Inclusion of TOD in City Master Plans
Inclusion of TOD in City Master Plans
TRANSIT ORIENTED
DEVELOPMENT IN
CITY MASTER PLANS
A guidance document prepared by WRI India
WRI India is a research organisation with experts and staff who work closely with leaders to turn big
ideas into action to sustain a healthy environment - the foundation of economic opportunity and human
well-being. We envision an equitable and prosperous planet driven by the wise management of natural
resources. We aspire to create a world where the actions of government, business, and communities
combine to eliminate poverty and sustain the natural environment for all people.
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This is to certify that the material sent herewith is wholly produced by WRI India, and follows all the
necessary referencing, IPR and copyright protocols as applicable. The material is meant purely as
advisory or guidance documents for the ClimateSmart Cities Assessment Framework (CSCAF) of
the Ministry of Housing & Urban Affairs (MoHUA or Ministry), Govt. of India; and will be along with
several such documents to help guide the cities in an unbiased & non-partisan manner, towards better
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
Table of Contents
1. Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 06
1.1 Improving Urban livability indicators. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 06
2. TOD as an Urban Planning Strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . .......... . . . . . . . . . . . 06
2.1 Core principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ........ . . . . . 06
2.2 Scales of transit oriented development planning
and implementation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 0 8
2.3 Regulatory framework advancing climate action. . . . . . . . . . . . . . . . . . . . . . . . . . . . 0 9
3. Incorporating TOD in Master/ Development Plans. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 0
3.1 Scenarios to include TOD in master plans. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 2
4. Institutional Set-Up, Stakeholder Roles and Responsibility. . . . . . . . . . . . . . . . . . . . . 15
4.1 Stakeholder roles and responsibilities. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
4.2 Task-wise roles and responsibilities. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Acknowledgments. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
Preface
Dear Friends,
Cities are both influential and vulnerable performers in the tussle against
climate change. Rapid urbanization has enormous environmental consequences,
and this may also lead to an impact on human well-being. Growing numbers of
city residents put pressure on energy and water resources, depleting blue-green
cover, waste management, sewer systems, and transport networks. A large share
of the world’s cities will be affected by dangerous climatic events such as floods,
storms and periods of extreme heat or cold. At this critical point, city managers
must be empowered to mitigate the causes of climate change impacts.
Today, India’s transport sector is responsible for 9 percent of India’s total GHG
emissions. Transit-Oriented Development (TOD) is a tool that can actively
reduce a cities’ GHG emission by transforming cities from automobile-oriented
to public transit-oriented. This advisory document will help cities to overcome
the challenge of TOD implementation at various tiers of government, backed by
a statutory status. Cities need to note that this is a general advisory providing
them with a methodology and process to undertake a subject-specific action for
bettering their climate change readiness.
Sincerely,
O.P. Agarwal
CEO, WRI India
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1. INTRODUCTION their daily commute are healthier and happier.
TOD promotes walkable communities within
The World Bank projects that India will be one of its influence areas – 500-800 meters around mass
the countries leading the urban population surge transit stations. As urban centres grow, their
by 2050. According to New Climate Economy, the livability index will play a significant role in
urban growth would contribute up to 6 percent of attracting greater economic opportunity and
the gross domestic product (GDP) by 2050. It sustainable growth.
further estimates that poor planning and urban
sprawl could deter India’s growth, and the It is observed that although there is a fair
associated negative externalities may trigger understanding of the planning and designing
financial losses amounting to 1.2% – 6.3% of the strategies of TOD principles, cities are facing
GDP annually. Further, McKinsey Global the challenge of operationalisation of TOD -
Institute’s (MGI) 2010 report, on India’s urban from policy to development control regulations
growth, highlights the fact that India could to on-ground implementation. This advisory
potentially save 6.2 million hectares of arable document is an attempt at providing a step-
land, through efficient land use pattern, by 2030. by-step guide for cities to enable, plan and
implement successful TODs at the city level
In such a scenario, it is important that we plan using master/development plans, or equivalent,
our cities carefully to address the challenges as a facilitator. The document discusses how
and needs of this anticipated growth. Since cities can include TOD in their statutory plans
economic activities are concentrated in urban and establishes interconnections between
areas, cities need to take the lead in achieving various stakeholders along with their roles and
this committed target. Therefore, cities need to responsibilities.
pursue development in a clean, green, inclusive,
equitable and sustainable manner, while reducing
GHG emissions.
2. TOD as an Urban Planning Strategy
TOD is a land development tool that integrates
Global innovators such as Singapore, Bogotá, transit and land use, and enables sustainable
Stockholm, Vienna, Hong Kong and San practices with optimum utilisation of services
Francisco are showing how cities can achieve - especially public transport. It gives priority
a thriving economy, and high quality of life, to vulnerable road users and seeks to create an
with smaller carbon footprints. These cities environment that encourages people to use public
are creating compact and connected urban transport facilities.
environments where people can live, work, study,
shop, and relax without excessive travel. The 2.1 Core principles
benefits of such agglomeration include more
The concept encompasses and regulates the 6Ds
efficient usage of resources and achieving greater
viz., density, design, diversity, distance,
social inclusion at lower costs. (Rode, P., Heeckt,
destination and demand management through the
C., da Cruz 2019). Similarly, diverse cities like
following core principles:
Ahmedabad, Addis Ababa, and Dar es Salaam
have found ways to translate more compact and
Pedestrian and Non-Motorised Transport
transit-oriented development into their unique
(NMT) Friendly Environment: This principle
context. focuses on complete streets while giving priority
to pedestrians and bicycling. Complete streets
1.1 Improving urban livability offer spaces for all types of road users with
indicators well-defined road geometrics and way finding
facilities. A continuous sidewalk network and
Transit Oriented Development (TOD) encourages
NMT network is pivotal in serving as a safe right
green space per capita along with environmental
of way for pedestrians and for NMT users to
and social sustainability interventions. According
travel between destinations.
to a Brookings Institution study, car-dependent
households emit three times more GHGs as
compared to urban households that walk.
Other global studies show that people who
include a minimum of 30 minutes of active
commuting – walking or cycling – as part of
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
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2.2 Scales of transit oriented Corridor-level TOD planning considers
the role of different transit nodes along
development planning and
one corridor and in the context of transit
implementation network corridors at the city level. It involves
TOD plans can be prepared primarily at four planning, where employment, housing
scales using the above discussed core principles. and service areas will be located within a
These four scales of TOD planning are Region or corridor; thinking about travel patterns and
City Level, Corridor Level, Station Area Level and transportation demand; and how to connect
Project Site Level/ Parcel Level. the planned corridor with other existing
corridors in the city. Planning at the corridor
▪ Region/City Level: This scale focus on
developing and improving urban land across
scale also helps in defining the station area
typologies and identifying their development
the entire administrative boundary of a potential. The outcomes at this scale comprise
region or a city. TOD planning at the regional of strategic plan, station area typologies,
scale includes planning for a region’s entire investment, priorities and phasing strategy.
network of public transit, and considers
regional contexts in the implementation
of TOD, including such factors as overall
regional centers of population and
employment - current or foreseen. Similarly,
TOD planning at a city scale takes a city’s
network of public transit into consideration,
along with city-specific contexts and factors.
The outcomes at this scale comprises of TOD
Policies, Generic DCR Modifications and
Institutional Framework for Implementation.
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
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□ Assessment of preparedness for
undertaking TOD (include defining the
scale and scope as well as identifying
stakeholders).
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
look at state and city level regulations for any necessary amendments that may be required to ensure that state
legislations, development plans, zonal plans, local area plans, development control regulations and budgetary
allocations enable the process of inclusion and implementing of TOD.
The existing regulations may then require revisions, to incorporate the TOD concept and strategies, and might even
possibly necessitate the formulation of new frameworks or policies to facilitate the inclusion. This will also ensure
a coalition, across all tiers of government entities required for catering to all scales of TOD application, i.e. at city/
region level, corridor level, station area level and at site level, are accounted for.
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Review and amendment of various policies, Once this carrying capacity assessment and
regulations and plans, that may be existing or analysis is complete, the city needs to ascertain
under preparation, will include the city master/ the applicability of various TOD principles and
development plans, zonal plans, local area plans review the existing master plan to ascertain the
or any other relevant/related policies. Besides sections where various TOD related clauses will
this, to facilitate the on-ground implementation need inclusion. The city should then formulate
of the city Development Control Regulations the required clauses and codes for including
(DCRs) would require the inclusion of relevant in the master plan either as a separate chapter
codes - either as a corrigendum of new DCRs or as integrated clauses. Post this stage, public
or through revision of the regulations or as the consultations need to be conducted, not only with
urban design guidelines supporting the DCRs. the field experts but with the communities at
large, considering the impact it will bring to the
station area level communities.
3.1 Scenarios to include TOD in
master plans Public or stakeholder consultation is an
important step to ensure the acceptance of
a relatively unknown concept and impart
3.1.1 Scenario 1: Incorporation in the existing clear understanding of the subject. This helps
master/development plan stakeholders understand the concept and
To incorporate TOD as part of the existing applicability comprehensively and not associate
master plan, a city needs to build its capacities with densities only.
to understand transit-oriented development in
its own context. Then the city need to undertake Further, to include and notify TOD related draft,
a details carrying capacity assessment and the city needs to follow the process of master plan
analysis to assess the existing scenario w.r.t periodic review which typically happens every
infrastructure, amenities, urban fabric, existing five to ten years. Below mentioned are examples
transformation trends and any other existing of how Delhi and Ahmedabad have included
or proposed plans like comprehensive mobility TOD in their existing master/development plan
plans, area development plans, transport documents.
strategic plans etc.
Carrying capacity is rooted in the note of “limits to growth”. It can be defined as the maximum
number of people that can be supported by the environment of an area through optimum utilisation
of available resources” (Centre of Excellence for integrated landuse planning and water resource
management, 2011-2012. The carrying capacity analysis is an important stage to assess the given
geography for the “maximums” it can support and yet remain sustainable in its own context. For
incorporating TOD in existing cities, carrying capacity analysis should be done for understanding
the infrastructure provisions and scope of its augmentation, gaps in infrastructure and amenities
and maximum density that can be supported by the given area. This will help to determine the focus
areas of any city w.r.t. TOD principles and will determine the application strategies that will then be
more nuanced, contextual and informed. For example, in a city with defined TOD zones, provision of
blanket FAR increase may not work if the infrastructure provisions of those zones do not support the
added load. Safe access manual: safe access to mass transits in Indian cities and Towards walkable &
sustainable Bengaluru: Development control regulations of Indiranagar metro stations can inform
about the required steps for carrying capacity analysis.
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
Delhi
Ahmedabad
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3.1.2 Scenario 2: Incorporation in the new Amravati, has successfully adopted transit-
master/development plan oriented development in its statutory framework
and has formulated city and area level plans
Cities in the process of preparing their new accordingly. Amravati city has included TOD
master plans shall incorporate the TOD principles principals largely w.r.t. strengthening regional
from the initial stage itself. Even for this scenario linkages as well as creating green transport
stakeholder/public consultation as explained corridors in its perspective plan 2050 - right
in scenario one remains an important step. For from the initial stages of developing the plan.
example, Naya Raipur, a new city that was being These cities are examples of learning, visionary
developed as the administrative capital in the thinking, planning, implementation and
state of Chhattisgarh, adopted the TOD principles execution.
in their development plan. Another new city,
Naya Raipur
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
4.1 Stakeholder roles and This cell shall adopt a one window clearance
responsibilities so that no separate environmental clearance
or pollution control board clearance shall be
4.1.1 Development authority/Planning agency required. This needs to be facilitated through an
MoU between the Development Authority and
The development authority/planning agency concerned Environment Clearance Authority.
needs to lead the entire process. It should oversee
the development and implementation of the TOD These special area cells shall create an online
zone plans. It should establish a special area portal for uploading all necessary formats,
development cell for all TOD projects and appoint regulations circulars, etc. that can be referred to
the Head of Department for the constituted cell by stakeholders at any given point of time. These
who shall be an Additional Commissioner level submissions shall be accepted online based on
personnel. A Director for the department will the given formats and the concerned authority
need to be appointed as well. The authority/ shall update the project details along with the
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status regularly that can be referred to by the The steering committee shall take up the
stakeholders at any given time. approval of projects that are covering an area ≥
50 ha. and or built-up area ≥1,50,000 sq .mtrs.
The special area development cell shall be
responsible for creating a ring fenced fund for The members shall meet once every month for
TOD zones/ station areas/earmarked special assessing and approving scheduled projects.
areas and manage the disbursement along with The steering committee shall be responsible for
conducting public consultations at various stages clarifying or cross-checking any questions that
of the TOD zone plans development depending arise during the assessment of projects from
upon the scale of the project. All city level, the working group and shall call the proposal
corridor level and station area level plans need submitting entity within 15 working days for any
to undergo a public consultation process. At site required clarifications. Post this timeline, the
level, public consultation may be waived as per submission shall be considered complete in all
norms of environmental clearance. respect. The committee shall ensure the approval
is issued within 60 working days from the date
4.1.3 The working group of submission of the proposal to the special area
development cell.
The working group shall be chaired by the
director of the special area development cell. It
shall have representation from ward councillors 4.1.5 Technical Committee
on an invitation basis depending on the nature of The technical committee shall be chaired by
the project. the special area development cell head (an
Additional Commissioner level personnel). It
If any TOD zone has two or more than two ward shall have representation from the development
areas, then the constituted working groups shall authority, UMTA, public works departments,
have representation from ward councillors of all municipal authority, fire department, state
the wards that are part of the TOD Zone. The or centre environment department, pollution
ward councillors shall be only for the working control board, transport department, NHAI (if
group meetings and not for technical committee applicable), flood and irrigation department, and
meetings or steering committee meetings. traffic police.
The representation from the public works The members of the Technical Committee shall
departments, municipal authority, fire meet every week for assessing and approving the
department, state or centre environment scheduled projects and shall be held responsible
department, pollution control board, transport for clarifying or cross-check any questions that
department, NHAI (if applicable), flood and arise during the assessment of projects from the
irrigation department and traffic police shall be working group.
on an invitation basis. The working group can
outsource the preparation of plans through the They shall call the proposal submitting entity
consultant appointing process as followed by the within 15 working days for any required
development authority. clarifications. Post this timeline, the submission
shall be considered complete in all respect.
4.1.4 Steering Committee The committee shall ensure the approval is
issued within 60 working days from the date of
This committee shall be chaired by the Vice-
submission of the proposal to the Special area
Chairman of the development authority/ Planning
development cell.
agency (an IAS officer) and co-chaired by special
area development cell head (an Additional
Commissioner level personnel). It shall have 4.2 Task wise roles and
representation from special area development responsibilities
cell, UMTA, public works departments, This section describes the roles and
municipal authority, fire department, state responsibilities of various stakeholders involved
or centre environment department, pollution in this process as nodal/anchor authority, support
control board, transport department, NHAI (if authority and execution authority. The nodal/
applicable), flood and irrigation department and anchor authority has overall responsibility, the
traffic police. support authority helps the nodal authority and
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
execution authority in the task and the execution each category i.e. mapping, planning & design,
authority is responsible for all day-to-day work implementation and monitoring, and evaluation
and deliveries. The roles and responsibilities for are detailed below.
Mapping*
Stages Roles and responsibilities Nodal/ Anchor Support Authority Execution Authority
Authority
Land u se p lan along • Map land uses and key developments Development Municipal Development authority
with mass transit. • Identify priority transit dem and corridors Authority and Corporation
• Identify activity generators Metro Rail
• Map transit alignment an d station locations corporation
Delineation and • Delineate influence zone of transit station. Special area • Development Working group
notification o f TOD • Notifying influence zones as TOD zones. development cell authority G IS
zones • Develop Plans for TOD zones. cell
• Developing of GIS layouts for TOD zones • Metro rail
• Creation of centralised data base of TOD zones corporation
• Municipal
corporation
*Note: After the mapping and planning & design stages, the responsible authority needs to conduct stakeholder and public consultation for
disseminating the developed plans and received objections/suggestions.
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Implementation
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Inclusion of Transit Oriented Development in City Master Plans: A Guidance Document
ACKNOWLEDGEMENT
Inclusion of Transit Oriented Development in City Master Plans
was prepared under the direction of Shri. Kunal Kumar (Joint
Secretary, Mission Director - Smart Cities Mission, MoHUA). We
would like to acknowledge Dr. O.P. Agarwal (CEO, WRI India),
Madhav Pai (Executive Director, WRI India), and Jaya Dhindhaw
(Director, WRI India) for their support and guidance.
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