been observed. In fact, one can
development (essentially plotted housing)
argue that mixed use has led
undergoing change are some of the significant
to commercialization of and
reasons behind the results of the implementation
congestion in the housing stock in
of the mixed-use policy in the city.
the metropolitan core of Delhi.

Delhi has also seen another recent attempt of The learning from the case of Delhi is very
mixing use in District Centres (e.g. in Jasola), important, as mixed use has been promoted
wherein retail shops are planned along the across all the cities of the country via two policies-
main streets with offices on upper floor. Here Transit Oriented Development (TOD) and Smart
also, due to real estate market pressure and City Mission. Mixed use policy requires further
corporate offices, the nature of retail is either fine-tuning rather than blanket application
introverted, i.e. not-so street friendly or shops because there is a potential danger of conversion
are fully air-conditioned (as restaurants, bars of more urban land into private real estate
benefit under the guise of mixed use. The case of

TEKTON: Volume 5, Issue 2, September 2018 17

Manu Mahajan

Delhi further shows up the limitation mentioned Chitlangia, R. (2015). Mixed-use Messes up Quality
by Wardner (2014) that “mixed-use can be of Life, Times of India, 03 September, Delhi Edition.
handled by the planning policy up to a point Retrieved on 19 May 2016, from
only” and requires other conditions and efforts to http://timesofindia.indiatimes.com/city/
realize positive benefits. delhi/Mixed-use-messes-up-quality-of-life/
articleshow/48782096.cms
The following are some aspects, specific to the
context of Delhi for mitigating the negative Coupland, A. (1997), Reclaiming The City. London: E &
impacts of mixed use policy in future. FN Spon.
1) Preparation of local area plans for
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the unique attributes of the existing housing https://dda.org.in/tendernotices_docs/may1/MPD-
typologies and their transformations into 2021%20March2016BW190516.pdf
mixed use properties and infrastructure
upgradation. Grant, J. (2002). Mixed-use in Theory and Practice:
2) Involvement of local stakeholders and their Canadian Experience with Implementing a Planning
willingness to undertake transformations and Principle. Journal of the American Planning Association.
nature of mixed use, and 68(1), 71-84.
3) Overall streetscape improvement plans for
protecting the right of the pedestrian and Herndon, J.D. (2011). Mixed-Use Development in
integrating the transformation with attractive Theory and Practice: Learning from Atlanta’s
public realm. Mixed Experiences. Retrieved on 01 August 2016,
From https://smartech.gatech.edu/bitstream/
Notes: handle/1853/40790/JoshuaHerndon_Mixed-Use%20
1
The historical inner cities in India were frontrunners Development%20in%20Theory%20and%20Practice.pdf
in showcasing the multiple benefits of mixed-use.

Hirt, S. (2007). The Mixed-use Trend: Planning

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