Working paper: Urban Spatial Data Infrastructure in the context of Small and Medium Towns in India

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA Author: Dhwani Chawla (PG190289) Guided by Dr Saswat Bandyopadhyay & Mohit Kapoor Faculty of Planning, Ahmedabad, India

DRP 2021

Abstract: Development needs of small and medium towns in India are not given enough attention and priority. More than 40% of the urban population lives in 3500 small and medium towns of India. Hence, it is important to establish a robust spatial data infrastructure with appropriate application tools that facilitate the preparation of master plans, administration of ULBs, improved service delivery and utility management. The primary goal of this study is to critically review urban planning protocols and standards in order to identify gaps in the existing urban spatial data infrastructure of small and medium towns in India and to make recommendations for future implementation.

First, the research documents the existing scenario through a thorough literature review on statutory urban planning protocols and GIS-based master plans under the sub-scheme of AMRUT, to identify problems that have occurred and opportunities that have come forth. To understand the problems’ causes, stakeholder consultation is conducted utilizing key person interviews. In addition, a comparative analysis is done taking five towns as study areas situated in Haryana and Rajasthan. The results showed that gaps in the existing planning system was caused by insufficient technical and human resources with the institutions and inefficient linkages between spatial and nonspatial data. The proposed charter aims to ensure effective planning and implementation by relying on data-driven urban planning protocols rather than intuitive/speculative or traditional planning approaches.

Key words: Spatial Data Infrastructure framework, GIS based Master plan, Statutory planning process, AMRUT, Urban policy formulation, Institutional arrangement, Land-use planning, informal sector, socio-economic, climate change, sustainability

i / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

EXECUTIVE SUMMARY Plan preparation process cannot be the same as higher tier towns or

The paper is structured as described below.

cities as capacity of lower tier towns is relatively lesser and they have diverse requirements of data sets for the planning process. Since the last decade, Government of India and various state governments have focused on improving urban spatial data infrastructure for plan preparation, better management and improved governance. Possess a lot of informalities in terms of settlements and economy. And in various cases, the urban poor.

1. Introduction to the study: The first chapter provides and introduction to the research background, relevance, key questions, aim, objectives, scope and limitations. This chapter also details out the methodology, techniques and tools used and the relevant data sources.

The two research objectives are divided into two sub objectives each, with tasks designed to achieve each of them. This section also talks about the data gaps and empirical challenges that were faced me

The research aims to identify the methods and technological

through the research conducted in a four months’ time period. Critically

predilections for organization of SDI and the standing of initiatives

reviews the urban planning protocols and standards to identify gaps in the

taken at different levels in India? Identifying the core functions of the

existing system being an important tool. Deconstructing spatial data

government and other functions (provision of services, building use,

infrastructure for preparation of plans to understand Spatial data infrastructure

etc.), focus is on land use planning – assessing development plan

through non-spatial and spatial data layers, usage and components. It focuses

process to understand gaps in data knowledge assortment, assimilation and winding up the functions. Mapping institutional challenges

on statutory planning and “GIS based master plans under AMRUT sub scheme”.

concerning sharing and change the information if any, distinguishing

2. Evidences from towns in Haryana and Rajasthan: This

ways that to urge potency within the system.

chapter describes why small and medium towns are significant in the

Findings included the issues and hurdles met during implementation of these different schemes, lack of adequate system of maintaining a knowledge base hampered the “informed decision making” by the local authorities. If the data is recorded, then not analyzed/reported to higher level. Data sharing and coordination among the line departments is incredibly poor. Information maintained in isolation and not typically shared. It is important to establish a robust spatial data infrastructure with appropriate application tools in SMTs that enable the preparation of master plans, administration of ULBs, improved service delivery and utilities management. At present, most of the data points and attributes acquired in spatial planning are limited to physical infrastructure and land-use. Environment, climate change, sustainability, socio-economic activities are ignored. Finding out from on-line sources: what's spatial information, its uses, its edges, and connectedness in designing and performance of a town administration. Key parameters and parts were known to provide a background for the research. Circumstances of

story of planning and development of India. Documenting and comparing the components of spatial data layers in five selected Indian small and medium towns and how they are managed and updated, and its intended use in urban planning and management context. Focusing on Statutory planning and GIS based master plans under sub-scheme of AMRUT to identify strengths, weaknesses, opportunities, treats to suggest improvements. This chapter also pens down the inputs from several stakeholder consultations. Comparing Spatial data layers, by the

documentation

of

spatial

layers,

strengths,

weaknesses,

opportunities and threats based on rigorous stakeholder consultation and literature review as identified in the previous chapter. An in-depth matrixing of input data (land use, social, physical, economic, informal activities, environmental, etc) to be collected under statutory urban planning process for developing plans of Bahadurgarh, Jind, Rewari, Alwar, Bharatpur and their respective GIS based Master plans under AMRUT, was carried out.

spatial data and how the development of SDI has taken place in some

3. Recommendations: This chapter presents recommendations in

countries like India.

existing urban spatial data infrastructure for a strategic planning

Lastly, this research attempts to recommend a charter for urban planning in SMTs of India built on the learnings from the 5 towns, and the most relevant innovative examples to assess how they can be

process, in the form of a charter. This section provides critical insights about existing approaches, shortfalls using relevant references from case studies across the globe.

tailormade or taken inspiration form. This further sets a base for Data

4. Conclusion and Way forward: The last chapter draws

SMART towns that are made of SMART citizens and community who

conclusion from the analysis. Summarizing the findings based on the

indulge in participatory mapping & planning.

hypothesis and gives a way forward for the research.

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 1

INTRODUCTION TO THE STUDY Despite the fact that planning is critical to achieving sustainable urban

Since the last decade, central and state governments of India have

growth, many Indian cities still rely on outdated planning methods.

focused on improving urban spatial data infrastructure for plan

Planning frameworks in maximum cities are yet not sensitive to

preparation, better management and improved governance. Emphasis

changing times.

and funds are allocated to 500 AMRUT towns, 100 Smart Cities and State Capitals/UTs. In comparison to this, the development needs of

On the other hand, we see practices such as reinventing urban planning to understand the variation between “A City that Plans” vs “The Planned City”. Inclusive, Comprehensive, Sustainable planning practices. Evidence based planning, rational decision making.

However, dearth of acceptable system of upholding a data base hindered the informed decision making by the local authorities. If

SMT are not provided equal consideration and significance. More than 40% of urban population lives in 3500 small and medium towns of India. Therefore, it is important to establish a robust spatial data infrastructure with appropriate application tools that facilitate the preparation of master plans, administration of ULBs, improved service delivery and utilities management.

recorded, then not analysed/reported to higher level. Sharing and coordination of data among the line departments is highly deprived.

After speaking to the stakeholders, the major problem lies in the

Information maintained in isolation and not usually shared. Hence,

recognition of inviolate public interest, the town's physical and social

possess a lot of informalities in terms of settlements and economy. And

character, and the town's ability to adapt in accordance with

in various cases, the urban poor.

deliberately set goals the degree to which communication can achieve consensus, part of community, government and private bodies in

The Indian government continues to play a key role in the inventory and mapping of major national resources, as well as the creation of a regional map knowledge base. As an outcome of a "cocktail of laws, policies, conventions, and precedents that decide the availability and

shaping the town, and a practice for “rational model” of decision making and “evidence based” planning process. The use of spatially referenced data to sustain a broad range of decisions at all levels of society would be a major challenge over the next decade.

price of spatial data," they have an impact on national growth. (Mukund Rao, Systems Design of a National Spatial Data Infrastructure). In our

Spatial data could be easily transported and integrated both

country, spatial data development programs are typically sluggish,

thematically and hierarchically, i.e., across environmental, economic,

“underfunded for data maintenance, and other people with technical

and institutional data bases, and from local to national, and eventually

minds for the task are limited” (ISRO 2001), leading to hiring of

global levels, by leveraging efficient, profitable, and widely accessible

external agencies to do the job.

infrastructure. “In a sense, India has a strong foundation of a spatial data infrastructure, focused primarily on analogue and paper maps”

Plan preparation process cannot be the same as higher tier towns or

(ISRO 2001).

cities as capacity of SMT is comparatively lower and the requirements of data sets for the planning process is different. At present, most of the

The research is directed towards building on data smart urban planning

data points and attributes acquired in spatial planning under GIS based

protocols over intuitive/speculative and traditional planning approach

Master plans, AMRUT, are limited to physical infrastructure and land-

in context of SMT, to support policy formulation, and in implementing

use. Environment, climate change, sustainability, socio-economic

concepts of integrated spatial and urban development, Sustainable

activities are ignored. As Pointed out by Moonis Raza, “small and

Urban Infrastructure, Participatory Governance, etc. It is centered on

medium towns occupy an important position in the urban-rural

the research question: What is the significance of SDI in urban planning

continuum” of India.

and management, in the context of small and medium towns?

How is urban planning done in Indian towns? What is the existing spatial data framework? How is spatial data managed and updated in small and medium towns of India? How to overcome the challenges of acquiring and implementing spatial and non-spatial data layers for planning and decision-making process?

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The research was conducted based on the hypothesis that SMT are vital in the tale of the growth in urban India, for which spatial data and physical data points are Aim: To analyze existing urban spatial data infrastructure in the context of small and medium towns of India.

prioritized. Non-spatial data is not taken into consideration in preparation of the master plans. It is an Empirical research primarily based on Qualitative Research Methods. Data collection was conducted using “Unstructured or semi-structured” formats for FGD, KPI, and other techniques. Methodology was divided into two

Objective 2: Compare the spatial and non-spatial data layers under the urban planning framework in the

main phases, each catering to one objective.

The first objective is to critically review the statutory urban planning protocols and standards as well as the “GIS based master plan formulation under AMRUT subscheme”, to identify gaps and opportunities. And the second objective is to compare the spatial and non-spatial data layers under the urban planning framework in the context of the selected small and medium towns in India to suggest recommendations and improvements in existing urban spatial data infrastructure.

Objective 2: Compare the spatial and non-spatial data layers under the urban planning framework in the context of the selected small and medium towns in India to suggest recommendations and improvements in existing urban spatial data infrastructure in the form of a charter.

Sub-objective 1.2: Document the components of urban spatial data infrastructure to identify gaps and opportunities

Understand Spatial data, its utility value and how it is used in planning process. Study the guidelines, best practices in the world and initiatives at national, state and local level for spatial data management

Select Indian small and medium towns and the components of urban spatial data infrastructure to be documented

Review Urban planning protocols and standards as well as the GIS based master plan formulation under AMRUT sub-scheme URDPFI guidelines, `TCPO, GIS based Master plan by AMRUT, Journals available on online, Papers by analysts on urban planning protocols, rational planning, Previous works by scholars on spatial data infrastructure in Indian and global context, good practices from across the globe –public, private, PPP, NGO, etc Reading articles published in journals, published papers, reports of government and other nodal agencies, published works of individuals, scholars, university professors and private agencies

Sub-objective 2.1: Compare the spatial and non-spatial data layers under the urban planning framework in the context of the selected small and medium towns in India

Visual observation, KPI, FGD, Delphi technique, Critical review of primary and secondary data

Sub-objective 1.1Critically review the statutory urban planning protocols and standards as well as the GIS based master plan formulation under AMRUT sub-scheme

Record keeping, Secondary Survey, KPI

Archival Study, Case Studies

Objective 1: Critically review the statutory urban planning protocols and standards as well as the GIS based master plan formulation under AMRUT subscheme, to identify gaps and opportunities.

Document spatial layers used in urban planning, and the mechanism how spatial data is collected, updated, stored, managed/handled, keeping in focus its intended use in urban planning and management context. Identify gaps and opportunities

Analyse existing systems and compare with other State.

Prepare comparative analysis matrix Central government (NIUA, Smart city official, AMRUT), ULB, other reputed organisations, NGO’s, CBO

Sub-objective 2.2: Suggest recommendations and improvements in existing urban spatial data infrastructure in the form of a charter

Record keeping, FGD, KPI

Objective 1: Critically review the statutory urban planning protocols and standards as well as the “GIS based master plan formulation under AMRUT sub-scheme”, to identify gaps and opportunities

Review case studies to suggest recommendations in existing urban spatial data infrastructure in the form of a charter Case studies, good global practices, Journals available on online, Papers by analysts, ULB website, Work by other reputed organisations, Works by NGO’s.

Central government (NIUA, Smart city official, AMRUT), other reputed organisations, CBO

Journals available on online, Papers by analysts, ULB website, Work by other reputed organisations, Works by NGO’s

*All primary data is collected through qualitative methods and secondary data is through qualitative and quantitative (Nonexperimental) methods

Census, GIS based Master plan by AMRUT, Government offices Central government (NIUA, Smart city official, AMRUT), ULB, other reputed organisations, NGO’s, CBO

Secondary Data Primary Data

Source Created by Author

Figure 1: Methodology

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 3

A. URBAN PLANNING IS AN IMPORTANT TOOL The urban planning system is undergoing reorganizations from an

Decisions about spatial position are taken at a high level. Despite the

organically grown setup. ULB preparation, on the other hand, isn't

fact that regional history is an important part of the urban development

always accurate. The design of the Master plan strategy has been

phase, the proposal does not always come from it.

influenced by a number of actions and plans. This includes the

A new, current system for urban strategic planning and design

transition from the Land Acquisition Act of 1894 to AMRUT-based

standards is lacking. Cities that are economically vibrant, inclusive,

GIS-based master plans in 2015. Urban functions took shape as a

environmentally sustainable, and politically active have well-designed

result of advancements in approach (as seen in Figure 1). Planning,

and well-implemented spatial development strategies at their heart.

provision, management, and maintenance are now all handled by

According to ASICS, urban planning is the weakest link in city

different organizations. Multiple levels of authority, overlapping

structures, with Indian cities scoring an average of 2.9 on a scale of

roles, a lack of data and knowledge exchange, delays, and

one to ten, while benchmark cities (London, New York, and

contradictory or no decisions are all issues that need to be addressed.

Johannesburg) score 7.1 on a scale of ten.

On the field, ULB planning is still a work in progress. As a consequence of the modifications, rudimentary problems emerged.

It is necessary to improve the Master Plan by updating its purpose,

There are no significant national or state-level orders, for example.

content, methodology, and ideology, making it people/city centric,

Decisions regarding spatial position are made at a high degree of

incorporating a participatory approach, introducing flexibility, and

abstraction.

planning it in a timely manner. The Master Plan must be a promoter of planned development rather than a controller of growth. After

Plans haven't been updated in quite some time. Quantitative ideas are

assessing the ground realities in terms of vendor position, informal

prioritized over spatial decisions and proposals. There is no focus on

operations, slums, and the need for in-situ regeneration, planning

increasing work capability. At frequent intervals, there is a lack of

should be made more inclusive, prioritizing the needs of the urban

spatial-temporal data. Despite its length, ineffective public

poor.

participation process. Challenges in the Statutory planning process are primarily as there are no significant national or state-level directives.

Source Created by Author

Figure 2: Urban Functions

Though policymakers and opinion leaders are starting to wake up to this reality in our cities, their focus on a ‘quick fix’ approach often ignores the root causes and results in our cities grappling with the same challenges year after year.” Prof Bish Sanyal, Dept. of Urban Studies and Planning, MIT.

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B. DECONSTRUCTING SPATIAL DATA INFRASTRUCTURE FOR PREPARATION OF PLANS The discovery, access, management, distribution, reuse, and

There have been several initiatives in India that comprised of SDI. Such

preservation of digital geospatial information is made easier with

as GIS based master plans under AMRUT, NSDI, NDSAP, NLRMP,

spatial data infrastructure (SDI). Examples of such resources include

NUIS (NUDBI and USIS), ISNA, BSLLD, etc. These encompass the

maps, info, geospatial services, and software. The data is divided into

Proposal maps, Analysis and overlays, Thematic maps, Existing land

two categories: spatial data (points, lines, and areas) and attribute data

use maps, Linking Data, Base map, Cadastral map superimposition and

(descriptive information). Spatial data is unique. It is true that location

Satellite imagery.

is important and nearby events have a higher correlation with one another. As established, “spatial data infrastructure is a set of policies, standards, and procedures that regulate how organizations and technologies communicate to facilitate more efficient geospatial data

Information system approach has evolved from being simply a need under urban and regional plans to formally being a part of NUIS in 2006 and now “GIS based master plans under Sub-scheme of AMRUT”.

Documenting the planning process at the highest hierarchical level and

usage, management, and development.”

assessing the Town planning process framework formed by Central It deals with collection, updating, storage, usage, sharing and

government, captured a thorough understanding of what parameters are

ownership of spatial data. Its usage is in land administration which

required - task, scale of documentation, input data, agency or source of

include ownership, land use, utility management, agriculture, disaster

the data and output, as seen in table 1. It was observed that various

management and risk assessment, various other such crucial aspects of

TCPDs were following different methods and procedures for base map

planning. Its components are as follows:

preparation.

•

Governance, data privacy and security, data sharing, and cost

Broadly comparing the spatial data layers under NUIS, GIS based

recovery are all policies and institutional arrangements.

master plans and the statutory planning process shows that 1:10000

People-centered

scale for Master Plan formulation was felt inadequate. The use of Very

• • •

training,

professional

development,

collaboration, and outreach

High-Resolution Satellite (VHRS) Data is being done for preparing

Digital base map, thematic, statistical, and place names are

large scale urban base maps that are now at 1: 4000 scale or better to

examples of data.

support mapping under National flagship schemes like Smart Cities,

Hardware, software, networks, databases, and technological

AMRUT, HRIDAY, and also other State level urban development

development plans are all part of technology.

projects.

SDI has been a part of Urban planning and Management through

There are 8 spatial layers with 69 classes and 475 sub classes under

URDPFI Guidelines, Delhi Master plan, JnNURM, HRIDAY, SBM,

“Design and guidelines of Formulation of GIS based Master Plan for

etc. This covers the aspect of data collection and storage. However, it

AMRUT towns”, as seen in table 3. However, the guidelines don’t have

overlooks usage of data for decision making, sharing of data between

an enabling framework and can be extensive for ULBs as they have

coordinating agencies, updating, human resource, technical and

lower capacity. Here, it became evident, that the hypothesis being

financial capacity, focus on basic necessities over comprehensive

questioned, encapsulates the reason behind the existence of multiple

planning approach – missing the key facets of sustainability. Until

types of data infrastructure (spatial and non-spatial) which need to be

recently, maps (usually in paper form) were the go-to tool for a wide

critically reviewed, especially Statutory Master Plans, and NUIS

variety of applications and decision-making. Current and reliable

standards which evolved to now become the basis of “GIS based Master

spatial data must be readily accessible to contribute to local, state, and

plans under AMRUT sub-scheme”. For this there was a need to select

national development, as well as decision-making, economic growth,

towns to get evidences and analyze spatial data layers for their plans.

environmental quality and stability, and social change.

This indicated what's missing? Is it a part of any of the other plans? Or is it a part of non-spatial data?

.

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 5

Table 1: Statutory Planning Process Data layers by TCPO

S No.

1

2

3

4

5

6

7

8

9

10

11

12 13 14

15 16 17 18 -Habitat

Task

Scale

Input

Output Map/Drg of settlement Preparation of map and environs showing 1:25000/ Satte remote sensing showing settlement Cartosat/I konos/QB settlements, linkages, 1:50000 agency/outsourcing and environs resources, water bodies etc.

Map/Drg of settlement Prepartion of base showing built up areas, map correlating 1:10000 do do existing network, natural cadastral features, heritage areas, information etc Collection and Socio-economic ULB/Agency/Responsible/Con processing of Questioner/Proforma design survey sultant ward/house of household data and projections Preparation of Detailed existing landuse Detailed existing land use existing land use 1:10000 Cartosat/I konos/QB by types i.e. residential, survey map commercial, industry, etc Delineation of growth Identification of Department/Authority/Organiz prospects by analysis of 1:10000 do direction of growth ation etc/Consultant images over various time periods Identification of broad quantum of Existing density pattern and Department/Authority/Organiz Delineation of areas for 1:10000 land required for norms for proposed density ation etc/Consultant department horizon year Density prescription as per noms/buildable areas 1:10000 Identification of depending on slopes and soil and detailed quantum types/areas for reDepartment/Authority/Organiz Delineation of specific 1:2000/ of land required for development depending on ation etc/Consultant pockets for development total horizon year land ownership, land value, station age, condition and height of structures Analysis of survey Specific requirements Sample surveys/secondary Department/Authority/Organiz results and data/of land for various related studies ation etc/Consultant projections uses Spelling out Department/Authority/Organiz Identification of planning hierarchy of 1:10000 Norms and standards ation etc/Consultant divisions/planning zones development Map/drg showing Department/Authority/Organiz proposed Proposed land use 1:10000 GIS applocations ation etc/Consultant landuse/network for the horizon year Regulating building bulk by activity/premises Development Department/Authority/Organiz consisting of uses Proposed landuse control ation etc/Consultant allowed, not allowed and those allowed with conditions Development control/NBC Building byelaws, if Department/Authority/Organiz Regulating building 2005/model BBL 2004/Best applicable ation etc/Consultant construction on premises practices Phasing of Department/Authority/Organiz Phase wise development 1:10000 Proposed landuse development ation etc/Consultant program proposed Prioritization of 1:10000/ Department/Authority/Organiz projects and Proposed landuse Development priorities 1:2000 ation etc/Consultant costing Requirement of funds for Funding Department/Authority/Organiz Development priorities master plan possibilities ation etc/Consultant implementation Monitoring and Review mechanism in Development priorities Client agency implementation place Review Stakeholders State government Inequities are addressed Zonal development Department/Authority/Organiz Detailed development 1:2000 Existing landuse surveys plans ation etc/Consultant plans for implementation Source URDPFI guidelines, 2014

Agency

6 / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

Table 2: Spatial layers of GIS based Master plan under AMRUT Sub-scheme

Base Layers

Road, Rail, Bridges, Flyovers, Waterbodies

Building Footprints

Hypsography

Utilities

Cadastral layers

Water supply network, Stormwater drainage network, Sewerage network, power supply network, gas distribution network

Digital elevation model (DEM) type: Digital terrain model (DTM), Contour, Ground control points

Boundaries

Urban Land use/Land cover

Hazard prone areas

Administrative boundaries, planning boundaries, municipal boundaries, other boundaries: enumeration block (EB), Urban framework survey (UFS) and mining area

Total Classes: 69 | Total Sub Classes: 475

Source Design and Guidelines for GIS based Master plan under AMRUT Sub-scheme

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 7

EVIDENCES FROM TOWNS IN HARYANA AND RAJASTHAN The research gives a new perspective to understanding urbanization for

Criteria for selection, as detailed in figure 2, involved three key aspects

the definition of small and medium towns. To identify the problems and

for the five towns to be selected. This included being an AMRUT town,

potential of the existing statutory planning process, status of GIS based

between one to five lakh population (Medium town II) and be a part of

master plans under AMRUT and get an understanding on Spatial data

Delhi NCR. The process of shortlisting was carried out to select 3 towns

infrastructure that is currently (or planned to be) functioning in Indian

for detailed study in Haryana and 2 for comparative study in Rajasthan.

towns and cities, semi-structured interviews with stakeholder

The final shortlisting criteria was based on having digitized Final

representatives in TCPO, NIUA, GIZ, TCP Haryana, HUDA,

development plans and ease of data collection in uncertain times of

Municipal Councils (Bahadurgarh, Jind, Rewari), TCP Rajasthan,

COVID 19. The selected towns in Haryana are Bahadurgarh, Jind and

CPR, ISPER and several other academicians were conducted. Haryana

Rewari. And the ones in Rajasthan are Alwar and Bharatpur.

and Rajasthan are taken as the states of interest.

Bahadurgarh

Delhi NCR

Jind

Most rapidly growing industrial centres for trade and commerce. Issues of pollution. Local problems of brackish underground water and weak urban infrastructure

Rewari

Semi-urban town of Jind is much more polluted than metro cities such as Beijing, Dubai and even Mumbai, but the source is unknown.

Haryana State Pollution Control Board (HSPCB)

Alwar

Not to Scale

Long-standing issues like improper drainage, traffic congestion, poor sanitation, discharge of effluents. Not so popular region of Haryana and is in the hope of development.

Need for financial and economic growth.

Bharatpur To solve the problem of coordination between different development agencies, Bharatpur Municipal Corporation has taken initiatives to arrange periodic meeting representatives of various agencies to develop a coordinated system of governance for the city.

City Managers' Association Rajasthan. Water crisis deepens.

Alwar town is growing at a rapid rate. Conflicting demand for water allocation to various sectors like agriculture, industry and drinking and domestic water.

✓ States of interest – Haryana and Rajasthan ✓ Revised definition of small and medium towns – selecting medium town II, i.e., population 1-5 lakhs ✓ AMRUT Towns ✓ Part of Delhi NCR ✓ ULB – Municipal Council or Corporation ✓ FDP is digitized (not manual) ✓ Ease of Data collection

HARYANA

RAJASTHAN

Source Created by Author

Figure 3: Selection and Shortlisting process

8 / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

A. URBAN PLANNING PROCESS AND SDI IN HARYANA AND RAJASTHAN As noted from the discussion with TCP Haryana officials, internally

The vendor is given datasets that were there with TCP Haryana and

integrated GIS data sharing is done, which includes development plans,

Directorate of Local bodies, which needs to be detailed out further

layout plans, building information. It is internally programmed, self-

through surveys and drone mapping in some towns. This is an ongoing

developed and not in the public domain or outside the department. In

process, with limited details available. The question that arises here

Haryana most of the DPs have 10 -15 pages of gazette notification, but

was, is outsourcing to a common vendor in case of 20 selected towns

no comprehensive plans.

in Haryana really working?

The data sources, i.e., where the input data for master plan layers is

Rajasthan’s town planning is under the Legislative framework of The

coming from is with the DTP, not with any other person or wing, including the IT department. This is a major gap in coordination and information dissemination. Quality of Khasra maps from Revenue department has improved overtime as many errors in marking manually are now omitted. Automation project is on priority before GIS plans.

Land-use planning (suitability analysis) is not done on the basis of GIS analysis. Maps are translated to digital layers after physical plan is prepared on paper. GIS Shapefiles data is digitized separately by GIS

Rajasthan Urban Improvement Act, 1959. The state has RajDharaa, which is under development as Spatial data infrastructure. It is an attempt to collate data for public domain. Rajasthan’s Planning Department prepares schematic budget, monitors expenditure, budget announcement & centrally sponsored schemes for achieving targeted growth in State. For Alwar and Bharatpur, a master plan is published in the prescribed manner as soon as it is approved by the State Government.

cell at the IT department at TCP Haryana. This department digitizes maps that are finalized and are currently at data input stage.

Nevertheless, there are plans for future to use the accumulated data for analysis and decision making.

Talking to officials at UIT and TCP Rajasthan it was gauged that, it is strongly believed that Rajasthan ULBs have achieved higher implementation level than Haryana in terms of “GIS based master plan

The development plans are prepared by TCP Haryana for the three

preparation under AMRUT”, as mentioned by authorities in Haryana.

Municipal Councils of Bahadurgarh, Jind and Rewari. Similar to the

When In reality, situation in Rajasthan indicates otherwise. On further

other towns in Haryana, for Bahadurgarh, Jind and Rewari, a self-

investigation with concerned people, it was clear that the planning

developed GIS tool is internally programmed at state level and has been

process has just started with data collection through surveys and there

used even before AMRUT GIS based Master plan sub-scheme. This is

is no GIS database until now that could be used for reference by ULBs

not used for formulation, but after the plan is prepared, GIS datasets are

from previous plans, pointed the Chief Town Planner, Rajasthan.

created and finalized, it is solely being used as a digitizing tool and not

Leading to Major Faults and flaws in master planning process in the

involved in decision-making. For all the 3 towns, data sets are not in

past. Alwar and Bharatpur are given more focus in Subregional and

public domain.

upcoming zonal plans in comparison to Master plans. AutoCAD is being used to digitize and not GIS, no analysis done. As per documents

Information attained about the planning process in the perspective of

SAAP used for evaluation and monitoring purposes, however evidence

the Municipal councils indicated that their vision is not prioritized. And

is to no avail for town level data.

as there is a lack of capacity with them to carry out town planning, the top-down approach is preferred, where the State and District authorities plan and local bodies manage. However, for GIS master plans under AMRUT, ULBs are nodal departments, this includes infrastructural layouts as well. GIS based master plan formulation has been outsourced to a common vendor.

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 9

B. COMPARATIVE ANALYSIS All the towns have a distinct characteristic in terms of their socio-

Hence, there is a pressing need for an efficient enabling framework that

economic profile and the predominant issues are somewhere linked to

allocates roles and responsibilities for plan preparation using

this aspect not being catered to. DP preparation is under 2 distinct

systemized spatial data infrastructure components (SDI). There are

bodies for the 5 towns. In Haryana, it is done by TCP Haryana and in

extensive parameters, standards detailed out in manuals and guidelines,

Rajasthan it is under Town planning department, Urban development

like “URDPFI guidelines; Formulation of GIS based Master Plan for

and Housing, Government of Rajasthan and Urban Improvement Trust,

AMRUT Cities – Design & Standards 2016, NUIS Design and

Rajasthan. Housing and shelter are also provided at State level, that is

Standards, TCPO, Govt. of India, MOUD 2006”. Still, their usage and

HUDA and Haryana Housing board for Bahadurgarh, Rewari and Jind.

method of collection is unclear or not mentioned in most cases, as seen

For Alwar and Bharatpur, Rajasthan Housing board of their respective

in table 11. Multiple agencies are involved, each having different

circles. Disaster management is handled at District level for all the

statutes for different classes of towns. Data for none of the element is

towns. All the 5 ULBS mostly cater to 2 aspects, that is provision of

Used/ analysed, or shared (publicly available/open source).

basic services and transport and mobility with regards to construction and maintenance of municipal roads. From which their first priority is basic services to households, except in the case of Alwar, where it is road network. This further emphasizes in the issue highlighted as faced by the town and that the vision of the ULB to target gaps is not given importance. Similarly, in the case of Haryana, the Vision of the ULBs is not prioritized or is subordinated to the schemes and missions at central government such as SBM and AMRUT presently. Talking to various stakeholders led to the understanding that the ULBs are overly burdened in terms of being assigned tasks for plan preparation under

Comparing the details of layers under their respective state statues, layers of development and master plans indicated several gaps in updating and usage of the data that’s collected. For this a detailed understanding of Legislation for town planning, State SDI, governance framework and distribution of roles and responsibilities, status of the sub-scheme, was collated together with institutions involved in Haryana and Rajasthan as detailed out previously, which covered the statutory process mapping of spatial data flows, data formats, planning process, etc.

GIS based master plans (AMRUT).

Table 3: Overview of Comparative parameters

hajjar

ind

Rewari

Alwar

Municipal Council

Municipal Council

Municipal Council

Municipal Council

Urban Improvement Trusts, Town Planning Department, Urban Development and Housing Government of Rajasthan (Urban Improvement Trust Act)

TCP Haryana (Town planning Act)

20 1 (earlier 2021 and 2031) nglish

2031 (earlier 2021) nglish

haratpur Municipal Corporation

2031 (earlier 2021) nglish

2011 2031

2001 2023

Hindi

Hindi

In each UL , ma imum of 2 3 people in Town planning wing under the initiative of uilding inspector. o IT cell, o planning done. Operation and maintenance is role of these UL s

Unknown

Digitized

Digitized

Digitized

ot on GIS

ot on GIS

All

All

All

o Attributes

o Attributes

es (DTP)

es (DTP)

es (DTP)

o

o

o

o

o

o

o

o formal platform

o formal platform

o formal platform

RajDharaa (In progress)

RajDharaa (In progress)

o

o

o

o

o

o documentation

o documentation

o documentation

o documentation

o documentation

Outsourced to ashi consultancy services Pvt.Ltd, aipur. The data is not yet verified by the government. Data collection still in progress.

Unknown

GoR (UIT and TCPD) and DL still chalking out roadmap and details of data to be collected with only parts of a base map in place

Unknown

Section in State Annual Action plan TCPO Dashboard for State level progress Sub scheme on formulation of GIS based Master Plan for AMRUT cities

Source From the documentation and information gathered by talking to several officials/concerned persons

10 / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

From the documentation as seen in table 9, and information gathered by talking to several officials/concerned persons, key findings led to instigation of thoughts such as till we don’t map, how do we plan, without knowing the exact location? It is unknown that, what is the source for spatial data generation? When is the data collected? How frequently is it updated? From the manually prepared and notified plan, digitization on satellite imagery is done on GIS/AutoCAD (by the IT department).

Only in Haryana, once its digitized, it is sent to field office for verification by officials. The existing scenario is not documented for plan preparation, change in landuse needs to be there to understand the patterns of development, rather than simply trying to control growth.

Informal sector, slums, environment, climate change, socio-economic activities are not documented spatially, for purpose of planning, some non-spatial data needs to be documented and analysed spatially/ physically or as data points.

Source Combined from DPs & MPs of Selected towns | TCP Haryana | UIT Rajasthan

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 11

It was mentioned under the office memorandum published in 2015 that within 48 months of the launch of the mission the GIS based master plans need to be prepared. Nevertheless, talking to stakeholders and documenting the collection process as of 2021, as seen in table 10, showed shocking results. As evident from the matrix, most of the data is not yet collected, almost all the data is not updated or used. Majority of the Layers don’t have sufficient data available with the concerned authorities to state if it is being collected as prescribed by the design and standards under the sub-scheme.

Less than one third of the identified layers are being mapped spatially for the preparation of Master plans. All the other layers ae either still not collected or the ULBs, TCP departments, UIT and other concerned authorities and personnel do not have sufficient data to support if it has been documented.

The base map for the 5 selected towns is almost in place with roads, rail connectivity, water bodies, administrative and planning boundaries, land use land cover and land ownership recorded by State revenue departments. Utility layers are not collected on given standards. But follow the prevailing statutory layer datasets that only mark the land use or data points where treatment plants, installations, disposal works are marked, but network is not mapped. Alwar distinctly marks contours, which is not done by any other selected towns. Yet, even Alwar master plan overlooks contour analysis during preparation process.

Source Combined from DPs & MPs of Selected towns | TCP Haryana | TCP & UD Rajasthan, UIT Rajasthan

Sufficient Data NOT available: N.S.D

12 / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

RECOMMENDATIONS Five-point takeaway after identifying institutional gaps, analysing the

Which is predominantly a top-down approach. The Charter's structure

present scenario of governance, staffing, data gaps, policies guidelines,

is made up of a set of briefs, straightforward concepts relating to

etc are as follows:

different aspects of urban planning, each followed by lengthy

1) Focus on evolving the existing one size fit all approach to become

explanatory paragraphs. The following values are identified in the

more strategic through a tactical enabling framework 2) Prepare Details of sources of data as briefly mentioned in the Annexure 4 of Design and guidelines of the sub-scheme and how to convert essential non-spatial data to physical data points to

Charter as necessary qualities for the successful operation of future urban plans that are respected and important to those who use them.

The charter’s principles are:

I.

support evidence-based planning

of the time to make the cities work. Towns

3) Build on the usage of input data

need to be living labs.

4) Suggest a framework for the update and reliability/verification of the data

II.

5) Assign/suggest indicators that monitor and evaluate the planning

Importance

of

socio-economic,

informal sector, urban poor, climate sensitive

(existing scenario, alignment with vision, success of plan)

plans. Selecting relevant layers for planning.

III.

Data standards and institutions: What is the framework/format of data? How will this data

The USDI Charter for SMT in India is built upon the work of MoHUA,

be captured by the institutions?

TCPO and other institutions on urban planning missions, guidelines and policies, formulated on inferences from the research done on the

Integrating Non-spatial data as physical data points:

process (institutions, policy, technical, financial) and progress

USDI Charter for SMT in India

Understanding the context: Focus on delivery

IV.

Participatory mapping: Use of methods like

two selected States of India.

barefoot

The purpose of the Charter is to bring together in a single composite

capturing, organization of open GIS rather

text a series of principles on good urban planning and management

than the standard protocol GIS

through: 1) Providing a practical tool and urban planning and management

V.

mapping,

participatory

data

Moving towards strategic spatial plans: Strategic (tactical) rather than comprehensive

guideline for participatory planning; 2) Providing the principal elements for the possible future of

(all-inclusive/all-embracing) urban planning is

strategic planning;

required.

3) Promoting sustainability

VI.

Achieve pillars of sustainability: To achieve

The philosophy of the Charter is made up of a variety of distinct,

economic,

simple, and underlying threads. It focuses on the basic planning roles

sustainability, format of data needs to be

of different levels of government, the private sector, and the

assessed through Temporal – time series,

community. Alliance and camaraderie are a periodic conceptual refrain

social

and

environmental

Spatial – relation with extent of area and

through the Charter.

under an enabling framework. This will aid in A good urban plan doesn’t happen by chance or blindly following the

selecting components of SDI.

standardized outlays. Its development and management necessitate precision, care, expertise, and attention. It is always possible to change

VII.

Data SMART cities and towns: The future lies

it. The following seven qualities have a part to play in making towns

in

Data

Smart

Cities

which

empower

and cities that are valued and significant for those who use them

communities through data, as we highlight the

(government, private sector, community).

dialogue on the ever-changing dynamic field

The Charter is based on the belief that the planning mechanism for

of urbanization, which currently does not have

Indian towns is the primary driver of urban spatial data infrastructure.

a lot of direct learning in the Indian context.

URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA / 13

CONCLUSION AND WAY FORWARD Almost 100% digitization is done in some cases, with all shapefiles present. But, less than 1% verification, no georeferencing, and data is not updated. Major usage of data needs to be a part of decision making.

Sharing of data between coordinating agencies requires frequent updating. However, there is severe lack of Human resource, Technical and Financial capacity. The focus on basic necessities over comprehensive planning approach – overlooks sustainability.

Non-spatial data, on the other hand, refers to other attributes associated with features, such as name, length, area, volume, population, soil type, and so on. It deals with the data that cannot be located geospatially.

However, the attributes attached to the spatial data are what aid in adding value to simply the physical data points. Few of the case examples that have taken a step to collect and attached importance to the non-spatial data include “Sub scheme on GIS based Master plans” under AMRUT, Climate SMART cities mission by NIUA, etc. However, each of these have their own strong points and limitations in terms of technical, financial, institutional and policy based enabling frameworks.

Furthermore, they are predominantly built with the capacity and needs of cities in mind, rather than lowerhierarchy towns (small and medium). To develop and walk the journey of achieving sustainable development with nations across the globe, we see formation of myriad policies, programmes, missions, initiatives and efforts by the government, private sector and the community in this direction, with data being the key aspect. In a diverse country like India, with daily changing needs and thirst for growth, the data requirements are not only confined by missions or statutes such as AMRUT, PMAY, HRIDAY, Smart Cities Mission (SCM), Swachh Bharat Mission (SBM), etc.

Soaking in the current scenario across the globe, planners need to be sensitized towards disaster resilience and climate change, settlements to be planned based on topography, availability of resources, feasibility parameters in green field and brownfield areas, etc. Can Existing plans in Haryana and Rajasthan of the selected towns, distinctively and confidently be called Master or Development plans?

Restating the problem question, “what is the significance of SDI in urban planning and management, in the context of Small and medium towns?” Process carried out was reviewing the statutory urban planning protocols and standards as well as the “GIS based master plan formulation under AMRUT sub-scheme”, selecting towns to get evidences by analysing spatial data layers for their plans. Finally, suggesting recommendations and improvements in existing urban spatial data infrastructure in the form of a charter. The research was conducted based on the hypothesis that “small and medium towns are important in the story of India’s urban growth, for which spatial data and physical data points are prioritized. Non-spatial data is not taken into consideration in preparation of the master plans”. The results of the research support the hypothesis. Future Scope of Research is recommending additions to the existing Spatial data infrastructure components that support enabling/ implementation framework for the planning process.

14 / URBAN SPATIAL DATA INFRASTRUCTURE IN THE CONTEXT OF SMALL AND MEDIUM TOWNS IN INDIA

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