27 Land Use Planning II: Policy Framework and Utilization Trends

Sunil Mittal

epgp books

 

1. Introduction

2.      Current Land Use Planning and Utilization Trends

2.1 Urban area planning

2.2 Industrial investment zones planning

2.3 Eco-sensitive area planning

2.4 Mining area Planning

2.5 Watershed management for productivity of agricultural lands

2.6 Coastal zone planning

2.7 Land administration

2.8 Land use boards

3.  Relevant existing policies

4.  Guiding Principles for the National Land Utilization Policy

5.  Objectives of the National Land Utilization Policy

6.  Overall approach

6.1 Guiding framework for states

6.2 Identifying Land Utilization Zones

6.3 Management of Land Utilization Zones

6.4 Planning of Land Utilization Zones

7.  Identification of Land Utilization Zones

8.  Key Considerations for Planning & Management of Land Utilization Zones

9.  Institutional setup

10.  Policies, acts, and programmes that have a bearing on land resources

 

1. Introduction

 

The detailed information regarding land use, land degradation, land use planning has been provided in the first chapter. This chapter will highlight the current trends regarding to land use planning, guiding principles for National Land use Policy, objectives and overall approach for National Land use policy.

2.  Current Land Use Planning and Utilization Trends 2.1 Urban area planning

 

The Urban Development Plans Formulation and Implementation (UDPFI) Guidelines (1996) suggested urban development planning system. The system consisted of a set of four plans:

 

i.Perspective Plan: The lifespan of this policy plan was 20-25 years and was related to the spatio-economic development of the settlement.

 

ii. Development Plan: The life span of this plan was 5 years and was associated with the spatial economic development of the urban areas.

 

iii. Annual Plan: This plan contains the fiscal and physical details of recent and ongoing projects. This plan needs to be implemented by the local authorities during the corresponding financial year.

 

iv. Plans of Projects/Schemes: This plan contains the complete layouts for implementation by a private or public agency. Master and Development Plans are prepared for metropolitan and urban areas. Regional plans are also prepared occasionally e.g., plan for National Capital Region of Delhi. The Master or Development Plans are prepared by the Development Authorities, Town Planning Departments or urban local bodies. If regional plans are not prepared, then the human population will expand into rural areas and farmlands. 2.25% of India’s land will be brought under planned development, if the urban areas of the country are well planned.

 

2.2 Industrial investment zones planning

 

The National Manufacturing Policy (2011) of the GoI stimulates integrated industrial townships, and preparation of eco-friendly developmental plans. The regional/state level authorities such as infrastructure development boards and industrial development corporations identify locations for investment zones, special economic zones (SEZ), industrial estates, industrial corridors and prepare master plans for these areas. If there is proper land use planning of industrial areas in India, then 1% of India’s land will be brought under planned development.

 

2.3 Eco sensitive area planning

 

Ministry of Environment, Forest and Climate change (MoEFCC), GoI and Environment (Protection) Act, 1986 notified Eco-Sensitive Zones. Further development in these sensitive areas involves preparation of zonal development or master Plans. These plans will guide further development in these areas. Eco Sensitive Zones are the areas which contain those natural resources that are having unique values like flora, fauna and water resources etc. Since these zones are highly threatened, therefore they need special consideration for their protection. These eco-sensitive zones include Wildlife Sanctuaries, National Parks, Conservation and Community Reserves and represent about 4.79% of the total geographic area of India. Other areas including landscape areas, aesthetic and historical areas also come under the category of eco-sensitive zones. The main aim of declaring certain areas as Eco Sensitive Zones is to create a specialized ecosystem that needs to be conserved and protected. These are the transition zones that vary from high protection areas to lesser protection areas. The nature of these areas is regulatory not prohibitive.

 

The objectives of Eco Sensitive Zones are:

 

  • To maintain the response level of an ecosystem within the permissible limits with respect to environmental parameters.
  • To take care of special protection needs because of its landscape, wildlife, historical value etc. and to ensure that the new activities allowed are within the carrying capacity of that area.
  • To ensure protection and conservation of ‘Entities of Incomparable Values’ of these zones and regulate development activities based on a scientific basis and based on adequate participation in the decision making by the local communities.
  •  To ensure compliance to the provisions contained in the approved Zonal Development Plan/Master Plan/Management Plan through the constitution of high level monitoring committees.
  • 5% of the India’s land will come under planned development, if Eco Sensitive Zones are notified and properly planned.

 

2.4 Mining area planning

 

Mineral concession or mining lease is allotted for mineral extraction. Moreover, the allotted mine is operated in compliance to all applicable laws. If proper mining plans such as environmental management plan are not framed, then mining lease would not be granted to any public or private party. However, the management plan should be fully accepted and enforced by statutory authorities.

 

0.17% of India’s total land area will come under planned development, if the process of mining area planning is initiated.

 

2.5 Watershed management for productivity of agricultural lands

  • In order to increase the productivity of marginalised land, some schemes were started by GoI. These schemes were centrally sponsored and included Desert Development Programme, Drought Prone Area Programme and Integrated Wasteland Development Programme.
  • In 2009, all these schemes were merged under single scheme i.e., Integrated Watershed Management Programme. This scheme covered both the marginal lands as well as rain-fed agricultural areas. This was based on the understanding that the productivity of rain-fed agricultural areas should be increased to address the alarming food security issues of India.

 

The watershed areas could also come under planned development if these get associated with land use planning.

 

2.6 Coastal zone planning

 

Coastal areas contain abundant resources, rich biodiversity and productive habitats, and also play crucial role in promoting India’s economy. Coastal zone is also gifted with a wide range of ecosystems like coral reefs, mangroves, salt marshes, sea grasses, estuaries, sand dunes, lagoons, etc. These ecosystems are characterized by distinct ecosystem services and abiotic and biotic processes. In the past years, the incidences of urban sprawl, accelerated development and urbanization have shown an increase. These activities have put terrific pressure on the fragile environment of the coastal areas. As a result, ecosystem services and coastal resources are facing degradation due to overexploitation of natural resources and unplanned developmental activities.

 

In order to protect and conserve the coastal environment, MoEFCC and GoI issued the Coastal Regulation Zone Notification (1991) under Environment Protection Act (1986). This notification is responsible for the regulation of developmental activities in the Coastal areas. Certain restrictions were imposed on the land use in the coastal areas according to this notification.

 

Integrated Coastal Zone Management (ICZM) Project was initiated by GoI in association with World Bank for implementing complete coastal management plan in India, and piloting the same approach in states Orissa, Gujarat, and Orissa.

 

2.7 Land administration

 

Two centrally sponsored programmes i.e., Computerisation of Land Records (CLR) and Strengthening of Revenue Administration & Updating of Land Records (SRA&ULR) were launched by GoI. The main aim of these programs was the improvement of revenue administration and land records in India. Later on these programmes were merged to revitalize the agenda of land administration into a single programme i.e., National Land Records Modernization Programme (NLRMP). The main aim of this program was to maintain updated records of land use, land transactions, connectivity between revenue and registration systems.

 

2.8 Land use boards

 

State Land Use Boards were established in 1970’s under the Chairmanship of Chief Minister of the States at that time. These Boards provided policy directions and coordinated the activities of those departments that were dealing with soil and land resources. However, these boards realized that it was the wastage of time and never functioned the way they were meant for, and most of them have been abolished. Currently, the States do not have any policies to deal with land use issues in a logical manner. Hence, the responses of the States to land issues are spontaneous, non-consistent and unplanned.

 

3. Relevant existing policies

 

Policies that are related to land use include

 

  • National Forest Policy 1988
  • National Land Use Policy Outlines 1988
  • Policy Statement of Abatement of Pollution 1992
  • National Livestock Policy Perspective 1996
  • National Agricultural Policy 2000
  • National Population Policy 2000
  • National Policy and Macro-level Strategy and Action Plan on Biodiversity 2000
  • National Environmental Policy 2006
  • National Water Policy 2013

 

4.  Guiding Principles for the National Land Utilization Policy

 

  •  1st Principle: The primary concerns for sustainable development include human beings. They are supposed to live a productive and healthy life in harmony with nature.
  •   2nd Principle: This principle involves equal opportunities in terms of gender equality, inclusive growth, and poverty eradication. The three mentioned factors are crucial desires for sustainable development of country. These factors must be addressed in all programmes, policies, and plans.
  • 3rd Principle: Balanced development and intergenerational justice Developmental activities in various sectors must be planned in a balanced manner to meet socio-economic and environmental needs of present and upcoming generations. The developmental activities should minimize the population displacement on large-scale.
  • 4th Principle: Efficient utilisation of resources and mitigation of impacts Optimum utilisation of land resources is essential. Moreover, projects should be set up on wastelands, un-irrigated lands, recycled lands, or degraded lands.
  • 5th Principle: Integrated and comprehensive development planning Development planning must be sustainable and comprehensive. The interest of stakeholders and various sectors should be taken into consideration for the development of plans.
  •   6th Principle: The States are custodian of land The sole custodians of the land are states. Unsustainable patterns of land utilisation and management must be neglected by the state governments. State governments must provide legal support to facilitate land use planning.
  • 7th Principle: Harmonization with existing policy, legislative and regulatory framework

 

The existing laws, standards, guidelines, procedures, and constitutional provisions and rights applicable for land use policy as framed by GoI, various departments and ministries, shall be continued for making decisions on land use changes.

 

5.  Objectives of the National Land Utilization Policy

 

Goal: The goal of the National Land Utilization Policy is to achieve improvement of livelihood, food and water security, and best possible realization of various developmental targets so as to ensure sustainable development of India.

 

Objective: To ensure optimal utilization of the limited land resources in India for achieving sustainable development, addressing social, economic and environmental considerations and to provide a framework for the States to formulate their respective land utilization policies incorporating state specific concerns and priorities.

 

The specific objectives are given below:

 

Objectives related to social concerns

 

1.  Protection of agricultural lands from land use conversions so as to ensure food security and to meet consumption needs of a growing population and to meet livelihood needs of the dependent population.

 

2.     To identify and protect lands that are required to promote and support social development, particularly of tribal communities and poor section of society for their livelihood.

 

3.    To preserve historic and cultural heritage by protecting, places/sites of religious, archaeological, scenic and tourist importance.

 

Objectives related to environmental concerns

 

4.  To preserve and conserve lands under important environmental functions such as those declared as National Parks, Wild Life Sanctuaries, Reserved Forests, Eco Sensitive Zones, etc. and guide land uses around such preserved and conserved areas so as not to have land use conflicts or negative environmental impacts.

 

5.  To preserve the areas of natural environment and its resources that provide ecosystem services.

 

Objectives related to developmental/ economic concerns

 

6. To promote properly guided and coordinated development in a sustainable manner of all developmental sectors including agriculture, urban, industrial, infrastructure and mining so as to minimize land use conflicts or negative environmental impacts.

 

Objectives related to enforcement and implementation of the policy

 

7. To suggest a general implementation framework for implementing land utilization policy by all concerned at different levels, viz. national, state, regional and local, and undertaking capacity building.

 

6.  Overall approach

 

a) Guiding framework for states

 

National Land Utilization Policy fulfils the criteria of framing guidelines for the preparation of land utilization policies.

 

b) Identifying Land Utilization Zones

 

The dominating functions of land, environmental and developmental sectors are taken into consideration by National Land Utilization Policy. Moreover, the laws and approaches responsible for governing land uses are also taken into consideration. Indian lands are classified into different Land Utilization Zones (LUZs). These LUZs will be the focus areas for framing land utilization policies.

 

c) Management of Land Utilization Zones

 

Land Utilization Zones are further divided into different Land-use Management Areas for the purpose of land protection, management, regulation, and control, in accordance with priority needs and legal provisions of different sectors.

 

d) Planning of Land Utilization Zones

 

Land use planning designates the use of land for urban, rural, and industrial development and environmental conservation and protection. Land use planning will improve the socio-economic performance, well-being and efficiency of community. Land use planning can be taken either independently or integrated with Regional, district, Master or zonal development Plans.

 

7. Identification of Land Utilization Zones

 

Land Utilization Zones (LUZs) are divided into six categories:

 

a)   Rural and Agricultural Areas

 

b)  Areas under alteration

 

c)   Urban Areas

 

d)  Industrial Areas;

 

e)   Ecological, Tourism, Heritage and Landscape Conservation areas.

 

f)  Vulnerable Areas.

 

Relevant aspects like legal status, land potential, land use change pattern and socio-economic needs should be taken into consideration, while deciding the predominant use of land use. In order to make the planning and management of LUZs simpler, the extent of Land Utilization zones should be matched with the existing boundaries of panchayats and districts etc.

 

a) Rural and Agricultural Areas

 

Dominant rural and agricultural areas include

 

i.            Agricultural land areas that are extensively used.

 

ii.             Land areas containing fertile soils.

 

iii.             High production areas.

 

iv.            irrigation project areas;

 

v.            Population of an area that is totally dependent on agriculture as a source of livelihood.

 

vi.            Tribal and rural development areas.

 

b)  Areas under alteration/Transformation

 

Areas where agricultural land is getting transformed into non-agricultural land are known as “Areas under Transformation”.

 

Areas included under this category are:

 

i. Rural components of large cities.

 

ii.  Peri-urban areas of metropolitan cities;

 

iii. Development corridors between two metropolitan cities;

 

iv.  Extremely urbanizing districts.

 

c)   Urban Areas

 

Urban Areas are those areas that are necessary for fulfilling the urbanization demands of the country. These areas included in this category are:

 

i.  State/National Capitals

 

ii. Metropolitan urban areas (million-plus population)

 

iii.Urban corridors.

 

d)  Industrial Areas

 

Industrial areas include:

 

i. Industrial Corridors (mega projects)

 

ii. Special industrial regions

 

iii. Petro-chemical Investment Regions

 

iv. industrial estates

 

e)   Ecological, Landscape Conservation, Tourism, and Heritage areas

 

Areas included under this category are:

 

i. Ecological areas: include eco-sensitive areas such as national parks, biosphere reserves, coastal zones and wild life sanctuaries etc. Since these areas provide ecosystem services, therefore several environment and forest acts have been made. These areas also include water bodies, mining areas containing mineral resources.

 

ii. Landscape Conservation & Tourism Areas- The areas having scenic beauty and attractive landscapes.

 

iii. Heritage Areas – include world heritage sites, historic, religious areas, areas having monuments of national or state level significance.

 

f)  Vulnerable Areas

 

i. Areas vulnerable to manmade and natural hazards are included in this category.

 

ii.  Industrial areas having potential to cause major accidents.

 

iii. Areas susceptible to natural disasters like drought, floods, earthquakes, tsunami, etc.

 

iv.  Areas other than industrial hazards like chemical/gas pipelines, harbours/ports.

 

8.  Key Considerations for Planning & Management of Land Utilization Zones

 

a)    Land resources of the country should be used in optimum way so as to achieve sustainable development and to provide a framework for the State authorities so as to formulate Land Utilization Policies.

 

b)  Conversion of agricultural lands into non-agricultural lands should be avoided.

 

c)   Make it sure that the rights of tribal and poor people on common land are protected.

 

d)   Historic, cultural, religious, tourist and archaeological sites should be protected and conserved.

 

e)   Natural environment and the resources that are providing ecosystem services should be conserved.

 

f)  Development in different sectors should be promoted in a coordinated and sustainable manner to avoid land use conflicts or adverse environmental impacts.

 

g)  Regional approaches should be used to cope up with growing urbanization demands.

 

h)   The areas under industries or industrial estates should be reduced for optimal land utilization.

 

i) Mineral bearing areas should be avoided for mining purpose.

 

j)   While planning for transportation networks, the land use conflicts should be avoided. These areas should be preferably integrated with state/regional/district plans.

 

k) Areas under cultural heritage, historic places, tourism areas, religious places of interest etc. should be protected. Proper care should be taken while preparing land use plans.

 

9. Institutional setup

 

The institutional set up is followed at district, state and national levels for carrying out National Land Utilization Policy.

 

a) National Level Set Up:

 

The composition of the National Land Use Council is as below:

 

 

c) District level set up:

 

Chairman: Chairman of District planning committee

 

Members: District level officers of Water resources, Revenue, Agriculture, Urban development, Environment & Forests, Town & Country Planning, Industries etc.

 

Member secretary: District collector

 

10. Policies, acts, and programmes that have a bearing on land resources

 

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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%2 0Policy%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.