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CHAPTER 2

URBAN PLANNING AND DEVELOPMENT IN INDIA AND

THE CASE CITY OF CHENNAI

This chapter gives a background of urban development in India in

general and describes in detail the urban planning and development of the
case city of Chennai. The purpose of this chapter is to describe the urban
planning processes practiced in India and to identify the gaps in urban
planning processes which could be strengthened using 3D volumetric
analyses. This chapter also shed lights on ‘how well equipped are planners
with current trend of development for taking planning decisions’, and
partially answers the question on ‘need for an evaluating tool to measure the
ground development with the conceptualized plans’.

2.1 URBAN PLANNING AND DEVELOPMENT IN INDIA

India is on the threshold of facing complex urban planning and

development challenges in managing massive urbanization. With more than
1.2 billion population, India is expected to surpass China’s population by
2025. A major portion of this increase would be in existing mega cities,
posing greatest challenges to India’s urban future (Jauhari 2012). In India, at
national level, urban planning and development subject is dealt by the
ministry of urban development, the ministry housing and urban poverty
alleviation, and the planning commission of India. These are the main
agencies which lay down policies, legislations, and development programs
etc. At state level Town planning departments are responsible for preparation
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of master plans and development plans (Gurumukhi 2003). Development plan

drives planning of cities in India (Munshi 2013) and it outlines land-use zones
in which uses like residential, commercial, institutional, industrial etc., are
planned. The urban planning process is more or less same throughout the
country following the guidelines stipulated in Urban Development Plan
Formulation and Implementation, (UDPFI 1996).

2.2 URBAN PLANNING AND DEVELOPMENT IN CHENNAI

Historically planning and development of metropolitan cities like

Chennai has been state governments function. The planning processes in
metropolitan areas tend to be more complex and more challenging (Kumar
2013). The following sub chapters are on brief profile of the case city of
Chennai and the urban planning and development issues faced.

2.2.1 Introduction

Chennai is the fourth largest metropolitan city in India. Chennai is

the major cultural, economic, educational and industrial center in south India.

2.2.2 Location

Chennai, the capital city of Tamil Nadu State, is located between

12°50'49" & 13°17'24" North, and between 79°59'53" & 80°20'12" East,
Figure 2.1. Chennai is located on the Coramandal coast in southern India and
the land is a flat coastal plain. Chennai is referred as the gateway to south
India (CMDA 2008).
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Figure 2.1 Case city of Chennai and its location map

Figure 2.2 Evolution of Chennai - 1633-1971 (Source: CMDA 2008)

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2.2.3 Historical Background

In 1600 AD the city was formed of a few scattered settlements

separated by long distances. Each settlement grew around the nucleus of a
religious institution especially of a temple and has its own history. Chennai
has been occupying an important position in the southern region ever since it
was founded by the East India Company in the 17th century. Its importance in
the region can be attributed to the fact that till recently it has been the major
commercial, administrative and military center for the entire south. A fishing
hamlet, which existed at the present site of George Town, called as Chennai
Patanam from, which the name of Chennai is said to have been, derived
(CMDA 2007). Figures 2.2, 2.3 and 2.4 show the evolution of Chennai form
1633, land-use existed in 1973 and 2006 respectively.

2.2.4 Demography

The population of Chennai city in 2011 is 46.81 lakh with a density

of 26,903 per km² making it as fourth most densely populated city in the
country (Census 2011). Chennai’s population has gone up by 7.8% between
2001 and 2011. The total population of Chennai Metropolitan area is 8.6
million in 2011. It has a literacy rate of over 90% much higher than the
national average of 79% (Census 2011).

2.2.5 Socio-Economic Conditions

Chennai’s economy is mainly based on automobile, IT, hardware

manufacturing and healthcare sectors (CMDA 2008). Chennai is also known
as the cultural capital of south India and is the most visited city in India by
international tourists (Euromonitor 2012).
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Figure 2.3 Chennai Metropolitan Area – Landuse Map 1973

(Source: CMDA 2008)
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Figure 2.4 Chennai Metropolitan AREA – Landuse Map 2006

(Source: CMDA 2008)
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2.2.6 Governance and Public Administration

Chennai Metropolitan Area (CMA) comprises the area covered by

Chennai Corporation, 16 Municipalities, 20 Town Panchayats and 214
villages (CMDA 2008). CMA or Chennai district comprises of Chennai
Corporation and parts of Kancheepuram and Tiruvallur district as shown in
the figure. The total administrative area of Chennai Metropolitan Area (CMA)
is 1192 sq.km, with 426 sq. km as the City Corporation area (CMDA 2008).
Previously, the Chennai city corporation limit was 176 sq.km as shown in the
Figure 2.5.

2.3 HISTORY OF URBAN PLANNING IN CHENNAI

The planning of Chennai city dates back to 1920, when the Madras
Town Planning Act was enacted. Though the town planning act was in place
as early as 1920, the first master plan for Chennai was prepared only in the
year 1975, in addition few Town Planning Schemes were prepared (CMDA,
Draft Master Plan-II for Chennai Metropolitan Area- 2026, 2007).

2.3.1 General Town Planning Scheme – 1957

In 1957 a general Town Planning Scheme was prepared with a

vision of brining organized growth to the city of Madras (Chennai).

2.3.2 The Madras Interim Plan – 1967

An Interim Plan for the city was prepared in 1967, which focused
on the urban issues of the city and physical planning.
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2.3.3 Madras Metropolitan Plan - 1971

The Madras Metropolitan Plan evolved strategies for urban growth,

programs for city expansion and provision of physical infrastructure services.

2.3.4 Madras Urban Development Plan – 1974

A series of urban development projects were carried out under

Madras Urban Development Plan 1974.

2.3.5 Master Plan I – 1975

The first Master Plan for the city was prepared in the year 1975,
which laid down policies, programs for overall urban development of the city.

2.3.6 Structure Plan – 1980

In 1980 a Structure Plan for the entire city was prepared, which
focused on sector based investment plans.

2.3.7 Master Plan II – 2008

In 2008, the second Master Plan for the city of Chennai was
prepared, with a vision of making Chennai as one of the prime metropolis of
the country with improved quality of life, economically sound and
environmentally sustainable city.
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Figure 2.5 Chennai Metropolitan Area – administrative boundary

2.4 CRITICAL REVIEW OF URBAN PLANNING IN CHENNAI

Chennai has had a long history of planning. Zoning and building

by-laws are still among the primary tools of modern city planning practice in
Chennai (Jothilakshmy 2011). In addition, master plans seek to lay out a
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physical pattern of land use and transportation routes for the city and the
metropolitan area as a whole. Thus, master plans serve as a guide for other
public agencies to prepare sector based plans (CMDA 2008). The second
master plan for Chennai was prepared in 2008 and it is being implemented
vehemently. Second master plan is prepared with a vision of making Chennai
as one of the best livable cities in India by 2026, with high quality of life and
sustainable environment. However, the planning policies and master plan do
not clearly reflect on how to accomplish this vision. Master plan also does not
reflect how urban form of Chennai city is transformed. It also does not reflect
on how climate, landform, built urban fabric, existing physical and social
infrastructure services in place etc., were taken into consideration in
preparation of master plans. It is understood that the growth of Chennai city is
regulated by different planning schemes, policies, two master plans and
development regulations framed by Development Authority over the past 53
years. The planning of Chennai city with a general town planning scheme was
started in 1957, and had reached the second master plan in 2008, formulated
with land use zoning and development regulations as the regulatory
mechanism for the growth of the city. The spatial strategy and land use
planning of the master plan follows zoning and development regulations that
pertain to the different zones, with two dimensional plans. Urban
developments were carried out based on the two dimensional plans of zoning
and master plans.

2.5 CONVENTIONAL PLAN MAKING AND REGULATORY

MECHANISM

2.5.1 Conventional Plan Formulation Process

Conventional plan formulation process practiced in India is

depicted in the Figure 2.6. The foremost step in plan formulation is the
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identification of aim of the plan, which is generally a policy note by decision

maker, based on the aspirations of people. Objectives are specific statements
the ways and means of achieving the aim of the plan formulated. The next
major step in plan formulation is the identification of projected requirements
of various activities. Traditionally Town Planning departments are the nodal
agency that collects and compiles the relevant information from various
departments on their future plans. This process has not been effective and
potent as the participation and coordination among the departments are very
poor in nature (UDPFI 1996). Urban planner gather inputs from various
departments prepare a future plan and this makes the role of planner to be
crucial. In addition to the above information, plan formulation takes into
consideration of planning theories and principles; planning tools and
techniques; and norms and standards, followed by evaluation processes. A
similar plan formulation process is practiced in Chennai and the growing
metropolis is unable to keep pace with the developments in the provision of
sustainable infrastructure to its population. The emergence of new economy
bases demands a new approach from the traditional master planning tools and
techniques to enable sustainable and equitable growth of Chennai. Though the
earlier efforts of master plan yielded results in giving a strategic direction to
the growth of the city, the new Master Plan must be reviewed for increased
floor space index and density to cater to the growing demands of city. The
conventional plan making process has many shortcomings such as, weak
database for plan preparation, non-comprehensive and non-holistic nature of
the plan, inadequate public participation, and lack of monitoring and
implementation mechanism (Jauhari 2012).
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Figure 2.6 Conventional plan formulation processes in practice,

UDPFI-1996 (Source: UDPFI 1996)

2.5.2 Conventional Regulatory Mechanism

Zoning is a primary planning tool used to control the urban

development in Indian cities, with a set of regulations which influences land
use, density, form and volume (Fitzgerald 2008, Jothilakshmy 2011). It is one
of the legal tools for governing the urban growth. Zoning brings orderliness in
cities (Cullingworth & Caves 2008), effectively acts as design control tool
(Cook, 1980) and also act as a legal mechanism for guiding land-use and
protection of public health, welfare and safety (UDPFI 1996). Therefore
zoning is a set of conditions (Pooni 1998), used for implementation of the
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master plans or development plans and often it is considered as means of

regulatory measure a city development agency holds. Zoning is governed by
important parameters like land-use, bulk, height and form of the building
(Cook, 1980). However, the conventional tools such as two-dimensional maps
used for creating zoning regulations, fails to create a platform for
understanding the existing development and the infrastructure in place
(Zambuni 2013). In cities like Chennai, zoning is the primary planning tool
used. Therefore, extensive understanding is required for urban planners on the
impact of zoning regulations on city development. Planner for a better future
is almost impossible with the current tools and techniques, which are
primarily dependent on conventional 2D plans.

2.6 OVERLAPPING COMPETENCIES AND CLASH OF

AUTHORITIES

Chennai’s governance is characterized by the role that state

government agencies retain in the management of urban affairs. Apart from
local governments, agencies like Public Work Departments (PWD), Tamil
Nadu Housing Board (TNHB), Chennai Metropolitan Water Supply and
Sewerage Board (CMWSSB), Chennai Metropolitan Development Authority
(CMDA) etc., are involved in planning and management of urban services.
Effective planning and management of urban services are practically
challenging due to overlapping competencies and clash of authorities.

2.7 CONCLUSION

In order to avoid the cities to become more and more unserviceable

and unsustainable, urban planning and development agencies in India must
embrace the advancement in planning tools and techniques. Creation of
information rich city database with dynamic and static city models, along with
cities essential data that needs everyday up gradation is one of the essential
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steps suggested in this research. Urban planners will be able to plan more
efficiently by using dynamic information system to the existing planning
processes that focus on urban-related issues. Delhi has enacted Geo-spatial
Data Infrastructure Act (2011) to create such a digital database. The database
includes the entire physical infrastructure such as road, water supply,
wastewater; electricity lines, etc., together with this 3D built-environment. An
authoritative database of this kind is the need of the hour for cities like
Chennai that will impede overlapping competencies and clash of authorities
over their role in decision making, in addition to up-to-date information on
city development.