Improving land use for better transport

The single-agency approach to city development, coupled with disincentivising unplanned growth, has been adopted internationally. In India, the ball often gets tossed between the two leading heads-the mayor and the municipal commissioner. Bangalore, once India’s poster boy, is no exception-indeed, if anything, it is a shining example of how not to run a city. But things could be changing. PN Sreenivasachary identifies some inherent and manmade problems and indicates how the urban authority he runs is grappling with them.

The traffic situation in Bangalore is one of its key problem areas. Between 1991 and 2005, the number of vehicles registered in Bangalore has gone up from 0.68 million to 2.2 million, which constitutes an overall increase of more than 200 per cent. In the same period, while the annual population growth rate was 3.25 per cent, the growth rate of motor vehicles was 10.8 per cent – three times higher. Today, Bangalore has the highest vehicle growth rate among cities with population of over one million. It takes second place after Delhi for total number of motor vehicles and shares the first place with Delhi for having the largest number of vehicles per person (32 vehicles per 100 people). There is considerable rise in the number of two-wheelers, which constitute about 74 per cent of the total registered motor vehicles. Growth in the number of cars has been more than 10 per cent per year in the last decade. The steep increase in motorised transport can be attributed to the increase in income levels/revenue, the preference for this mode of transport among the 20-30 year age group, and the absence of an adequate public transport system.

Traffic problems in Bangalore occur primarily due to the structure and the configuration of the road network which has major deficiencies, both in terms of road condition and the network structure. The basic structure is radio-concentric with about ten major roads converging on the city’s core area with no transverse links between the radial roads. The roads by themselves are crowded and their convergence creates heavy congestion. In addition, the extensive development of urbanisation and separation of functions increases the dependence on private means of transport. This situation gives an idea of the difficulties the city will face in the near future in the absence of adequate management of transport and traffic.

BDA action plan

Based on the governing concept and directive principles for the master plan and in line with the National Urban Transport Policy, BDA is planning to develop a networked city through a sustainable transport system. This will include development of structured road network with an elevated Core Ring Road around the city’s inner core area to supplement the Outer Ring Road.

In addition, an Intermediate Ring Road will be provided as a loop with separate lanes for buses; organising transport/logistics facilities along Tumkur, Mysore and Hosur roads to provide for equitable distribution of these facilities; developing a multimodal public transport system consisting of road and rail systems, bus rapid transport (BRT), metro, mono and circular rails integrated to provide seamless travel across the city and optimising the land use pattern along the proposed transport networks and transport hubs.

Other major projects include Airport Link Road (Expressway) between the city and the new International Airport at Devanahalli and Commuter Railway System connecting the existing surface railway lines in Bangalore with the proposed Metro Rail Project.

Linking land use and transport

The master plan advocates mixed use of land in specific areas and the land use zonal regulations provide details on the identified areas. While mixed use provides for non-residential activity in residential premises, it aims to balance the socio-economic need for such activity and the environmental impact of the said activity in residential areas. Mixed use allows access to commercial activities in the proximity of the residences and reduces the need for commuting across zones in the city. At the same time, mixed use needs to be regulated in order to manage and mitigate the associated adverse impact related to congestion, increased traffic and increased pressure on civic amenities. In promoting mixed use of land in designated parts of the city, the master plan makes adequate provision for meeting community needs, mitigating environmental impacts and providing for safe and convenient circulation and parking.

Financing mechanics

Financing is an essential component for effective implementation of recommended transport strategy. Hence, adequate provisions should be made by the government in the national budget. Tax levy from private model fuel consumption, land monetisation, (betterment of levy, land value tax, enhanced property tax or grant of development rights) are other modes of raising funds. Financing of new infrastructure projects through capital grants by the Centre (or state), land value capture, restructuring cess charges, introducing congestion pricing, parking fees charged according to land prices etc, are other avenues available.

Recommendations

Selective privatisation of public transport sector can be undertaken either through opening up the market to private firms (who would own, manage, operate and finance their own systems) or by having public agencies contract with private firms to operate services on a system-wide basis, for selective routes, or for selected functions, like maintenance. However, privatisation must be accompanied by strict regulations, performance standards and overall coordination to ensure an integrated network of services.

Integrated land use transport planning, creating world-class mass transit systems, multimodal integration, improving Non Motorised Transport (NMT) facilities, sound policy, a comprehensive urban transport act covering all aspects of urban transport and evolving financing mechanics are some of the measures required to overcome the traffic congestion, pollution and improve travel conditions on Indian roads.

The policy should ensure a three-tier planning process integrating regional, city and local area level plans with five, 10 and 15 years’ perspective. A single agency should be nominated for integrated land use transport planning and private participation should be encouraged. Emphasis should be on complete transport networks and compact city development. Fiscal disincentives should be imposed on cities that grow as urban sprawls. Adopting carrot and stick approach to restrain private vehicle use together with subsidy on public transport for improvement etc, are the need of the hour.

NUTP highlights

National Urban Transport Project (NUTP) is formulated to transform the current urban transport system into a safe, convenient and efficient transport system across all urban areas in India. The objective of NUTP is to ensure safe, affordable, quick, comfortable, reliable and sustainable access for the growing number of city residents to jobs, education, recreation and such other needs within our cities. This is sought to be achieved by:

• Incorporating urban transportation as an important parameter at the urban planning stage rather than being a consequential requirement.
• Encouraging integrated land use and transport planning in all cities so that travel distances are minimised and access to livelihoods, education, and other social needs, especially for the marginal segments of the urban population is improved.
• Improving access of business to markets and the various factors of production
• Bringing about a more equitable allocation of road space with people, rather than vehicles, as its main focus
• Encourage greater use of public transport and non-motorised modes by offering Central financial assistance for the same
• Enabling the establishment of quality focused multimodal public transport systems that are well integrated, providing seamless travel across modes
• Establishing effective regulatory and enforcement mechanisms that allow a level playing field for all operators of transport services and enhanced safety for the transport system users
• Establishing institutional mechanisms for enhanced coordination in the planning and management of transport systems
• Introducing Intelligent Transport Systems for traffic management
• Addressing concerns of road safety and trauma response
• Reducing pollution levels through changes in travelling practices, better enforcement, stricter norms, technological improvements, etc.
• Building capacity (institutional and manpower) to plan for sustainable urban transport and establishing knowledge management system that would service the needs of all urban transport professionals, such as planners, researchers, teachers, students, etc
• Promoting the use of cleaner technologies
• Raising finances, through innovative mechanisms that tap land as a resource, for investments in urban transport infrastructure
• Associating the private sector in activities where their strengths can be beneficially tapped
• Taking up pilot projects that demonstrate the potential of possible best practices in sustainable urban transport

Transportation pattern in Bangalore

• More than 41 per cent of city’s population uses the bus as a means of transportation. Currently, Bangalore Metropolitan Transport Corporation (BMTC) transports 3.15 million passengers per day, representing 55,000 trips per day with 3800 schedules.
• A little less than one-third of the population, 30.4 per cent uses two wheelers and 5 per cent use cars, 1.7 percent use bicycles and 16 percent walk. The rest use other means of transport
• Buses and auto rickshaws provide transportation for 5 out of 10 households Three households out of ten are using personal transport and one household out of five either walk or use cycle
• While public transportation (41 per cent) dominates private motorized transportation (35 per cent), in terms of trips, the latter contribute to 87 per cent of traffic against 2 per cent by public transport.