Delhi Redevelopment and Tod Policy

Abbreviations

DDA – Delhi Development Authority
DMRC – Delhi Metro Rail Corporation
FAR – Floor Area Ratio
L&DO – Land and Development Office
MCD – Municipal Corporation of Delhi
MRTS – Mass Rapid Transit System
PM-UDAY – Pradhan Mantri Unauthorized Colonies in Delhi Awas Adhikar Yojana
RRTS – Regional Rapid Transit System
SWAGATAM – Survey of Villages and Mapping with Improvised Technology in Village Areas
TOD – Transit Oriented Development

Abstract

Over the past few decades, Delhi has experienced abundant population growth, urbanization, transportation and infrastructure. This created several problems relating to infrastructure, traffic congestion, land management and urban planning. To deal with these issues, the Government introduced different redevelopment and urban planning policies to improve the condition of the city and promote better public transport systems.

One of the important policies introduced for this purpose is Transit-Oriented Development (TOD). TOD means planned development around Metro stations and other public transport corridors so that people can easily live, work and travel without depending too much on private vehicles. The policy encourages high-density and mixed-use development near public transport systems and aims to improve walkability, connectivity and public transport use.

This paper studies the concept of TOD and redevelopment in Delhi. It explains the TOD Policy under Master Plan Delhi 2021 and Draft Master Plan Delhi 2041, along with the role of authorities such as DDA, MCD, L&DO and the Revenue Department. The paper also discusses the PM UDAY Scheme and the SWAGATAM portal introduced for regularization of unauthorized colonies in Delhi.

The paper further examines the Karkardooma TOD Project as an example of practical implementation of TOD in Delhi. It highlights several challenges faced during redevelopment, such as land disputes, lack of coordination between government departments, rehabilitation and displacement issues, pressure on infrastructure, parking problems, public resistance and financial difficulties.

The paper concludes that although TOD is an important step towards sustainable urban development, its implementation in Delhi is difficult because of the city’s complex administrative structure and existing urban conditions. Successful redevelopment will require better coordination between authorities, proper rehabilitation of affected residents, stronger infrastructure and a balanced approach that focuses not only on construction and land value but also on public welfare and long-term urban sustainability.

I. Background

Delhi has witnessed rapid urbanisation and population growth over the past few decades, which has placed immense pressure on housing, transportation and urban infrastructure. As a result, a large number of unauthorised colonies and unplanned settlements emerged across the city due to the shortage of affordable and planned housing. These colonies often developed without proper infrastructure, sanctioned layouts or adequate public services, creating serious challenges for urban planning and governance.

To address these issues, the Government of Delhi and the Central Government have introduced various redevelopment and urban planning policies aimed at improving infrastructure, mobility and living conditions in the city. One of the major approaches adopted in recent years is the concept of Transit Oriented Development (TOD), which focuses on planned, high-density and mixed-use development around public transport corridors such as Metro and RRTS networks. The TOD policy aims to reduce dependence on private vehicles, promote walkability and ensure better integration between land use and public transportation.

Alongside TOD, the government has also undertaken measures for the regularisation of unauthorised colonies in Delhi. In 2019, the PM-UDAY Scheme was introduced to provide ownership rights and facilitate transfer and mortgage rights for residents living in unauthorised colonies. However, due to technical and procedural difficulties, including issues relating to layout plans and approvals, the process progressed slowly. In order to simplify the regularisation process, the government introduced the 2026 policy for “Regularisation of Unauthorised Colonies in Delhi on ‘As Is Where Is’ Basis” through the SWAGATAM portal. This framework is expected to facilitate redevelopment and enable better integration of such colonies into Delhi’s broader urban redevelopment and TOD framework.

Ministry of Housing and Urban Affairs, Government of India, Pradhan Mantri Unauthorized Colonies in Delhi Awas Adhikar Yojana (PM-UDAY) Scheme (2019)

Transit-Oriented Development (TOD) provides a legally and policy-relevant framework to achieve this shift by promoting compact, high-density, and well-connected development around transit nodes, thereby encouraging public transport use and reducing reliance on private vehicles. Transit-Oriented Development (TOD) means planning development—big or small—around a public transport hub so that people can easily reach it. The idea is to make access so convenient that people prefer walking and using public transport instead of private vehicles. Its main aim is to reduce dependence on private vehicles by promoting public transport through better design, policies, and enforcement, and to ensure that as many people as possible can access public transport within walking distance by increasing density and improving connectivity.

Further, redevelopment in Delhi has also involved reforms relating to circle rates and property transactions. Earlier, different authorities such as the Delhi Government, L&DO and DDA followed different circle rates and charges. To ensure uniformity, notifications were issued providing that the circle rates notified by the Delhi Government would also apply to DDA and L&DO properties. The redevelopment framework also includes conversion charges, registration fees and other related charges administered through the Revenue Department in Delhi.

2. Practical Vision of Tod Policy

The Transit Oriented Development (TOD) policy means that the Government wants areas near Metro corridors to be developed in a more modern and compact manner so that people can live, work, shop and travel conveniently without depending heavily on private vehicles.

Under this policy:

Land situated within approximately 500 metres on both sides (approx. 5-minute walking distance) of a Metro/MRTS corridor is treated as a TOD Influence Zone Properties located in this zone may receive special development benefits such as permission for taller buildings, increased construction, mixed-use projects containing both residential and commercial activities, and higher population density.

Ministry of Housing and Urban Affairs, Government of India, National Transit Oriented Development (TOD) Policy 4–5 (2017),
At least 65% of the total permissible FAR will have to be used for residential units of less than 100 sq.m. of built-up area, including guest-houses or studio apartments.
Developers are allowed a base FAR of 400 i.e., they can be built on four times the plot area, and this can be increased to 500, or five times the plot area, by paying additional charges.
Minimum of 10% to be set aside for neighborhood commercial use and social amenities, while the remaining 25% can be used for larger homes, office spaces, or similar uses.
The areas closest to Metro stations receive the maximum development benefits, while areas farther away receive comparatively lesser relaxations. However, these benefits are still subject to approved planning rules and cannot override restrictions applicable
to certain protected or sensitive areas such as Lutyens’ Delhi, Civil Lines bungalow areas, monument protected zones, airport flight path areas, environmentally protected zones and seismic/fault line areas. In essence, the policy aims to encourage higher and better planned development near Metro corridors while maintaining necessary safety, heritage and environmental protections.3

The TOD policy divides Metro areas into three categories depending on how close a property is to a Metro station.

The closest area, called the “Intense TOD Zone,” includes land within about 300 meters of a Metro station and up to about 800 meters around major interchange stations where different Metro or rail lines connect. These areas receive the maximum development benefits because they are easily accessible by walking.
The second category, called the “Standard TOD Zone,” generally includes areas within about 800 meters walking distance and up to around 2 kilometers cycling distance from Metro stations, where moderate development benefits are allowed.

3 Delhi Dev. Auth., Master Plan for Delhi–2021: Transit Oriented Development Policy
The third category, called the “TOD Transition Zone,” includes surrounding areas where major redevelopment may not be permitted, but improvements such as better roads, footpaths, public spaces and connectivity can still be made.

The policy also explains that these TOD zones will be measured from the center of each Metro station based on actual travel distance rather than only straight-line distance. Authorities may also study how easy it is for people to walk in the area by considering roads, crossings, foot over bridges and other ground realities. All TOD maps will officially form part of Delhi’s planning records and will be available online for public viewing. Any development project under the TOD policy can dbe approved only after the concerned Metro phase has itself been approved.

3. Project Size Criteria

Redevelopment near Metro stations can happen only in a planned and controlled manner. Before anyone is allowed to construct bigger buildings or use TOD benefits, the Government must first prepare an overall “Influence Zone Plan” for that Metro station area. This is to ensure that proper roads, parking, water supply, public facilities and infrastructure are already planned before allowing higher population and more construction in the area.

The policy also encourages smaller plots to be combined together so that better and more organized projects can be developed, although combining plots is not compulsory. Even smaller plots can still get TOD benefits if the project follows the approved TOD plan. The Government also wants to discourage people or authorities from keeping valuable land vacant or underused in TOD areas merely for future profit. Therefore, penalties such as vacant land tax may be imposed on unused land or where the permitted construction potential is not properly utilized.

Further, if no approved Influence Zone Plan exists for a particular Metro station area, then no individual project can claim TOD benefits. However, once such a plan exists, redevelopment or new projects can be approved if they follow the overall TOD planning framework. Individual buildings will still require approval from the competent authority. In large projects accommodating more than 5000 residents, the developers or resident groups must prepare a detailed layout and services plan in consultation with authorities for final approval. Minor changes from the original TOD plan may also be allowed as long as all TOD rules and regulations are followed.

Delhi Dev. Auth., Draft Master Plan for Delhi–2041 ch. 6, Transit-Oriented Development Framework (2021)

4. Transit Interchange

All transport systems near Metro stations should be properly connected with each other so that people can easily shift from one mode of transport to another without wasting much time. The idea is to make travelling smoother, cheaper and more convenient for the public. The policy gives priority to pedestrians, public transport, cycles, e-rickshaws, auto-rickshaws and other shared transport systems instead of private cars. It also aims to ensure that public transport remains safe, affordable, reliable and easily available for everyone.

The policy further states that areas around Metro stations should be planned in such a way that facilities needed by commuters are available within walking distance. For example, bus stops, vendor areas and cycle rental stations should ideally be within 50 meters of the station exit. Feeder buses should be within about 100 meters, while cycle-rickshaw stands, cycle parking and auto rickshaw stands should be within about 150 meters. Facilities like taxi drop-off points and public toilets may be located slightly farther away. The policy also requires proper lighting, signboards, maps and directions around Metro stations so that people can move safely and easily, especially at night. Further, large parking facilities for private cars are generally discouraged near Metro stations and should mainly be provided only at terminal or major interchange stations for “park and ride” purposes. The overall intention of the policy is to reduce dependence on private vehicles and encourage people to use Metro, buses, walking and shared transport by making all these systems properly connected and convenient.

5. Legal and Policy Framework

Delhi Development Authority (DDA): The Delhi Development Authority introduced updated versions of its Transit-Oriented Development (TOD) Policy in 2015, 2019, and 2021. Through these policies, 12 TOD zones were planned around Metro and Regional Rapid Transit System (RRTS) corridors to encourage better urban growth and improved public transport connectivity. However, even after several years, development work has not commenced at most of these identified locations. The only TOD project where construction activities have begun is the East Delhi Hub at Karkardooma, where the first phase is likely to be completed by the middle of this year.

5 Delhi Dev. Auth., Master Plan for Delhi–2021: Transit Oriented Development Policy paras. 12.20–12.28 (2015)
6 Delhi Dev. Auth., Master Plan for Delhi–2021: Transit Oriented Development Policy paras. 12.29–12.35 (2015)

Master Plan Delhi 2021: Under the Delhi Master Plan 2021, the Transit-Oriented Development (TOD) Policy promotes planned development around metro stations and public transport corridors in Delhi. The main objective of this policy is to reduce dependence on private vehicles and control traffic congestion by encouraging mixed-use development. It also aims to improve connectivity by integrating different modes of transport such as railways, buses, and metro services.

MPD 2041: The Draft Master Plan for Delhi 2041 is a future-oriented policy framework aimed at promoting sustainable and planned urban development in the city. The policy seeks to reduce traffic congestion, pollution, and dependence on private vehicles by encouraging the use of public transport, walking, and cycling. It also promotes higher Floor Area Ratio (FAR), redevelopment of old and underutilized areas, improved last-mile connectivity, and better integration of different transport systems. In addition, the plan focuses on creating more public spaces, efficient land use, modern infrastructure, and compact urban growth to enhance the overall quality of life for residents.

Karkardooma Tod Project

Delhi’s first major Transit-Oriented Development (TOD) project was launched near the Karkardooma Metro Station and is known as the East Delhi Hub. The project is important because it is considered one of India’s earliest large-scale TOD redevelopment models and was planned as a pilot project to demonstrate how TOD policies could be implemented in future metro corridors across Delhi. The project is strategically located near the interchange of the Blue Line and Pink Line of the Delhi Metro, making it an important public transport and connectivity hub. The main aim of the project was to create a compact and sustainable urban area where people could easily access offices, residential spaces, commercial centres and public facilities near metro stations without depending heavily on private vehicles. The project was designed to reduce traffic congestion, encourage walking and public transport use, improve last-mile connectivity and promote environmentally sustainable urban growth.

However, despite being an ambitious project, the East Delhi Hub has faced several delays and implementation challenges. Although the project was proposed between 2007 and 2015, actual construction work started much later because of repeated delays in approvals, planning permissions and coordination among government agencies. Since TOD projects involve multiple authorities such as the Delhi Development Authority, Delhi Metro Rail Corporation, Municipal Corporation of Delhi and other transport and utility departments, lack of proper coordination regarding water supply, sewerage, clearances and infrastructure planning slowed down the project significantly.

Urban planning experts have also criticized the project for not fully following core TOD principles. According to several experts, the development focused more on construction and real-estate expansion rather than creating a truly pedestrian-friendly and mobility-oriented urban space. Concerns were raised regarding inadequate walkability, continued dependence on private vehicles and insufficient integration of public spaces and non-motorized transport facilities. Another major issue was policy inconsistency and frequent changes in project plans, timelines and development strategies over the years. These continuous modifications created uncertainty and affected the smooth implementation of the project. As a result, the East Delhi Hub is often considered a partially delayed or partially unsuccessful TOD project.

Nevertheless, the project remains highly significant because it highlights the practical difficulties involved in implementing Transit-Oriented Development policies in Delhi. It serves as an important case study for understanding challenges relating to urban redevelopment, inter-agency coordination, infrastructure planning and implementation of sustainable transport-oriented urban policies in India.

12 Municipal Corporation Act, No. 66 of 1957, INDIA CODE (1957).
13 Ministry of Housing and Urban Affairs, Government of India, Land & Development Office (L&DO).

6. Challenges in Implementation of Redevelopment and TOD Policy in Delhi

Despite the objectives of sustainable growth and improved urban mobility, the implementation of redevelopment and Transit Oriented Development (TOD) policies in Delhi faces several practical and legal challenges.

a. Land Acquisition and Ownership Issue: One of the major challenges in redevelopment projects is the complexity of land ownership in Delhi. Land is often controlled by multiple agencies such as the Delhi Development Authority (DDA), Municipal Corporation of Delhi (MCD), Land & Development Office (L&DO), Railways and private owners. In many unauthorized colonies, ownership records and title documents are unclear, making redevelopment and planning difficult. Acquisition of land for public infrastructure, roads and transit facilities often leads to disputes and delays.

b. Lack of Coordination Between Authorities: Redevelopment and TOD projects require coordination between multiple government agencies. However, delays frequently occur because approvals relating to land use, building plans, environmental clearances, utilities and registrations are handled by different departments. Lack of coordination between DDA, MCD, L&DO, DMRC and the Revenue Department slows implementation and creates administrative confusion.

c. Redevelopment and Property Disputes: Many redevelopment projects face objections from property owners, resident welfare associations and local stakeholders. Disputes often arise regarding compensation, demolition, redevelopment rights, FAR benefits and allocation of redeveloped units. In unauthorized colonies, unresolved ownership claims further complicate redevelopment processes.

d. Rehabilitation and Displacement Concerns: Large-scale redevelopment may result in displacement of residents, street vendors and economically weaker sections. Many residents fear loss of livelihood, increased living costs and relocation away from their existing communities. Ensuring proper rehabilitation and resettlement remains one of the biggest social challenges in TOD-based redevelopment.

e. Pressure on Existing Infrastructure: TOD policy encourages higher density and increased construction near Metro corridors. However, many areas in Delhi already face pressure on water supply, sewerage, drainage, electricity and public services. Without parallel infrastructure expansion, high-density redevelopment may increase congestion and place additional burden on urban infrastructure.

f. Parking and Traffic Management Issues: Although TOD aims to reduce dependence on private vehicles, many residents in Delhi still rely heavily on personal cars. Reduced parking norms under TOD policies often create concerns regarding parking shortages in redeveloped areas. Improper traffic management may also lead to congestion around Metro stations and commercial hubs.

g. Heritage and Environmental Restrictions: Certain parts of Delhi contain heritage zones, protected monuments, environmentally sensitive areas and airport restriction zones where high-density redevelopment cannot be permitted. Areas such as Lutyens’ Delhi and monument-protected zones remain subject to strict development controls, limiting implementation of TOD benefits in such locations.

h. Resistance from Local Residents: Residents in several areas oppose redevelopment due to concerns relating to demolition, increased density, privacy, traffic and changes in neighborhood character. In some colonies, people fear that high-rise development may reduce open spaces and overburden local facilities. Public resistance and litigation can significantly delay redevelopment projects.

i. Financial and Funding Challenges: TOD and redevelopment projects require large-scale investment in infrastructure, transit systems, public utilities and rehabilitation measures. Financing such projects remains a challenge for both government authorities and private developers. Delays in approvals and legal disputes also increase project costs and reduce investor confidence.

j. Implementation Gap Between Policy and Reality While TOD policies provide a strong planning framework on paper, actual implementation often remains slow due to bureaucratic delays, policy changes and lack of ground-level infrastructure. Projects such as the Karkardooma TOD project demonstrate that practical execution of TOD principles in Delhi continues to face significant challenges despite ambitious planning objectives.

14 Delhi Development Authority, Transit-Oriented Development (TOD) Project: East Delhi Hub, Karkardooma (Delhi Development Authority); Master Plan for Delhi 2021.

Conclusion

In my view, the real challenge in implementing Transit-Oriented Development (TOD) in Delhi is not the absence of policies, but the difficulty of applying those policies within Delhi’s highly complicated urban and administrative structure. On paper, TOD appears to be an ideal model for sustainable development. However, when examined practically, Delhi presents unique realities that make implementation far more difficult than policy documents suggest.

One of the biggest concerns is that redevelopment around Metro corridors directly affects already-settled residential communities, many of which have existed for decades. Unlike newly planned cities, Delhi is densely populated, socially layered and politically sensitive. Any large-scale redevelopment near Metro stations may require demolition, relocation or restructuring of existing settlements, markets and commercial spaces. In such situations, rehabilitation becomes a highly sensitive issue. Merely offering compensation or temporary rent assistance may not be sufficient because displacement also affects people’s livelihoods, social networks, access to schools, local businesses and daily survival systems.

For economically weaker sections, relocation often creates long-term instability rather than development.

Another practical concern is that TOD policies assume that public transport alone can reduce dependence on private vehicles. However, this assumption may not fully reflect Delhi’s ground reality. Many areas still suffer from poor last-mile connectivity, unsafe pedestrian movement, inadequate footpaths and weak feeder transport systems. Unless these issues are solved first, people may continue preferring private vehicles despite living near Metro stations. Therefore, TOD cannot succeed merely through higher FAR and vertical construction; it requires deep improvement in everyday urban mobility. In my opinion, institutional coordination remains the biggest structural obstacle in Delhi’s redevelopment framework. Agencies such as DDA, MCD, DMRC, L&DO, the Revenue Department, transport authorities and utility departments often function independently with overlapping powers and separate approval mechanisms. In practice, even small planning conflicts between these authorities can delay projects for years. The Karkardooma project itself demonstrates that the success of TOD depends less on ambitious announcements and more on efficient inter-departmental functioning. Without a unified decision-making mechanism, TOD projects may continue facing procedural delays and inconsistent implementation.

Further, there is also a risk that TOD may gradually become more real-estate driven than public-interest driven. If redevelopment primarily focuses on commercial gains and high value construction, the original objective of creating inclusive and accessible urban spaces may get diluted. In such a situation, TOD could unintentionally increase inequality by making central urban areas more expensive and inaccessible for lower and middle-income groups.

Therefore, I believe that the future success of TOD in Delhi will depend upon adopting a balanced and people-centric approach rather than a purely infrastructure-centric one. Redevelopment should not only focus on transforming land values and skylines, but also on preserving community stability, affordability and accessibility. Delhi requires redevelopment that is socially sustainable as much as it is economically and environmentally sustainable. Only then can TOD evolve from being merely a planning concept into a genuinely successful urban transformation model.

Delhi Redevelopment and Tod Policy

Abbreviations

Abstract

Delhi Redevelopment and Tod Policy

I. Background

2. Practical Vision of Tod Policy

3. Project Size Criteria

4. Transit Interchange

5. Legal and Policy Framework

Karkardooma Tod Project

6. Challenges in Implementation of Redevelopment and TOD Policy in Delhi

1 - Address

2 - Address

3 - Address

4 - Address

Delhi Redevelopment and Tod Policy

Abbreviations

Abstract

Delhi Redevelopment and Tod Policy

I. Background

2. Practical Vision of Tod Policy

3. Project Size Criteria

4. Transit Interchange

5. Legal and Policy Framework

Karkardooma Tod Project

6. Challenges in Implementation of Redevelopment and TOD Policy in Delhi

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