I T P I

ITPI JOURNAL
1 : 2 (2004) 29-38 JOURNAL
www.itpindia.org

REGENERATION AND RENEWAL OF OLD DELHI (SHAHJAHANABAD).

A.K. Jain
Commissioner (Planning), Delhi Development Authority

ABSTRACT
Inspite of last 50 years of planning Walled City of Delhi (Shahjahanabad) is loosing its charm and charisma, getting degenerated and
its rich heritage is dying. It is increasingly becomming congested with trade and commerce. Author therefore argues to evolve a
strategry that will trigger off the re-development process and will give ‘new lease of life’ with improved infrastructure, transportation
and economic viabilaty. The aurthor is also hopeful that Delhi metro will release some congestion from already chocked roads and
reduce the parking demand.

1.0 INTRODUCTION The guidelines also state that an opportunity for

According to the guidelines for Master Plan for Delhi
2021, issued recently by the Ministry of Urban
Development and Poverty Alleviation, a major theme
of the new Master Plan should be redevelopment of
old and degraded areas (while taking care that
buildings of heritage value are protected and
conserved). The existing legal and procedural barriers
to redevelopment, whether contained in the slum
related legislation or in the municipal laws, need to
be reviewed and incentives (such as higher FAR in
the old city and the “special area”) can be considered.
redevelopment in Delhi is offered on the two sides of
the metro rail routes, about 70 km of which will
become available in the first phase to be completed
in 2005. That will be the best use of the synergy
between transportation and urban development. A
practical approach of providing the requisite
infrastructure on the sides of the tracks, say to a
depth of about half a kilometer and of permitting a
suitable enhanced FAR in construction could be
devised and included in the Master Plan.

Shahajahanabad - 1873
(Source : Survey of India)
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
Shahdara ISBT-Tis Hazari Metro corridor (8.3 km) is
already operational, whereas Tis Hazari-Trinagar (4.5
km), Barakhamba Road-Kirti Nagar (9.2 km) and
University-Sadar Bazar-Cannaught Place-Central
Secretariat corridors are at an advanced stage of
development. These will provide improved
accessibility to the inner city. Of this about 17.7 km
of metro corridor falls within or toches the Special
Area (Old City) and about 1200 ha or about 50 per
cent of the Old City will be within 8 to10 minutes
30
Shahajahan’s Delhi
in early 19th Century
walking distance from the metro stations. About
1200 ha of area along the metro corridors will be
within 500 mt influence zone, which is about 40 per
cent of the old City area. This is going to alter
radically the movement pattern and land use structure
of the old City.
2.0 PRESENT SCENARIO
In spite of last 50 years of planning, the Walled City
of Delhi (Shahjahanabad), which is often termed as
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
the soul of Delhi, is loosing its charm and charisma.
It is getting degenerated and its rich heritage is dying.
The Walled City, which was originally planned for a
population of about 60,000, recorded the highest
population of 4.2 lakh in 1961, which went down to
3.50 lakh in 1991 and 2.35 lakh in 2001. The
population has been declining mainly due to inroads
of commercial activities, and deteriorating living
conditions. The Walled City has continued to become
increasingly congested with trade and commerce,
which are 46256 or about 7 percent of total present
establishments in Delhi. The Walled City
accommodates 60% of wholesale trade, 25% of retail
trade and 28% informal trade and services as
compared to about 2% of city’s population. Out of a
total area of 569 ha of the Walled City, 180 ha (31.8%)
is under residential land use and 88 ha (17%) is
commercial, circulation i.e. roads and rails cover
(22.60%), public buildings including historical
monuments (9%) and miscellaneous. (1.6%). The
overcrowding is mainly (i) because a major part of
the circulation is accounted for by railway
establishments, (ii) the density of commercial
establishment have increased manifolds over the
years, and, (iii) number of workers per acre in
commercial, industrial or trade establishments have
increased manifolds. The Old City is a concentration
of wholesale markets in Delhi dealing with almost
every commodity. The Walled City is rich in urban
heritage, historic buildings and monuments. As per
the Archaeological Survey of India in 1914, there were
1321 historical monuments in Delhi of which 1208
still exist. Out of these, 411 are in the Old City of
which 41 monuments fall under the category of
protected monuments. There are about 3,500
evacuee properties / Katras which are managed by
the Slum Department of the MCD under Section III of
Slum Area (Improvement and Clearance) Act of 1956.
The evacuee properties were transferred by the
Ministry of Rehabilitation for utilisation under the Slum
Clearance Programme.
3.0 DELHI MASTER PLAN 2001 PROPOSALS
MPD-2001 proposes urban renewal of 2600 ha of old
built up area, known as ‘Special Area’ which has
been divided into 4 Urban Renewal Areas namely (i)
Walled City (ii) Karol Bagh (iii) Other Urban Renewal
Areas, and, (iv) Specific use zone areas. Walled
City of Delhi with concentration of historical buildings
has been designated as “controlled conservation
area”. MPD-2001 stipulates that the Authority shall
31
formulate Special Development Plans for
conservation and improvement of Walled City and
no alteration or demolition of any building without
the consent of Authority be allowed. The following
strategies are proposed for overall conservation of
the Walled City -
(i) Shifting and de-limitation of non-residential
activity with priority for shifting of noxious and
hazardous trades / industries.
(ii) Upgradation of physical and social infrastructure.
(iii) Traffic and transportation, management and
regulations
(iv) Conservation and restoration of historical
buildings.
(v) Revitalisation of residential areas.
(vi) Renewal / redevelopment of Walled City
Extension.
MPD-2001 terms Shahjahanabad as a significant area
of built environment. It suggests that the area around
major monuments should have controls in relation to
building height, materials and spread of monuments.
MPD-2001 also stipulate listing of buildings for
conservation. INTACH (with the help of DDA) has
recently completed the listing of monuments in Delhi;
which have been published in 2 volumes. The areas
with concentration of historical buildings such as
Walled City of Delhi, have been designated as
Controlled Conservation Area, for which Special Plans
shall be prepared, in absence of which no alteration
or demolition of any building is permitted. MPD-
2001 also suggests conservation of City wall and
gates, Chandni Chowk and monuments. It also
proposes eliminating vehicular traffic from Chandni
Chowk and other streets. MPD-2001 prescribes
Special Area regulations and guidelines for
preparation of Urban Renewal Schemes.
3.1 Zonal Development Plan for Zone ‘A’
(Walled City)
prepared by DDA and approved by the Government
of India (1999), lists protected monuments as notified
by Archaeological Survey of India (A.S.I.) with the
stipulation of prohibited and restricted area around
such monuments. Detailed urban renewal schemes
were to be prepared by the land owning agencies /
local bodies. No headway could be made in
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
preparation of urban renewal schemes. This is largely
due to lack of a clear institutional and legal framework,
lack of public participation, as well as zoning
disincentives inherent in the Master Plan and Zonal
Plans. It is necessary to focus on these issues in
order to trigger a self-supporting process of urban
renewal and conservation of the built heritage in Delhi.
According to Delhi Master Plan, the FAR allowed in
the Walled City / Special Area for reconstruction is
as per plotted regulations, which is generally much
less than existing. This is a major disincentive for
urban renewal, and as a result massive unauthorised
reconstruction and conversions of land use are taking
place. In this regard, it is necessary not only to
allow minimum existing FAR and ground coverage,
but also to give an incentive FAR and adopt the
concept of Transferable Development Rights (TDR)
32
3.2 Delhi Urban Heritage Foundation
Vide Gazette Notification dated 28.9.99, DDA notified
Delhi Urban Heritage Foundation Regulations,1999.
The Chairman of the Foundation is Lt. Governor of
Delhi and eminent historians, archaeologists and
NGOs’ the representatives of DUAC, ITDC, DTTDC,
NGOs, Central Government, Government of Delhi,
etc, are the members. The tasks before the
Foundation include the following -
• To frame rules, regulations and guidelines for
conservation of heritage and urban renewal .
• To identify and list urban / built heritage areas /
buildings / precincts.
• To create partnerships and commitments among
stake holders and actors who have an interest
in the conservation area(s)
Walled City - Shahajahanabad
Conservation and Transport
Network
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
• To mobilise government / private investments.
• To ensure financial and economic viability of
heritage projects.
• To define mechanisms for support schemes to
stimulate replication.
• To frame schemes with special development
controls.
• To organise public participation for heritage
proposals.
• Monitoring and implementation of the projects.
4.0 PLANNING FRAMEWORK FOR
CONSERVATION AND REGENERATION
The main priority is to decongest the old city and to
shift traffic generating activities from the old City. To
shift wholesale trade, noxious industries and
hazardous business from the old City, it is proposed
to develop counter centres in the form of :
• Integrated Freight Complexes at the peripheral
location
• New industrial area,
• Development of Truck Terminals, vehicle repair
workshop, old Car markets, Motor parts Markets
at the periphery of Urban Delhi.
• Railway Freight Terminals.
• Noxious industries and hazardous trades are to
be shifted from the Special Area in a time frame
by a set of incentives (providing alternative plots,
tradable FAR, tax holiday, etc.) and disincentives
(non-renewal of trade / industry licences, etc)
within a time frame of 3 to 5 years maximum.
5.0 PROPOSED STRATEGY
For the Walled City and other Special Areas, it is
necessary to evolve a strategy that will trigger off the
redevelopment process and will give “new lease of
life” to these areas with improved infrastructure,
transportation and economic viability. These may
include the following;
• Application of Transferable Development Right
(TDR) so that the premises owners in the Walled
City and Special Area get enhanced component
of space in designated new areas.
33
• Private developers and co-operatives may be
encouraged to undertake conservation of heritage
and redevelopment guided by planning and
façade controls, but allowing internal flexibility
of space and use.
• Certain areas need to be fully pedestrianised
• FAR and Tax incentives for those who have to
maintain the architectural controls.
• When land is to be surrendered for widening of
roads or any other public facility, the equivalent
FAR should be permissible to the owner /
developer either to use on same plot or added to
the TDR component.
• The concept of Accommodation Reservation may
be introduced for Special Area, whereby for
provision of essential public facilities to be
handed over to the local body / government, the
owner of property is given full permissible FAR
on the component of public facility. Evacuee
properties can also be used for this purpose.
• Area based renewal approach specifying
“Protected Areas”, conservation / heritage zones
• Specifying pedestrian and vehicular streets, and
undertaking the preparation of road beautification
/ development plans.
• The overall fire fighting plan to dictate minimum
road widths for vehicular movement.
• All heavy commercial vehicles to be prohibited.
• Underground parking lots to be developed at the
peripheral locations.
• Animals and animaldriven vehicles to be
prohibited.
• On most of the road and streets in the Walled
City, part of the right of ways is occupied by
encroachments by commercial establishments,
which is about 25% to 30% of their right of way.
Removal of encroachments would have double
benefit (I) recovery of the right of way and (ii)
decongesting the city of commercial activity and
thus improving the environment.
• Augmentation plan for decentralized services
with public-private partnership, including solid
waste management, telecommunication and I.T.
• A new set of Development controls for Mixed
Use, enhanced FAR and TDR applicability.
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
• Noxious industries (13 types) and hazardous
trades (6 types) to be shifted within a period of
five years and the areas thus vacated to be
replaced by compatible uses.
• Municipal water supply and sewerage mandatory
for all households.
• The Headquarters of the Municipal Corporation of
Delhi which attracts large number of visitors should
be shifted to the Civic Centre at Jawahar Lal Nehru
Marg and the present building should be used as
community hall, Museum, Library etc.
6.0 CHANDNI CHOWK-RECREATING THE LOST
GLORY
The Red Fort, Jama masjid and Chandni Chowk have
River Yamuna between Red Fort and Salim Garh Fort was used for navigation which
was subsequently filled up and converted into a road
During recent years, there has been a facelift of the
Chandni Chowk, cleaning and painting of the buildings
and control over signboards and hoardings. It has
been complemented by ‘Chaudvin Ka Chand’ festival
celebrations. Without going for large scale demolition
and disturbing the present activities, it is still possible
to recreate the glory of Chandni Chowk. To be
successful, the implementation of any such
proposals should not envisage large scale
redevelopment or demolition. Initiative can be taken
by the public bodies so that with minimum
34
been jewels in the crown of Shahjahanabad. Chandni
Chowk is the centrepiece and dominant axis of the
Walled City. The original Chandni Chowk had
octagonal chowks with a water channel running
through the centre. Its wide boulevard with
prestigious buildings and bazar created a vista
between the magnificent Red Fort and Fatehpuri
Mosque. With the passage of time there has been
an alround degradation and deterioration of this
glorious boulevard, which can be attributed to several
reasons, like over-crowding, invasion by vendors,
markets, wholesale trade, rickshaws and traffic,
unauthorised constructions, conversion of heritage
buildings, over-riding commercial interests and private
motives, coupled with lack of controls.
investments and time, optimum transformation in the
ambience of the Chandni Chowk can be achieved:
i) Boulevard Development: Capturing full road
right-of-way, re-paving of road by granite stones,
transplanting grown up trees, development of
tourist / information booths, music stands,
kiosks, telephone booths, public toilets, etc.,
controlling signboards, hoardings and putting up
new signages, shifting of overhead cables and
wires in the underground space.
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
ii) Improving street lighting, light masts and lighting
of building facades.
iii) Running of free coaches / trolley buses between
Red Fort and Fatehpuri Mosque.
iv) The informal unorganised shops and vendors to
be restricted in the lanes perpendicular to
Chandni Chowk. A vendor market can also be
developed at the foot of Lala Lajpat Rai Market
by split level development at lower level and
landscaping of the roof area fronting Lala Lajpat
Rai market.
v) The individual building owners may be
encouraged to refurbish their buildings without
changing the traditional character, for which
arrangements could be made with the banks for
easy loans.
vi) The modernisation of traditional activities may
be encouraged. For example, Paranthe Wali
Gali and Maliwara can be developed as a modern
Influence Area in Walled City / Special Area of MRTS ROUTE :
• CENTRAL SECRETARIAT — VISHWA VIDYALAYA
• SHAHDARA — BARWALA
• CONNAUGHT PLACE — DWARKA
AREA = 12 Sq. Km (approx.) (@ O.5 Km depth along)
TRACK Length = 17.7 km (approx.)
35
food plaza with traditional music and dance
programmes in the evening.
vii) Chandni Chowk may be declared as no hoarding,
no horn and no beggar zone, to create a tourist
/ people friendly environment.
Chandni Chowk can become a tourist paradise with
complete pedestriansation and with fountains, canal
and trees. A free electric bus / trolly service should
be provided to run throughout the day. This will boost
the business and meet with the increasing growth of
visitors in the area. The rikshaws will have to be
prohibited from plying in Chandni Chowk,. These may
be restricted on the roads surrounding Chandni
Chowk. New parking areas can be developed at
various points adjacent to the entry of Chandni
Chowk. However, the pricing of parking should
discourage extensive use of private vehicles. In the
second phase, a dedicated metro service may
supplement electric trolley / buses.
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
7.0 METRO CORRIDOR REDEVELOPMENT
In about a year, about 50 per cent of the Inner City
will be within 8 to 10 minutes of walking distance
from Metro Stations. Hopefully, this will release
some congestion from already choked roads and
reduce the parking demand. This will also provide
opportunity (i) to pedestrainse some of the roads in
the Walled City and other area, (ii) to redevelop certain
areas along metro corridors, (iii) to upgrade
infrastructure services, and, (iv) to improve interface
between land use and transportation. Improved
accessibility will also facilitate and encourage
decentralisation of wholesale trade from old Delhi.
In place of centralized CBD, a new linear pattern of
economic corridors can emerge by planned
intervention. For this, a set of well worked out
incentives and disincentives need to be built-in within
the planning framework. Within the intervention zone
of 500 mt on both sides of metro corridor, actual
delineation of economic corridor along metro route
will be area specific (which could be 60 to 100 mt
wide) keeping in view (i) Land use intensity, land and
property ownership, (ii) existing road network, traffic
volume and capacity, (iii) potential of infrastructure
services, (iv) physical and structural conditions (v)
existence of historical / protected monuments,
heritage zone, parks / open space, (vi) potential for
redevelopment and reconstruction by public / private
partnership and, (viii) Court orders, if any.
The boundaries of economic corridor needs to be
identified on the basis of physical features, such as
major roads and physical land marks.
The plan for redevelopment of Economic Corridor is
proposed to be based on the following criteria and
guidelines :
a) Minimum area for preparation of an integrated
(Intervention Zone / Economic Corridor) Scheme-
10 ha. A common agency authorised by the
owners can initiate the Integrated Scheme.
b) Minimum area for property redevelopment is
3000 sq mt. Different property owners can
prepare a joint proposal for approval of the
Authority.
c) Land use: Mixed use, general business and
commerce, offices, residential / group housing,
Govt., Public, Semi-public facilities, utilities, etc.
No manufacturing wholesale and warehousing
activities are to be allowed.
36
d) Minimum area to be reserved for parks /
playgrounds:
• At comprehensive / integrated scheme level
- 15%
• At property redevelopment level
- 25%
e) FAR: As per Master Plan with 50% additional
FAR allowed against payment of additional FAR
charges. The FAR shall be as per the stipulated
land use, although mixed use may be permitted
at premise level.
f) Amalgamation and reconstitution of plots be
permitted, sub-division of plots may not be
allowed
g) To compensate for loss of FAR in case of
acquisition of land / property for public purpose
widening of roads or due to protected
monuments / heritage zoning, TDR may be
allowed.
h) Height control and parking will be permitted as
per overall scheme for respective land use. In
Special Area only front setback will be
mandatory. Other setbacks shall be required
only if required by CFO. Conversion charges,
development charges, betterment levy and other
charges to be paid wherever applicable and as
per prevailing rules / orders.
The comprehensive scheme can be initiated by the
land owners, local associations / co-operatives or
authorised developer, which will be submitted for
planning approval of the DDA / local body. This way
the process of area by area renewal and
redevelopment would start and will trigger a process
of decongestion and conservation, releasing heavily
built up area for open space / greenery, upgradation
of social-physical infrastructure and shifting out of
hazardous, inflammable and noxious activities from
the old City. The incentive of additional FAR,
alongwith other measures like liberalisation of land
use time bound approvals, etc; would motivate the
owners and residents to adopt the route of planned
development.
8.0 LEGAL AND PROCEDURAL REFORMS
The Special Area is regulated by several Acts, main
of which are the following.
• Delhi Municipal Corporation Act,1957
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
• Slum Area (Improvement & Clearance) Act,
1956.
• Delhi Development Act, 1957, including Delhi
Master Plan and Zonal Plans.
• Delhi Urban Art Commission Act, 1973.
• Building Bye Laws,1983 .
• Delhi Fire Prevention & Safety Act,1986.
• Wakf Amendment Act,1984
• Ancient Monuments (Preservation) Act, 1904
• Delhi Rent Control Act, 1958
The present complex framework often acts as a
barrier in the conservation of heritage, urban renewal,
land assembly, legitimate property tenure, titles and
transfers, infrastructure upgradation, financial
mobilisation, development rights, etc. On the other
hand indiscriminate application of the Acts has proved
counter-productive in economic and physical
regeneration of the Special Area, sometimes leading
to its condemenation for example the whole of Walled
City having been notified as Slum under the Slum
Area Act, 1956. Neither the legal framework, nor
the present organisational structure have been able
to control unauthorised reconstruction of historical
havelis / buildings or in taking up any meaningful
redevelopment of dilapidated, degraded and
dangerous areas. The dream of shifting of wholesale
trade, noxious industries and hazardous trades have
by and large remained on the papers. The large
scale encroachments on public lands, particularly
road right of ways continue unabated. There are
unending and plethora of legal disputes regarding
property ownership, tenancy, misuse, licencing and
other issues. In order to address effectively to the
emerging issues and the need of conservation and
regeneration of the Special Area, it is necessary to
review the existing legal framework, organisations
and procedures and evolve a new framework or make
amendments. At this stage, it may not be necessary
to define the new framework, but its broad contours
could be as follows:
(i) Facilitating entry of new players in conservation
and redevelopment, such as, local community,
RWA, Co-operative Societies, Financial
Institutions, DMRC and Private Sector.
37
(ii) Attracting private sector participation and
investments by (a) bankable project approach,
(b) removing un-necessary controls, (c) incentive
development controls such as Transferable
Development Rights, Accommodation
Reservation, land use flexibility, and grant of
additional FAR, (d) One window time bound
approval of projects (e) financial and tax
incentives.
(iii) Creating a dedicated organisational setup for co-
ordinating Special Area conservation and
regeneration, with planning, services, land
management, financial and engineering
responsibilities, including transport and
maintenance.
(iv) Constitution of a Regulatory Authority, including
monitoring.
(v) Leveraging strategy for conservation, Economic
Corridor redevelopment, infrastructure
upgradation, and employment generation
projects.
(vi) Review of the ASI Gazette Notification No. F8 /
2 / 90 dated 16th June,1992, regarding prohibited
and controlled zone around the protected
monuments in the old City.
(vii) Capacity building, public participation, asset
management and MIS
It is pertinent to create awareness, interest,
partnerships and commitment among the residents,
property owners and other stakeholders. Private
investments can be attracted through FAR and tax
incentives and financial and economic viability can
be ensured by taking up ‘bankable’ projects.
9.0 CONCLUSIONS
Old Delhi presents a fascinating case study in urban
development, where planners come across great
challenges and contrasts. Its development should
necessarily be in continuum to its glorious past. Now
we are at the threshold of creating another Delhi for
a population of above 23 million for the year 2021.
One of the most important aspect of planning is the
conservation and blending of the historical past and
cultural contents of the city with the new
developments. However, this need is usually
conflicting with the accelerating demographic
demands and socio-economic pressures. A sensitive
 A.K. Jain / ITPI Journal 1 : 2 (2004) 29-38
approach to planning, with policy departures
concretized on the lessons of the last four decades
can resolve this conflict.
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