India is on path toward rapid urban population growth leading to unmanaged metropolitan cities and other urban areas. Urban local bodies are unable to cope up with the pressure of urbanisation and unplanned urban growth problems continue to remain in all cities. If we have to define Indian urban landscape, it is a “bizarre ad-hoc juxtaposition of suburbs, gaothans, hills, slums and shanty areas, clutters of guthewari structures, streets with all activities, congested streets full of two wheelers and cars - which have turned into densely populated squalid habitats – in between surrounded by glittering buildings and gated communities.”
Floor Space Index (FSI): A Detrimental Provision in the UDCPR
The Government of Maharashtra recently notified the Unified Development Control and Promotion Regulations (UDCPR) which are going to have a very big impact on cities. The UDCPR is being implemented in cities like Pune without assessing its impact. The current trajectory of urban development, with the focus on real estate development, is the major reason for non-defined urban form and bad urban design followed in Indian cities.
The provision of increased Floor Space Index (FSI)1 will be detrimental to Pune and is outrageous. The FSI and side margin2 for buildings, give shape to the built environment. Pune has already become dense due to the 2007 Development Plan (DP). UDCPR will only put an additional population burden on the city.
The role of Development Plans and DCPR
The Development Plan (DP) and its Development Control and Promotion Regulations (DCPR) give a framework for land development for the upcoming twenty years. The DP specifies the zoning of areas into residential, commercial, industrial, recreational, educational, etc., and how much construction is permitted upon these lands is decided by the DCPR.
Pune’s growth in the last six decades is the result of Development Plans of 1966, 1987 and 2007. Merger and demerger of villages in Pune city's jurisdiction helped expand the city's boundary to 710 sq km. Instead of addressing key issues of the city, the DP has become a fiscal instrument for the municipal corporation, builders and real estate as every DP has provided an opportunity for more Floor Space Index (FSI). In fact, there should be a strategic environmental assessment of such plans as large-scale land conversions are bound to have a negative impact on the environment.
The Case of Kothrud: A Warning for Pune
A 2011 research study conducted by one of the students of Department of Planning, COEP Technological University, showed how the changes in the DCRs by the Pune Municipal Corporation led to increased density in the Kothrud region. (Sunday Times of India Pune, October 9, 2011). As per the mapping done by the PMC, the population density is between 200 - 1500 persons per hectare. The 2011 study also showed that Kothrud suburb has become densely populated. At that time, the population density had increased from 250 to 325 per hectare due to very questionable modifications in the DCR. This has resulted in traffic congestion, parking problems, lack of children's play areas and reduced recreation spaces.
The Impact of UDCPR: A Flawed Approach
One suspects that these changes in the earlier DCRs laid the foundation for the newly notified UDCPRs. It is highly doubtful that any research was carried out by the State Town Planning Department as to the implications of UDCPR in a metropolitan city like Pune. Sadly the town planning community has been conspicuously silent on this notification. However, privately, many town planners have expressed criticism regarding both the decision and implementation of UDCPR.
The current increased allowable FSI provisions of the new UDCPR are outrageous. It is equivalent to giving a free hand to developers to cover every square foot of land in the city. The very basic aim of town planning is to enhance quality of life for citizens. The time has come to scrutinise the DP as to whether it has given good liveability to citizens. UDCPR will make life miserable for citizens of Pune and diminish the liveability of neighbourhoods.
Random exploitation of FSI by developers and the government without corresponding increase or betterment in infrastructure, has already led to shortage of water, electricity and road space in Pune. Implementation of the new Unified DCPR will further aggravate the situation. The old core of Pune is already dense with population density of more than 800 person per hectare and whilst you may build taller buildings there is no way the roads can be broadened. Similarly, suburbs and added villages such as Wadgaon BK, Bavdhan, Ambegaon and others are also becoming dense.
The Loss of Recreational Spaces: Impact on Health, Hygiene and Liveability
A recent study conducted by a postgraduate student, found that large-scale increase in FSI provisions will double the tenements in an area compared to the earlier provisions. All these higher density tall buildings will bring innumerable traffic snarls on major roads. Citizens who commute daily for work know the inconvenience caused by the amount of time it takes to cover a distance of 10 km. The detailed study of the 1.7 sq km area in Wadgaon Budruk along Sinhagad Road which includes Anandanagar and Sun City area gave a disturbing picture.
As per the 2017 DCPR, if this area under study continues to develop it will have a population of about 35,190 with a density of 207 person per hectare. We found that if vacant plots (~21 hectare) and redevelopment of old gunthewari buildings with provisions of UDCPR take place, it will add another 1.25 lakhs to the population. If all plots are developed with FSI provisions from the new UDCPRs, the population in the 1.7 sq km area will rise to 1.6 lakhs with a gross density of 940 persons per hectare. In the estimated current 21 hectare vacant land, in addition to a population of 82,505, 47,710 two-wheelers and 42,558 four wheelers will occupy parking spaces in these buildings. One can imagine that even if 80 percent of these vehicles come on road during peak hours how much traffic congestion and snarl will be on all roads.
The increased population of 1.6 lakhs in 1.7 sq km area in Wadgaon BK will require 22 MLD (megalitres per day) water supply. This is going to put pressure on existing water supply lines. This area is already facing a shortage of water supply. What would be the effect of increased population on water supply of the whole Wadgaon Bk area if all the land under residential use is developed as per UDCPR?!
Conclusion: A Call for Scrutiny and Sustainable Urban Design and Planning
The UDCPR provision of recreation space on top of buildings or in-between floors is a bad idea. The very genesis of recreation is on open space i.e. open to sky on ground and this has been compromised by UDCPR. Built environment is an important part of cities which contribute to the liveability, sustainability and vibrancy of cities. With UDCPR provisions, liveability will be compromised permanently.
Reduced side margin distances around buildings will have an effect on light and ventilation. The occupants of such a tall building will have to pay the price by paying more electricity bills. The reduced size of staircases, passages and lifts will add discomfort to the residents. The very purpose of DCPR is to give consideration for health and hygiene of occupants and that is compromised by these provisions of UDCPR.
The reduced provision of recreational spaces is forcing people to either sit in houses or utilise footpaths as their “public space”. There is a common complaint in various gated housing societies or areas developed through gunthewari that children do not have a playground for recreation. It is extremely disturbing to see elderly citizens sitting on bus stops or on footpaths and inhaling polluted air caused by motor-vehicular traffic.
The green lungs of the cities, water bodies, urban forests, and green cover on urban commons, all are shrinking. It is well known that public open spaces are an important liveability domain which is linked by evidence to health and wellbeing outcomes of society. Green spaces have many physical and mental health benefits for people, and social and environmental benefits for society.
By Professor Pratap Raval
Former Head of Department, Department of Planning, COEP Technological University, Pune
Footnotes
- The ratio of how much square footage one can build to the area of the land is called FSI. Typically it is 1. Higher the FSI the more (usually high rise) one can construct on a given plot of land.
- In order to allow reasonable distances between buildings or the building and the abutting road - often to ensure that there is good light and air ventilation - buildings must keep a 'side margin' or empty space around it. Reducing these margin requirements make buildings very close to each other and is not considered good practice.
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