26 Land Use Planning I: Management and National Policies

Sunil Mittal

Introduction
Definition of Land use planning
Land use in India and its classification
Land degradation scenario of India
Provisions for land use planning in India
Land use planning and management – a solution for sustainable development
Lack of overall approach to land use planning and utilization in the country
Competing and conflicting land uses
Impacts from improper land use are to be dealt with
Need for policy framework for optimal utilization of land resource
Core issues to be addressed

1. Introduction

The most significant component of the life support system is land. Land is an important natural resource which exhibits soil, water, flora and fauna. Land is crucial for agriculture, natural resources, ecosystem services and all developmental activities. Day by day, Indian population is growing. Growing population and consequent demand for food, clean water, biological resources and other products has put tremendous pressure on land and created negative impacts on environment. India is the seventh largest country and therefore, land resource management is necessary. India’s geographical area is 2.4% of world’s geographical area and 17% of world’s population is living on that mentioned area. Land being a finite resource is comprised of water, soils, minerals, and biota. 60% of Indian population is totally dependent on land as a source of livelihood via agricultural activities India as a developing country depends on cultural, social, and environmental aspects on one hand and also demands land the other hand. In the recent years, there has been extremely great pressure on land in India and therefore, that burden is posing challenges for sustainable development. Agenda 21 was a declaration that was signed by several countries and aimed at allocating land for sustainable uses and to promote management of land resources. It is clearly understood that the land should be used judiciously and wisely and there must be optimal utilization of land resources. As a developing country, India cannot afford to neglect land so as to maintain sustainability and avoid conflicts regarding land use. Maximum part of the land should be used for industrialization, urbanization and improvement of infrastructure facilities. However at the same time, agricultural ecosystem should be maintained so as to ensure food security and to maintain the economy of the nation.

2. Definition of land use planning

Definition of “land use planning” was given by the United Nation’s Food and Agriculture Organization (UNFAO) and the United Nations Environment Programme (UNEP) published in 1999. Land use planning is a systematic procedure that allows the sustainable development of land resources in order to fulfill people’s needs and demands. It examines the socio-economic, physical, legal, and institutional constraints and potentials with respect to most favorable and sustainable use of land and its natural resources.

The process of analyzing land and substitute patterns of land use and other physical, socio-economic conditions so as to select and adopt those kinds of land use to achieve specified objectives is known as Land use planning. Land use planning may be at village, district, state, regional, or national levels.

3. Land use in India and its classification

Table 1 shows statistical data for India’s land use.

P indicates parentheses. Figures in the parentheses represent percent to the reported area. Cropping intensity is percentage of gross cropped area to the net area sown. Source: Directorate of Economics & Statistics, Ministry of Agriculture (http://eands.dacnet.nic.in/)

4. Land degradation scenario of India

Land degradation is a considerable challenge for agricultural sector and it has been estimated that 44 % land area of India is degraded. The causes of land degradation are numerous and complex. Factors responsible for land degradation include vulnerability to natural hazards, overuse of agrochemicals, improper crop rotations, and mismanagement of the irrigation system. Moreover, shifting cultivation practiced in some parts of the country is guilty for deforestation and conversion of agricultural lands to less productive lands.

5. Provisions for land use planning in India

According to the Entry No. 18 of the Seventh Schedule (the State List) of the Constitution of India, land assessment and management, maintenance of land records, and land use planning is attended by the State Governments. Article 243ZD (1) of the Constitution states that District Planning Committee should be constituted in every State at the district level to prepare a draft development plan and to unite the plans prepared by the panchayats and the Municipalities.
Indian constitution has the provision spatial planning and the National activities are focused in framing guidelines, policies, and model laws for adoption by the States, and formulating development plans and policies for Union Territories.
Throughout the country, there is not even a single approach that has been followed in the area of land utilization. Different sectors such as industrial, urban, rural, transport, agriculture, mining, etc. frame and follow their own approaches. For example, in rural sector half of Indian population is dependent on agriculture. The agriculture sector focuses on improvement of land acquisition, resettlement, rehabilitation, modernization of land records and watershed management. There is no approach in in rural areas for planning and management of land resources.

6. Land use planning and management – a solution for sustainable development

Proper planning of land resources allows for sensible and sustainable use of land to fulfill various needs including economic, environmental, social, and developmental needs. Proper land use planning based on technical procedures, land utilization strategies and scientific approaches permits people to make decisions on land utilization and allocation.
There is an urgent need for an integrated land use planning. It includes commerce, housing infrastructure, industry, agriculture, forests, mining, and transportation infrastructure, urban area settlements, etc.
National Commission on Agriculture (1976) gave special importance on the use of scientific approaches for land use planning so as to achieve self reliability, food security, and enhanced livelihood security.
The National Policy for Farmers (2007) recommended the revision and linkage of existing Land Use Boards to district-level land-use Committees. The main aim of the policy was to provide quality and positive advice to farmers on land use.
The Committee on “State Agrarian Relations and the Unfinished Task in Land Reforms” (2009) also laid emphasis on the need for land use planning in India.
Sustainable Development strategy Agenda 21, an action plan of the United Nations (UN) was ratified by more than 170 countries at International Earth Summit held in Rio de Janeiro, Brazil, (1992). This plan advocates the achievements of sustainable development through suitable land use planning and management.

7. Lack of overall approach to land use planning and utilization in the country

In India, there is lack of complete and integrated land use planning which enables optimal land utilization. The existing land use planning in the country is insufficient and does not cover all the levels including districts, state, regional and national levels. Therefore, the need of the present era is to develop a systematic and scientifically based land use planning.
The Constitution (74th Amendment) Act, 1992 provides area/land planning for Districts and Metropolitan areas that consolidates plans of both panchayats and municipalities with regard to spatial or land use planning. However, the currently prepared district plans do not cover land.
Due to the non-existence of land use plans on district level, the development at regional levels as triggered by industrialization or urbanization needs to be regulated for initiating land use planning of industrial, urban or eco sensitive areas so as to make sure that sustainable development will happen.
If immediate actions are not taken, then the unplanned development can cause adverse impacts. These negative impacts will include land use conflicts with natural resource areas, agricultural areas, rural areas, and fragile ecosystem. The hazardous impacts will also cause loss of ecosystem services and productive land.

8. Competing and conflicting land uses

Competing and conflicting land uses are the most important concern. “Competing land uses” are those that fight for the same bundle of land for their location. For example, rural areas competing with agriculture area for cash or food crops; agro-industrial uses; integrated townships, and mega projects like power plants or ports).

“Conflicting land uses” are in disagreement/conflict with the existing land use. Certain land uses produce effects on nearby land uses. For example, an industrial area can adversely affect the nearby areas due to air pollution. Similarly, an urban expansion can destruct the ecosystem service of natural drainage thereby producing impacts on lakes and water bodies. The basic concern is the harmful impact that such land uses produce on other land uses. Indiscriminate changes in land use affect eco-sensitive zones and hence, affect wildlife habitat, local and global biodiversity. Competing and conflicting land uses are also the cause for conflicts between the local population, and the authorities.

9. Impacts from improper land use are to be dealt with

Land degradation mainly due to soil erosion and other degradation processes is a severe problem in many regions of India. Land degradation turns down the soil fertility and also creates the problems of water logging and salinity/ alkalinity/acidity. These degraded soils are frequently used by marginal farmers and tribal population. However, the productivity of these lands is less and a study has estimated the economic loss of Rs. 285,000 million. This loss is 12% of total productivity value of these lands.
Water resource projects are frequently planned and implemented without considering benefits of the people, environmental sustainability and optimal utilization of water resources. The natural water bodies are being encroached upon and diverted for other purposes. As a result, the recharge zones of groundwater are repeatedly blocked. Water pollution of water sources is growing due to industrial effluents, and is causing environmental and health hazards. Large stretches of rivers are heavily polluted and are unable to support aquatic ecology, aesthetics, cultural needs and self purification. Moreover, the features of catchment areas of rivers, streams, and aquifers are changing due to improper land use and land cover changes and thereby, affecting water resource quality and availability.
Climate change is responsible for an elevation in temperatures, drought and flooding. Land use changes involving the conversion of forest covered areas to agriculture/ industrial is a major factor in increasing CO2 (carbon dioxide) concentration in the atmosphere. CO2 is a dominant greenhouse gas that is contributing to climate change.
Threats of disasters and pollution are growing day by day due to industrialization, urbanization and use of chemicals/pesticides in agriculture. Hazardous effects arise due to application of chemicals/pesticides, emission of toxic pollutants, and discharge of industrial effluents that are non-biodegradable and toxic. Biodiversity is also facing risk due to loss of several flora and fauna.

10. Need for policy framework for optimal utilization of land resource

A policy framework needs to be formulated at the national level that should incorporate concerns from stakeholders and different sectors. The framing of policy will ensure the optimal exploitation of land resources via proper land use planning and management.
The framed policy should provide guiding structure for adoption by States and in order to prepare their own policies incorporating State specific concerns. Land use policies should be developed by state authorities in consultation with stakeholders and ensuring suitable legal back up. Additionally, land use plans and strategies should be developed in detail in agreement with these policies in order to achieve sustainable development.
National Land Use Policy Guideline and Action Points (1988) was prepared by the Government of India (GoI) and Ministry of Agriculture. In case if there was the violation of this policy, then penalties were imposed. First meeting of the said policy was held on 6th February, 1986 and the framed policy along with its guidelines was placed before the National Land Use and Wasteland Development Council (NLUWDC), under the chairmanship of Prime Minister. The Council approved the implementation of policy and circulated the same throughout the country for adoption at State level after appropriate considerations. However, the policy failed to make the desired impact.
The proposed policy framework is referred as National Land Utilization Policy. The policy regulates land use in an efficient way and takes care of community’s needs by preserving natural resources and reducing land use conflicts.
The details of policy, the challenges, and the guidelines are discussed in detail in the upcoming sections.

11. Core issues to be addressed

a) Unregulated land use shifts: Geographical area of India territory is 328.73 million ha. Several developmental activities require land and during the developmental process, land use changes occur with time. If such changes are not regulated, then they can become detrimental in future for the sustainable development of country. Statistical data during the period 1950-51 to 2007-08 shows that the net sown areas in India have increased 4.3% and the forest areas have increased by 8.6%. The area under non-agriculture sector including mining, transport network, heritage sites, urban and rural settlements industrial complexes, and water bodies and has increased by 5.2%.

During the same period, the other areas including barren & un-culturable land and uncultivated land have decreased by 18.1%. The mining areas, urban areas and industrial areas represent 0.17%, 2.35% and <1%, respectively of total land of India. However, with advancement in industrialization and urbanization, the associated infrastructure development requires additional land. The demands for additional lands will be fulfilled from agricultural or forests land and it would prove detrimental. Therefore, there is a need to make strategic land utilization and its management so that the land use changes are not disadvantageous to sustainable development of the country.

b) Reducing per capita land resource

The per capita availability of land has reduced from 0.89 Ha to 0.27 Ha in 1995 to 2007/08. By the end of 2030, India will be the most populated country on earth and account for 17.9% of total population of world. As a result, the land availability per capita will further decrease. Reduction in per capita land availability will directly affect the land requirements for community development and other developmental purposes. If the land availability per capita is reduced in those areas that are supporting human life, agricultural areas or ecosystems including flora and fauna or natural resources.

c) Meeting the demands of rural and agriculture sectors

According to the census 2011, 68.84% of Indian population lives in 6, 40,867 villages and rest of the population (31.16%) live in 7,935 urban areas. Agriculture contributes only 14% of the Gross Domestic Product (GDP). However, it provides food security to the nation and serves as main source of livelihood for the rural population. Therefore, fertile land for agriculture purpose and clean water resources must be protected effectively.

At present, India is producing approximately 245 million tons of food grains. It has been estimated that the demand for food grains will rise to 307 million tons. The agricultural productivity of our country is almost half in comparison to that of many other countries. Food productivity and security experience great threat due to the increasing use of soil. Since the continuous and increased use can lead to the loss of soil fertility. Hence, the major question is whether these soils will have that much productivity so that the increasing population can sustain higher living standards than those prevailing now. For this purpose, sensible restrictions on acquisition and conversion of agricultural lands should be introduced. National Policy for Farmers, 2007 explains that primary farmland must be preserved for agricultural use only and it should be altered under exceptional circumstances. The demand of the present time is the protection of agricultural areas including double cropped land, irrigation areas and agricultural land, since these are vital for food security and livelihood of tribal and rural populations.

d) Protecting lands under natural resources and ecosystem services

India is comprised of seven climate regions and nine bio-geographical regions. India is extremely rich in biodiversity and consists of several eco-sensitive zones. India is amongst one of mega-biodiversity countries in the world, and comprises of around 45,500 plant and 91,000 animal species. Out of the 45,500 plant species, 6,500 native plants are used significantly in native healthcare. In addition, India is also recognized as ‘Vavilovian Centres of Origin and Diversity of Crop Plants’, where more than 300 wild ancestors are present and close relatives of cultivated plants are still evolving under natural conditions.

Indian soils are broadly classified into 27 classes. Approximately 56% land area is covered by alluvial soils, red soils and black cotton soils, and these soils are considered appropriate for a variety of crops. Laterite, lateritic and desert soils covering 15% of the land area are not good for agriculture. There are limited water resources in India. Besides, these limited resources show uneven distribution over space and time. The total forest area is 23.57% of total geographic area of India. Of the forest areas, 51.6%, 30.8% and 17.6% are classified as reserved forests, protected forests and un-classed forests, respectively. The Indian Forest Act (1927), National Forest Policy (1988), and other State legislations provide guidelines, procedures and ways by which forests can be utilized and administered. These legislations have profound effect not only on forest lands but also on non-forest lands. India produces 89 minerals, out of which the number of non-metallic, minor minerals, metallic and fuel minerals are 52, 22, 11 and 4, respectively.

Natural environment and its resources offer several ecosystem services that include

Providing food, water, biomass, industrial products, pharmaceuticals, and hydro wind/wave power.
Supporting air and water purification, nutrient cycling, seed dispersal, crop pollination and disease control.
Cultural benefits including recreational and spiritual and benefits.
Genetic and species diversity is conserved for future use.
Regulation of climate, detoxification, flood retention, carbon sequestration, and waste decomposition.

Natural resource areas including forest areas, biodiversity areas, and ecosystem service areas need to be protected. National Parks, Biosphere Reserves, wildlife sanctuaries are clearly demarcated for protection purpose due to legal provisions. However, the Eco Sensitive Zones around them are not demarcated due to the involvement of different agencies. Therefore, it is necessary to ensure that eco-sensitive areas are clearly demarcated along with the proper planning of land use. Land uses in such sensitive zones should be regulated and controlled to avoid conflicts or negative impacts on environment.

e) Meeting urbanization demands

Urbanization in India increased from 17% to 31% from 1951 to 2011. World population prospect released by United Nations shows that urban population will represent 55% of Indian population by 2050. If the urbanization will keep on increasing in this pattern, then the 377 million populations according to 2011 census will become 915 million by 2050. The number of towns in India exhibited an increase of 5,161 to 7,935 from 2001 to 2011. Maximum cities are located around coastline, lakes and along the rivers, the agriculturally productive belt and eco-sensitive areas. Urban land accounts for 7.74 million hectares, and this data is only 2.35% of the India’s total land area. However, urban areas give rise to several conflicts regarding land use. Most of the domestic and international investments are made in cities and towns since they provide site for the occurrence of commercial activities. As the economic sector grows, towns and cities are also expanding and the contribution made by urban sector to the Indian economy is also increasing. In the upcoming days, the urban sector will structurally transform the Indian economy and will sustain the economic growth. In future, the requirement for non-farm land use will further enhance. Therefore, proper land use planning, and land utilization and management strategy should be developed to fulfill the growing urbanization needs.

f) Meeting industrialization demands

In addition to urbanization, Industrial development also accounts to the major part of economic growth in India. According to 12th Five Year Plan, the annual economic growth rate of India should reach at least 8% in 2012-17. An increase in economic growth will show a significant increase in the life quality life its citizens, encourage sustainable development and reduce poverty. The 12th Five Year Plan estimates economic growth in manufacturing sector at 9.8-11.5% and the mining and quarrying sector at 8 – 8.5%. This will bring in requirement of additional land and there will be pressure on existing land resources. Therefore, the pressure can be relieved by adopting various land utilization and management strategies and land use planning.

g) Meeting minor sector demands

Minerals are site specific and non-renewable natural resources. Minerals located in the state boundaries are owned by State Governments and minerals underlying the ocean are owned by Central Government. Mining projects require land for the extraction of minerals. Currently, land utilization by mineral sector is 0.17% of India’s total land area. It contributes 2.72% of India’s GDP. Mineral extraction has become a priority as it is a contributor to the economic development of India. Mining leads to the degradation of the land and natural resources associated with it. Maximum mining areas are located in forest areas and therefore, there are several environmental and forestry issues linked to mineral extraction. Mining activities also have potential to perturb the ecological balance of adjacent areas. Hence, there is the demand of proper planning and management of mining areas so as to ensure sustainable development.

h) Meeting transport sector demands

Transport sector is the major user of land in the form of railway stations and tracks, roads, toll plazas, fuel pump stations, airports, workshops, runways, ports, godowns etc. The total length of road network in India is 4.69 million km. According to the National Highways Act (1956), the Central Government has the authority and power to acquire land for the construction of National Highways. Therefore, considerable amount of land is required for transport networks. Consequently, proper planning of land usage is very important; otherwise the unplanned construction of national highways can trigger land use conflicts between the developing authorities and communities depending on them.

i) Development vs. sustainable development

All the developmental activities require land acquisition and possess full potential to exploit natural resources and displace people residing on that land. These effects create conflicts and negative impacts on environment. Accordingly, different developmental sectors like industrial development, infrastructure development, urban development, mining, and transportation development can be supported in a sustainable manner so as to avoid land use conflicts or harmful environmental impacts

j) Protecting social interests

India has significant amount of helpless populations in the rural, tribal and backward areas. These communities do not have sufficient access to basic facilities and are devoid of good livelihood. They represent the backward communities and economically weaker sections of people. These communities need to be developed socially in order to sort out these issues. Again, land plays significant role in this matter. If social conflicts arise due to possession of land, then the land use should be planned in such a way so as to minimize or to prevent conflicts.

k) Protecting heritage

India is a country enriched with historic and cultural heritage. There are several areas including scenic areas, archaeological and heritage sites, which need to be protected from adverse impacts of land use changes. Proper land use planning can play a vital role in the management of such negative impacts and securing of the heritage areas.

l) Inadequate land use planning capacities

Land use planning in India requires detailed knowledge of systematic and up to date spatial data base. However, there is lack of systematic database and therefore, difficulties are being faced while making projections for land uses by different sectors. However, the spatial database can be generated by the use of Geographic Information Systems (GIS) and remote sensing. Indian government is on its way to set up National Spatial Data Infrastructure. Therefore, land use planning (systematic and integrated) at regional, state and national levels is going to be a great challenge. Another aspect is the framing of guidelines for consistent land use planning.

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References
1. http://eands.dacnet.nic.in/PDF/Glance-2016.pdf
2.http://dolr.nic.in/dolr/downloads/PDFs/Draft%20National%20Land%20Utilisation%20Policy%20(July%202013).pdf
3. http://www.moef.nic.in/divisions/ic/wssd/doc2/ch13.pdf
4. Mythili, G., & Goedecke, J. (2016). Economics of land degradation in India.In Economics of Land Degradation and Improvement–A Global Assessment for Sustainable Development (pp. 431-469). Springer International Publishing.