1
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends Paper No: 12 Environmental Microbiology & Biotechnology
Module: 27 Land Use Planning II: Policy Framework and Utilization Trends
Development Team
Principal Investigator
&
Co- Principal Investigator
Prof. R.K. Kohli
Prof. V.K. Garg& Prof. Ashok Dhawan Central University of Punjab, Bathinda
Paper Coordinator
Dr Sunil Mittal
Central University of Punjab, Bathinda
Content Writer
Dr. Sunil Mittal
Central University of Punjab, Bathinda Content Reviewer Dr. V.K. Garg
Central University of Punjab, Bathinda
Anchor Institute Central University of Punjab
2
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Description of Module
Subject Name Environmental Sciences Paper Name Environmental Management Module
Name/Title Land Use Planning II: Policy Framework and Utilization Trends Module Id EVS/EM-XIX/27
Pre-requisites
Objectives To learn about current land use planning and trends, objectives of the policy and overall approach
Keywords Land use planning, objectives, National policy
3
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Module 27: Land use Planning II: Policy Framework and utilization trends 1. Introduction
2. Current Land Use Planning and Utilization Trends 2.1 Urban area planning
2.2 Industrial investment zones planning 2.3 Eco-sensitive area planning
2.4 Mining area Planning
2.5 Watershed management for productivity of agricultural lands 2.6 Coastal zone planning
2.7 Land administration 2.8 Land use boards 3. Relevant existing policies
4. Guiding Principles for the National Land Utilization Policy 5. Objectives of the National Land Utilization Policy
6. Overall approach
6.1 Guiding framework for states 6.2 Identifying Land Utilization Zones 6.3 Management of Land Utilization Zones 6.4 Planning of Land Utilization Zones 7. Identification of Land Utilization Zones
8. Key Considerations for Planning & Management of Land Utilization Zones 9. Institutional setup
10. Policies, acts, and programmes that have a bearing on land resources
4
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
1. Introduction
The detailed information regarding land use, land degradation, land use planning has been provided in the first chapter. This chapter will highlight the current trends regarding to land use planning, guiding principles for National Land use Policy, objectives and overall approach for National Land use policy.
2. Current Land Use Planning and Utilization Trends 2.1 Urban area planning
The Urban Development Plans Formulation and Implementation (UDPFI) Guidelines (1996) suggested urban development planning system. The system consisted of a set of four plans:
i. Perspective Plan: The lifespan of this policy plan was 20-25 years and was related to the spatio-economic development of the settlement.
ii. Development Plan: The life span of this plan was 5 years and was associated with the spatial economic development of the urban areas.
iii. Annual Plan: This plan contains the fiscal and physical details of recent and ongoing projects. This plan needs to be implemented by the local authorities during the corresponding financial year.
iv. Plans of Projects/Schemes: This plan contains the complete layouts for implementation by a private or public agency. Master and Development Plans are prepared for metropolitan and urban areas. Regional plans are also prepared occasionally e.g., plan for National Capital Region of Delhi. The Master or Development Plans are prepared by the Development Authorities, Town Planning Departments or urban local bodies. If regional plans are not prepared, then the human population will expand into rural areas and farmlands. 2.25% of India’s land will be brought under planned development, if the urban areas of the country are well planned.
5
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
2.2 Industrial investment zones planning
The National Manufacturing Policy (2011) of the GoI stimulates integrated industrial townships, and preparation of eco-friendly developmental plans. The regional/state level authorities such as infrastructure development boards and industrial development corporations identify locations for investment zones, special economic zones (SEZ), industrial estates, industrial corridors and prepare master plans for these areas. If there is proper land use planning of industrial areas in India, then 1% of India’s land will be brought under planned development.
2.3 Eco sensitive area planning
Ministry of Environment, Forest and Climate change (MoEFCC), GoI and Environment (Protection) Act, 1986 notified Eco-Sensitive Zones. Further development in these sensitive areas involves preparation of zonal development or master Plans. These plans will guide further development in these areas. Eco Sensitive Zones are the areas which contain those natural resources that are having unique values like flora, fauna and water resources etc. Since these zones are highly threatened, therefore they need special consideration for their protection. These eco-sensitive zones include Wildlife Sanctuaries, National Parks, Conservation and Community Reserves and represent about 4.79% of the total geographic area of India. Other areas including landscape areas, aesthetic and historical areas also come under the category of eco-sensitive zones. The main aim of declaring certain areas as Eco Sensitive Zones is to create a specialized ecosystem that needs to be conserved and protected. These are the transition zones that vary from high protection areas to lesser protection areas. The nature of these areas is regulatory not prohibitive.
The objectives of Eco Sensitive Zones are:
To maintain the response level of an ecosystem within the permissible limits with respect to environmental parameters.
6
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
To take care of special protection needs because of its landscape, wildlife, historical value etc. and to ensure that the new activities allowed are within the carrying capacity of that area.
To ensure protection and conservation of ‘Entities of Incomparable Values’ of these zones and regulate development activities based on a scientific basis and based on adequate participation in the decision making by the local communities.
To ensure compliance to the provisions contained in the approved Zonal Development Plan/Master Plan/Management Plan through the constitution of high level monitoring committees.
5% of the India’s land will come under planned development, if Eco Sensitive Zones are notified and properly planned.
2.4 Mining area planning
Mineral concession or mining lease is allotted for mineral extraction. Moreover, the allotted mine is operated in compliance to all applicable laws. If proper mining plans such as environmental management plan are not framed, then mining lease would not be granted to any public or private party. However, the management plan should be fully accepted and enforced by statutory authorities.
0.17% of India’s total land area will come under planned development, if the process of mining area planning is initiated.
2.5 Watershed management for productivity of agricultural lands
In order to increase the productivity of marginalised land, some schemes were started by GoI. These schemes were centrally sponsored and included Desert Development Programme, Drought Prone Area Programme and Integrated Wasteland Development Programme.
In 2009, all these schemes were merged under single scheme i.e., Integrated Watershed Management Programme. This scheme covered both the marginal lands as well as rain-fed
7
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
agricultural areas. This was based on the understanding that the productivity of rain-fed agricultural areas should be increased to address the alarming food security issues of India.
The watershed areas could also come under planned development if these get associated with land use planning.
2.6 Coastal zone planning
Coastal areas contain abundant resources, rich biodiversity and productive habitats, and also play crucial role in promoting India’s economy. Coastal zone is also gifted with a wide range of ecosystems like coral reefs, mangroves, salt marshes, sea grasses, estuaries, sand dunes, lagoons, etc. These ecosystems are characterized by distinct ecosystem services and abiotic and biotic processes. In the past years, the incidences of urban sprawl, accelerated development and urbanization have shown an increase. These activities have put terrific pressure on the fragile environment of the coastal areas. As a result, ecosystem services and coastal resources are facing degradation due to overexploitation of natural resources and unplanned developmental activities.
In order to protect and conserve the coastal environment, MoEFCC and GoI issued the Coastal Regulation Zone Notification (1991) under Environment Protection Act (1986).
This notification is responsible for the regulation of developmental activities in the Coastal areas. Certain restrictions were imposed on the land use in the coastal areas according to this notification.
Integrated Coastal Zone Management (ICZM) Project was initiated by GoI in association with World Bank for implementing complete coastal management plan in India, and piloting the same approach in states Orissa, Gujarat, and Orissa.
2.7 Land administration
Two centrally sponsored programmes i.e., Computerisation of Land Records (CLR) and Strengthening of Revenue Administration & Updating of Land Records (SRA&ULR) were launched by GoI. The main aim of these programs was the improvement of revenue administration and land records in India. Later on these programmes were merged to
8
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
revitalize the agenda of land administration into a single programme i.e., National Land Records Modernization Programme (NLRMP). The main aim of this program was to maintain updated records of land use, land transactions, connectivity between revenue and registration systems.
2.8 Land use boards
State Land Use Boards were established in 1970’s under the Chairmanship of Chief Minister of the States at that time. These Boards provided policy directions and coordinated the activities of those departments that were dealing with soil and land resources. However, these boards realized that it was the wastage of time and never functioned the way they were meant for, and most of them have been abolished.
Currently, the States do not have any policies to deal with land use issues in a logical manner. Hence, the responses of the States to land issues are spontaneous, non-consistent and unplanned.
3. Relevant existing policies
Policies that are related to land use include
National Forest Policy 1988
National Land Use Policy Outlines 1988
Policy Statement of Abatement of Pollution 1992
National Livestock Policy Perspective 1996
National Agricultural Policy 2000
National Population Policy 2000
National Policy and Macro-level Strategy and Action Plan on Biodiversity 2000
National Environmental Policy 2006
National Water Policy 2013
4. Guiding Principles for the National Land Utilization Policy
9
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
1st Principle: The primary concerns for sustainable development include human beings. They are supposed to live a productive and healthy life in harmony with nature.
2nd Principle: This principle involves equal opportunities in terms of gender equality, inclusive growth, and poverty eradication. The three mentioned factors are crucial desires for sustainable development of country. These factors must be addressed in all programmes, policies, and plans.
3rd Principle: Balanced development and intergenerational justice
Developmental activities in various sectors must be planned in a balanced manner to meet socio-economic and environmental needs of present and upcoming generations.
The developmental activities should minimize the population displacement on large- scale.
4th Principle: Efficient utilisation of resources and mitigation of impacts
Optimum utilisation of land resources is essential. Moreover, projects should be set up on wastelands, un-irrigated lands, recycled lands, or degraded lands.
5th Principle: Integrated and comprehensive development planning
Development planning must be sustainable and comprehensive. The interest of stakeholders and various sectors should be taken into consideration for the development of plans.
6th Principle: The States are custodian of land
The sole custodians of the land are states. Unsustainable patterns of land utilisation and management must be neglected by the state governments. State governments must provide legal support to facilitate land use planning.
7th Principle: Harmonization with existing policy, legislative and regulatory framework
The existing laws, standards, guidelines, procedures, and constitutional provisions and rights applicable for land use policy as framed by GoI, various departments and ministries, shall be continued for making decisions on land use changes.
5. Objectives of the National Land Utilization Policy
10
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Goal: The goal of the National Land Utilization Policy is to achieve improvement of livelihood, food and water security, and best possible realization of various developmental targets so as to ensure sustainable development of India.
Objective: To ensure optimal utilization of the limited land resources in India for achieving sustainable development, addressing social, economic and environmental considerations and to provide a framework for the States to formulate their respective land utilization policies incorporating state specific concerns and priorities.
The specific objectives are given below:
Objectives related to social concerns
1. Protection of agricultural lands from land use conversions so as to ensure food security and to meet consumption needs of a growing population and to meet livelihood needs of the dependent population.
2. To identify and protect lands that are required to promote and support social development, particularly of tribal communities and poor section of society for their livelihood.
3. To preserve historic and cultural heritage by protecting, places/sites of religious, archaeological, scenic and tourist importance.
Objectives related to environmental concerns
4. To preserve and conserve lands under important environmental functions such as those declared as National Parks, Wild Life Sanctuaries, Reserved Forests, Eco Sensitive Zones, etc. and guide land uses around such preserved and conserved areas so as not to have land use conflicts or negative environmental impacts.
5. To preserve the areas of natural environment and its resources that provide ecosystem services.
Objectives related to developmental/ economic concerns
11
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
6. To promote properly guided and coordinated development in a sustainable manner of all developmental sectors including agriculture, urban, industrial, infrastructure and mining so as to minimize land use conflicts or negative environmental impacts.
Objectives related to enforcement and implementation of the policy
7. To suggest a general implementation framework for implementing land utilization policy by all concerned at different levels, viz. national, state, regional and local, and undertaking capacity building.
6. Overall approach
a) Guiding framework for states
National Land Utilization Policy fulfils the criteria of framing guidelines for the preparation of land utilization policies.
b) Identifying Land Utilization Zones
The dominating functions of land, environmental and developmental sectors are taken into consideration by National Land Utilization Policy. Moreover, the laws and approaches responsible for governing land uses are also taken into consideration. Indian lands are classified into different Land Utilization Zones (LUZs). These LUZs will be the focus areas for framing land utilization policies.
c) Management of Land Utilization Zones
Land Utilization Zones are further divided into different Land-use Management Areas for the purpose of land protection, management, regulation, and control, in accordance with priority needs and legal provisions of different sectors.
d) Planning of Land Utilization Zones
Land use planning designates the use of land for urban, rural, and industrial development and environmental conservation and protection. Land use planning will improve the socio-economic performance, well-being and efficiency of community. Land use
12
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
planning can be taken either independently or integrated with Regional, district, Master or zonal development Plans.
7. Identification of Land Utilization Zones
Land Utilization Zones (LUZs) are divided into six categories:
a) Rural and Agricultural Areas b) Areas under alteration
c) Urban Areas d) Industrial Areas;
e) Ecological, Tourism, Heritage and Landscape Conservation areas.
f) Vulnerable Areas.
Relevant aspects like legal status, land potential, land use change pattern and socio- economic needs should be taken into consideration, while deciding the predominant use of land use. In order to make the planning and management of LUZs simpler, the extent of Land Utilization zones should be matched with the existing boundaries of panchayats and districts etc.
a) Rural and Agricultural Areas
Dominant rural and agricultural areas include
i. Agricultural land areas that are extensively used.
ii. Land areas containing fertile soils.
iii. High production areas.
iv. irrigation project areas;
v. Population of an area that is totally dependent on agriculture as a source of livelihood.
vi. Tribal and rural development areas.
b) Areas under alteration/Transformation
13
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Areas where agricultural land is getting transformed into non-agricultural land are known as “Areas under Transformation”.
Areas included under this category are:
i. Rural components of large cities.
ii. Peri-urban areas of metropolitan cities;
iii. Development corridors between two metropolitan cities;
iv. Extremely urbanizing districts.
c) Urban Areas
Urban Areas are those areas that are necessary for fulfilling the urbanization demands of the country. These areas included in this category are:
i. State/National Capitals
ii. Metropolitan urban areas (million-plus population) iii. Urban corridors.
d) Industrial Areas Industrial areas include:
i. Industrial Corridors (mega projects) ii. Special industrial regions
iii. Petro-chemical Investment Regions iv. industrial estates
e) Ecological, Landscape Conservation, Tourism, and Heritage areas Areas included under this category are:
i. Ecological areas: include eco-sensitive areas such as national parks, biosphere reserves, coastal zones and wild life sanctuaries etc. Since these areas provide ecosystem services, therefore several environment and forest acts have been made. These areas also include water bodies, mining areas containing mineral resources.
14
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
ii. Landscape Conservation & Tourism Areas- The areas having scenic beauty and attractive landscapes.
iii. Heritage Areas – include world heritage sites, historic, religious areas, areas having monuments of national or state level significance.
f) Vulnerable Areas
i. Areas vulnerable to manmade and natural hazards are included in this category.
ii. Industrial areas having potential to cause major accidents.
iii. Areas susceptible to natural disasters like drought, floods, earthquakes, tsunami, etc.
iv. Areas other than industrial hazards like chemical/gas pipelines, harbours/ports.
8. Key Considerations for Planning & Management of Land Utilization Zones
a) Land resources of the country should be used in optimum way so as to achieve sustainable development and to provide a framework for the State authorities so as to formulate Land Utilization Policies.
b) Conversion of agricultural lands into non-agricultural lands should be avoided.
c) Make it sure that the rights of tribal and poor people on common land are protected.
d) Historic, cultural, religious, tourist and archaeological sites should be protected and conserved.
e) Natural environment and the resources that are providing ecosystem services should be conserved.
f) Development in different sectors should be promoted in a coordinated and sustainable manner to avoid land use conflicts or adverse environmental impacts.
g) Regional approaches should be used to cope up with growing urbanization demands.
h) The areas under industries or industrial estates should be reduced for optimal land utilization.
i) Mineral bearing areas should be avoided for mining purpose.
15
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
j) While planning for transportation networks, the land use conflicts should be avoided.
These areas should be preferably integrated with state/regional/district plans.
k) Areas under cultural heritage, historic places, tourism areas, religious places of interest etc. should be protected. Proper care should be taken while preparing land use plans.
9. Institutional setup
The institutional set up is followed at district, state and national levels for carrying out National Land Utilization Policy.
a) National Level Set Up:
The composition of the National Land Use Council is as below:
Chairman Prime minister of India
Deputy Chairman Deputy chairman, Planning commission of India
Member
Minister for Environment and Forests, GoI Minister for Road Transport & Highways Minister for Power
Minister of Urban development Minister for Finance
Minister for Tribal affairs
Minister for Commerce and Industries Minister for Agriculture and Cooperation Minister for Road Transport and Highways Chief ministers of all states
Member secretary Minister for Rural development
The composition of National Land Use committee is:
Chairman Minister for Rural development
16
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Member
Secretary of the Ministry of Urban development Secretary of the Ministry of Agriculture
Secretary of the Ministry of Agriculture and Cooperation Secretary of the Ministry of Environment and Forests Secretary of the Ministry of Railways
Secretary of the Ministry of Road Transport and Highways
Secretary of the Ministry of Tourism
Secretary of the Ministry of Commerce & Industries Secretary of the Ministry of Power
Secretary of the Ministry of Tourism
Member secretary Minister for Rural development Secretary of the Department of land resources
b) State level set up
The composition of state land use council is:
State government
Chairman Chief minister
Minister for urban development
Member Minister for Agriculture
Minister for Environment &
Forest
Minister for Commerce/Industries Minister for Power
Minister for water resources Minister for Transport Finance minister
Minister for Revenue development
Minister for Rural development
17
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Chairman of planning commission
Member Secretary
The composition of state land use committee is:
State government
Chairman of State Planning Commission
Chairman
Minister for Relevant Nodal department
Deputy Chairman
Principal secretary of Urban development/ Town & Country Planning
Member Principal secretary of
Agriculture Department
Principal secretary of Industries/commerce
Principal secretary of Environment & Forests
Principal secretary of Electricity department
Principal secretary of Transport department
Principal secretary of Tourism department
Principal secretary of Finance department
Principal secretary of rural development
Principal secretary of Revenue department
Member secretary
c) District level set up:
Chairman: Chairman of District planning committee
18
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Members: District level officers of Water resources, Revenue, Agriculture, Urban development, Environment & Forests, Town & Country Planning, Industries etc.
Member secretary: District collector
10. Policies, acts, and programmes that have a bearing on land resources Policy/act/programme year Salient features
Drought prone area program 1973- 74
To reduce the undesirable effects of droughts on the human resources, water and land productivity.
To encourage the economic growth
To improve the socio-economic condition of poor people residing in those areas where the programme was launched.
To ensure the participation of non- governmental organizations and panchayati raj institutions.
To empower the village community.
Desert Development
Programme
1977- 1978
Launched for hot desert areas of Gujarat, Rajasthan, and Haryana.
Cold desert areas of Himachal Pradesh and Jammu & Kashmir.
Integrated watershed management
1980- 81
To improve the efficiency and production of degraded lands.
National Land Use and Wastelands Development
Council
1985 The council was concerned with management of the India’s land resources
19
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
Wasteland development was the main motto of this council
National Land Use and Conservation Board
1985 The board was responsible for the formulation of plans and policies for management, conservation and development of India’s land resources.
To make certain implementations so as to check the conversion of agricultural areas to non– agricultural areas.
To co-ordinate with State authorities.
National Wastelands Development Board (NWDB)
1985 The board was responsible for the wastelands development and management programmes in India.
To classify wastelands in India.
To assess the progress of various schemes and programmes that has been made for wasteland development.
National Watershed Development Projects for Rainfed Areas
1985- 86
The main aim was ecological restoration and improvement in crop productivity.
National Land Use Policy 1988 To prevent degradation of land resources.
To re-establish degraded lands to their original state.
To establish different committees to look into the matter of land use.
Integrated Wastelands Development Project
1989- 90
To adopt certain practices like trenching, vegetative barriers, bunding, terracing etc. for soil conservation.
20
Environmental Sciences
Paper 12 Environmental Management
Module 27 Land Use Planning II: Policy Framework and Utilization Trends
To enhance the participation of local people’s in development programmes associated with wasteland.
Constitution (Seventy Third Amendment ) Act, 1992
1992 Land related issues were given to Panchayati Raj Institutions.
The act dealt with the participation of local governments like district and state levels for land use planning.
Constitution (Seventy Fourth Amendment ) Act, 1992
1992 Urban and land use planning was operated under the power of urban self- governing bodies.
Department of Wastelands Development in the Ministry of Rural Development
1992 To promote and develop watershed approach.
Investment Promotional Scheme
1994- 95
To convert wasteland in non–forest areas.
Development of land resources
1999 To formulate policies for the management of integrated land resources.
To implement land based development programmes.