Institutions, Policies

and Tools for Effective

Land Use Planning

SLUP 2020
(24.11.2020)
 England
 Historical development of Planning
legislation in UK
 Levels of Planning ( National, sub-national,
local)

Contents  Plans and policies at various levels

Pakistan
 Main Instrument of National Planning
 Urban policies in five-year plans
 Planning Approches in Pakistan
 Component of Physical Planning
What is the
role of
institutions in
urban
planning?
The UK is made up of England and
three other countries that have different
forms of devolved government:
• Wales,
• Scotland and
• Northern Ireland. 

There is just one

planning system in
England, but it operates
 • The present planning system of England
originated from the industrial and agricultural
revolutions that began in the 1700s.
History of • Before then, most people lived and worked in the
the countryside.
planning • Mechanization of agriculture and movement of
system people from countryside to towns and cities.
• Cities and Towns grew rapidly without basic
facilities such as running water, sewage , toilets
etc
 • Planning by public authorities was first used as a tool for
improving the health of the working population in the
Victorian era.
• Sir Edwin Chadwick's report 'The Sanitary Conditions of
Public the Labouring Population', published in 1842, sparked a
raft of legislation aimed at improving living conditions.
health • The Victorians reasoned that improved health for the workers
reform would enable them to work harder and reduce the cost of
1800s supporting an unhealthy population.
• Gradually local authorities took responsibility for
providing clean water, and the removal of sewage and
refuse.
• By 1875, acts of Parliament had been passed to tackle
the problem of overcrowded housing.
 • At the turn of the century, legislation continued to
improve conditions for the industrial work force.
• Town Planning Act 1909, which forbade the
Town building of back-to-back housing and allowed local
planning in authorities to prepare schemes of town planning.
the 1900s • Housing Act 1919, which gave the Ministry of
Health authority to approve the design of houses.
• Housing Act 1930, which required all slum housing
to be cleared in designated improvement areas.
Town planning in the 1900s
• Around this time, the Garden Cities movement was formed under the
influence of Sir Ebenezer Howard.

• This eventually led to the New

Towns movement and the New
Towns Act 1946 although, by the
time new towns were being built, the
rise of the privately owned motor car
had made much of Howard's vision
unattainable.
 • With all the new housing, the rise of the motorcar and
continued industrial development, the countryside came
under increasing pressure.
• For example, between 1919 and 1939 over four million
Pressure on new homes were built, the majority on green fields,
the and advertising hoardings sprung up unregulated
countryside across the landscape.
• In  response to this threat, the need for planning controls
to be extended to cover the countryside as well as towns
was recognized and in 1926 the Council for the
Preservation of Rural England was formed later renamed
the Campaign to Protect Rural England.
Pressure on the countryside

As pressure was put on the Government to take action, two important acts of
Parliament were passed:
• Town and Country Planning Act 1932, which was the first legislation to
accept the desirability of countrywide rural planning
• Restriction of Ribbon Development Act 1935, which was designed to
prevent the sprawl of towns and cities across the countryside.
• 'Ribbon development' is linear development of long rows of buildings
built along main roads leading out of towns
Post WWII: Town and country planning

After WWII: need raised for comprehensive planning to rebuild bombed

out towns and cities and to help reorganize industry.
• The Town and Country Planning Act 1947 introduced the basis of the
system that we have today. It introduced two significant changes:
• Local authorities now had to complete a local plan, setting out
detailed policies and specific proposals for the development and use
of land in a district.
• However some sectors, such as agriculture, were granted significant
exemptions from planning controls, called permitted development
rights, which still exist today
After the 1947 Act, the system continued to evolve.

1955: The national Green Belt system is put in place to prevent urban sprawl.

1968: County structure plans are introduced to co-ordinate and guide local plans
1988: Regional planning guidance is introduced to act as a strategic guide for county
structure plans
1990: The Town and Country Planning Act 1990. The act divides planning into forward
planning and development control.
Forward planning is about setting out the authority's strategy for the future through
a development plan and
Development control is about controlling the development that happens
1991: The Planning and Compensation Act 1991 amends the Town and Country
Planning Act and introduces the plan-led system, affirming that planning applications
should be decided in line with the development plan.
Localism Act, 2011

• The Localism Act received Royal Assent in November 2011, covering a

huge range of different topics. In particular, the legislation included
several wide-ranging changes to the planning system. The mains ones
are:
• the abolition of regional planning
• the introduction of statutory neighborhood planning
• the introduction of some stronger enforcement powers for local
planning authorities
National Planning Policy
Framework, 2012
• The Government published the National Planning Policy Framework. This Framework
replaces all existing national planning policy contained in Planning Policy Statements
and Planning Policy Guidance notes with a single, streamlined document.
National Planning
National Planning Policy Framework
• Government planning policy is contained in the National
Planning Policy Framework (NPPF).
• This covers all national planning issues, such as planning
for housing, shops, offices and good design.
• The only planning issues on which the Government issues
guidance that are not completely covered by the NPPF are
planning for waste and some parts of planning for
minerals extraction. These issues are covered in separate
policy statements.
National planning
National Planning Practice
Guidance
The National Planning Practice
Guidance (NPPG) is a web-
based resource which brings
together planning guidance on
various topics into one place.
Sub-national planning

• The Localism Act 2011 has removed the formal

regional tier of planning in England, and in its place
introduced the Duty to Cooperate.
• The Duty to Cooperate requires local councils to work
together when preparing their local policies and plans,
to ensure that 'bigger than local' issues which cross
local boundaries are dealt with properly for the
planning system.
• For example, most Green Belts are spread across a
number of local council areas. It is important for
those different councils to work together to ensure
that the Green Belt continues to be protected.
Local planning

• England has a plan-led system of development.

• Under this, every local planning authority in England
has to prepare a Local Plan.
• Under the system introduced in 2004, new style Local
Plans replaced the old development plans, known as
either Local Plans or Unitary Development Plans.
• Local Plans prepared since the 2004 Act are very
different to those prepared before it
What do
Local Plans
contain?
Issues pertaining to Planning system in UK
• Local planning won't help us tackle our big national problems from
rising sea levels to demographic change, some issues require local
leaders to plan together

https://www.theguardian.com/local-government-network/2012/nov/19/local-planning-rising-sea-levels-demographic-
change
Urban Policies of
Pakistan
 Perspective Plan-Vision Plan ( Ex: 2025 Vision)
• To provide a long-term (15-25 years) economic and social policy framework so that the
Main Instrument objectives to be achieved over a much longer period can be incorporated in a medium-
term framework.

Five Year Plan

• A five year plan is a general statement of objectives and targets relating to the economy
of National
as a whole and its various component sectors.

Roll-On Plan
Planning

• In order to bring flexibility into the Five Year, a roll-on plan of medium term is designed
in which the sectoral and project-wise position is adjusted according to the foregoing
year.

Annual Plan
• It is regarded as the implementation side of the five year plan.
• The annual plan includes an evaluation of past performance, a presentation of the main
targets, an assessment of the resource position for the year.
 Pakistan was one of the pioneering
countries which instituted deliberate
urban policies. Its first Five-Year
Plan (1955) had ‘Housing and
Settlement’ as a distinct sector
before, even, the United States
Department of Housing and Urban
Development was created.
URBAN POLICIES IN FIVE-YEAR
PLANS
• Pakistan’s urban policies do envisage public provisions of housing and community
services for the poor.
• Urban policies have been co-opted to produce ‘plots and (public) works’.
• Pakistan’s urban and housing programmes are organized under five policy areas,
namely,
(i) housing and Katchi Abadi Improvement;
(ii) provision of community utilities such as water supply, sewerage, public transport, sanitation, etc., in cities
and villages;
(iii) institution building for surveys, design and planning of cities, formation of provincial and local planning and
housing departments and laboratories;
(iv) government buildings and public officials’ housing as well as the development of the national capital; and
(v) special projects, particularly for tribal areas, Azad Kashmir, etc..
Planning Approches in Pakistan

Stage-I: Urban Planning Stage-II: Planning

at Independence Approaches (1960-1980)

Stage III: Key Influences Stage IV: The new

and Approaches (1980- millennium (2000 –
2000) onwards)
 Stage-I: Urban Planning at Independence
Concepts Functional efficiency and public health: wide, straight roads; provision of water and
sewage systems; segregation of land uses; open space provision; garden suburbs;
regulation of new development

Plans No comprehensive plan; piecemeal layout of areas by military/civilian engineers

Agencies Public Works Boards, Improvement Trusts, Cantonment Boards

Law Town Improvement Act 1922

Skills Civil and sanitation engineering

Comments Transplant of nineteenth century; British analysis of urban problems and remedies.
Planning emphasized role of public health dealing with urban renewal, by-laws to
define minimum road widths; Planning schemes for suburban expansion in larger
towns and cities
 Stage-II: Planning Approaches (1960-1980)
Concepts Long range, detailed land use plan based on comprehensive surveys of land; key role for
public sector in carrying out development; urban containment and decentralization;
segregation of land uses; redevelopment of dilapidated areas; road widening/ building

Plans Master Plan, Outline Development Plan, Land Use Plan, Zoning Plan
Agencies Housing and Physical Planning Department, Development Authorities, key roles -- public
works and public land acquisition; land use and building control by local councils

Laws MAO 1960; Land Acquisition (Housing) Act 1973; LDA Act 1975; Development of Cities Act
1976

Skills Data collection and plan making, architectural tradition, designing future of the city like
designing ‘a building’, Town planners as experts

Comments Strong influences from British 1947 Act -- 20 years development plans based on long detailed
surveys, implementation involved planning of capital works for public sector; containment;
dispersal and redevelopment were the basis of UK practice 1947-75
 • This period, 1970–1977, also witnessed the beginning
Development of international bodies’ influence on Pakistan’s urban
policies.
• The UNDP funded the Master Plan for Karachi (1968);
Lahore’s Urban Development and Traffic study (a
condensed form of the Master Plan) was funded by
the World Bank in 1976.
• In the 1960s, UN agencies funded urban development
on a project by project basis.
Urban

Plans

• World Bank loans for the upgrading of Lahore’s walled

city
 Stage III: Key Influences and Approaches (1980-2000)
Concepts Long range development plan system prepared and examined in the light of national and
regional policies; regulation of private sector land development; segregation of land uses; road
widening in existing areas and road building in expansion areas

Plan Structure Plan, Master Plan, Outline Development Plan

Agencies Development Authorities, Defense Housing Authority, Local Councils

Law Land Acquisition Act 1894; Development of Cities Act 1976; Punjab Local Government
Ordinance 1979
Skills Data collection in limited time then plan making; more emphasis on policy rather than detailed
maps; move away from architectural/ engineering style to planning style; town planners and
economists as experts

Comments Influenced by the British Development Plan System, attempt was made to introduce Structure
Plan and Local Plan System. However, lack of expertise in the preparation and interpretation
of policies could not sustain this effort.
 Major Issues
• Lack of public participation
• Low capacity of institutions
• Political pressures
• Low penetration of modern technologies
• Outsourcing of project
• Lack of legal provisions pertaining to the nature of
Plan
• No consensus on national objectives
• Lack of a medium term strategic focus
 Stage IV: The new millennium (2000 – onwards)
Concepts Private sector development, environmental protection, community involvement and
empowerment, cost effectiveness with limited resources, flexibility, innovative demonstration
projects

Plans Master Plans, Zoning Plans, Land Use Plans, Spatial Plans

Agencies PHATA, City District Government, Town Municipal Administration, Development Authorities,
Defense Housing Authority

Law PLGO 2001, Land Disposal Act 2002, Land Acquisition Act 1894, Development of Cities Act
1976, PHATA Ordinance, 2002, DHA Ordinance, 2004.

Skills Listening, networking, negotiating, management, monitoring, appraisal and impact

assessment
 Promotion of Public
Private Partnership

The PPP policy is the overall platform of

the program which was first approved in
November 2007 with a revised version
approved by the Cabinet in January 2010
Capital and operating costs
are paid for by the public
sector, who take the risk of
cost overruns and late
delivery.

The public sector only pays over the

long term as services are delivered.
The private sector funds itself using a
large portion of debt plus
shareholder equity. The returns on
their equity will depend on the
quality of services.
Focus on
Master
Planning
Motorways era
Aerotropolis
Planning
CPEC
Digital Planning Tools
Utilization in Spatial
Planning of Pakistan

Number of peri-urban structure plans using digital planning tools at

various preparation stages
Micro scale PSS
 Institutional Mushroom growth Public Participation Academic – Public
strengthening of Housing societies Linkage
Physcial
Planning
 Physical Planning
is essentially a • The other important aspect of the physical
decision-making planning is to fulfillment of national
process, whose integration.
outcomes take the • Analyzing the role of physical planning is vital
form of policies, in understanding how planning can help to
programs and achieve a balanced development.
designs.
 • Master Plan or more recently the Structure
plan aka Development Plan.
• The local Plan, including the sub-category
Instruments termed ‘’ Detailed Development /Layout
of Physical Plan’’.
Planning • The bye- Laws and the regulations of the
municipality/development authority
• Design criteria and planning standards.
Instruments of
Physical Planning

• All the components of

Physical Planning are inter-
related.
1. Master Plan
• The Master Plan is the traditional method for presenting a set of land use allocation and
control measures in the form of a map.
• The graphical form is supported by written statement of goals and objectives, strategies
and financial implications.
• In modern era, it is superseded by Structure Plan which is a statement of priorities, plans
and programmes supported by a key diagram, a systematic illustration of the spatial
implications of policy proposals.
• The difference between these two is change of emphasis.
• Both Plans based on methodologies based upon projections of population, employment,
income traffic etc.
• Structure plan with it focus on policy issues is much more flexible and dynamic
framework.
 Caution!

• Out of date, detailed plans encourage haphazard development and

mean that infrastructure is underprovided and follows development.

• Such “planning” favors the speculators and squeezes the poor.

 2. Local Plan
• The term is applied to all forms of local development, re-development,
renewal, upgrading and conservation proposals.
• Local plan should be nested within a Structure Plan.
• Detailed/Layout Plans, is specifically applied to area development / sub-
division schemes enabling commencement of engineering designs and
physical implications.
 3. Bye- laws and Regulations
• Bye- laws and Regulations are control instruments, in quasi-legal
written form.
• Controls are usually framed in simple physical unit terms such as
maximum height of building, minimum setback etc.
• Zone- specific bye laws within urban area. Why it so?
• Incentive based control.
 4. Standards as Planning
Instruments
• Allocation, space and distance standards are also the means of Planning.
• The term Standard means the measure to which other confirm or by which
accuracy of others judges.
• It can mean a thing serving as basis for comparison.
• Lowest tolerable minimum: the standard which MUST be attained.
• Standard: the condition normal to decent. A given condition SHOULD be
obtained, that condition is considered to be standard.
• Optimum or goal: higher than standard. Condition described as
DESIREABLE are optimum.
Why Planning could not Bring
Better Living Conditions?
• Planners’ advice may be good or inappropriate
• Planners’ role may be recognized or ignored
• Planners may not have adequate training
• Politicians may have a distorted sense of the public interests
• Plans may be unrealistic, given their resource requirements
• Plans may not reflect priorities of community or business interests
• Powerful economic interests may have influenced the implementation of
plans
• Implementation authority may be fragmented among jurisdictions
Problem in Pakistan

• Issue of jurisdiction
• Issue of funding
• Lack of legal provisions pertaining to the nature of
Plan
• Lack of institutionalized coordination mechanisms