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    To keep pace with the changing practices of City management globally, it was long felt by the Indore municipal corporation that it ought to adopt some aspects of the work culture of private corporations. This is especially with regard to the maintenance of quality standards.

    The City development Plan of Indore has been prepared in accordance with the chartered prescribed requirements for development plans under Jawaharlal Nehru National Urban renewal mission. The formulation of the City Development Plan was unique. This was largely because it adopted a participatory process involving the elected and the administrative wings of the Corporation, as well as citizens of varied interests, and other organisations concerned with the citys growth and development. It is one of the community oriented plans intended to help guide public policy, investment and decisions through 2021 planning horizon. The CDP is designed to make fuller use of the energy and potential sectors in service delivery and management and in implementing the reform agenda. Accordingly it provides for the participation of business, industry, civic groups and communities in local decision making.

    In the context of the 74th Constitutional Amendment, which gives the urban local bodies more freedom and power in executing their functions, the study has provided IMC invaluable inputs regarding the intricacies of urban governance and finance. Today, when every urban local body is striving to provide its citizens with the best of governance, only those like Indore figure where decentralised efforts in improving the citys living environment are clearly visible and are above all other interests. It is this context that the Indore Municipal Corporation is trying to define its presence in the city. Its strategy is to move from tackling issues to not allowing issues to emerge by means of effective, integrated and phased plans.

    With such a long-term goal to be fulfilled and delivered to its citizens by 2021, the City Development planning process warranted a high level of public participation. The overwhelming response to the workshop as well as the zone level and ward level consultative meetings helped chalk out the purpose of the short-term strategic plan as To foresee an issueless 2021.

    The City Development Plan for Indore deals with a comprehensive, cohesive and concise manner, all the important elements of governance in the form of themes: Urban Growth Management/ Development Planning, Urban Basic Services and Infrastructure, Transportation and Traffic Management, Housing and Slums, Urban Environment, Social Development, Urban Governance and Management and Urban Finance and Management apart from Demographic Trends, Economy Pattern, etc with a long term strategic vision.

    It is the belief of IMC that this effort will bring in a corporate vision and a change that the citizens of Indore will contribute to, and ultimately benefit from.




    We put on record our special thanks to Smt. Uma Shashi Sharma, Mayor, Indore Municipal Corporation, Shri Vivek Agarwal, District collector, Indore, Shri. P. Narahari, Municipal Commissioner, Indore, Mr. Madhu Verma, Chairman Indore Development Authority, Indore and Shri C. B. Singh, C.E.O. Indore Development Authority, Indore for their support and suggestions throughout the preparation of the City Development Plan. They have been instrumental in helping us complete and present this document well ahead of the financial year 2005-06, the starting year of the Plan Period.

    This document is a synthesis of what has been done in the city of Indore over the past and what is going to be done in the future. This process involved extensive gathering of data, information and material from various other organisations and individuals apart from the various departments of the IMC including their Zonal and Ward Offices, all of whom are the planning partners of the city. While compiling this information itself is a time- consuming job, co-ordinating every aspect of this process is the base for the final form of this document and this has been possible only with the special efforts of all the departmental Heads of IMC. We offer special thanks to all others who have remained in the background of this process.

    This final report is the result of draft reports prepared earlier, the review of which was done by each department of IMC. Several officials were involved in this process and they have continuously monitored the progress with their timely reviews and updates. The feedback received during this review process has been tremendously encouraging and our acknowledgements are due to all the high-ranking officials of District Administration, IMC, IDA, MPPWD , Mandi samiti and Other agencies. Inputs for Identification of various projects were given by the various committees at various levels involving District level committee headed by District Collector was a great help in the preparation of Plan. Accordingly, IMC as a Nodal agency for the project and all the Parastatal Agencies like IDA, MPPWD, Mandi samiti, ICTS Ltd, MPHB and Others departments need a special mention.

    It is the involvement of the citizens of Indore through their participation in the Questionnaire Survey that has produced a Development Vision for the City as well as a direction to this emerging concept of the City Development Plan. The process started with the City Development Strategy workshop conducted in December 2005 in Indore and was attended by a large number of representatives from various citizens groups, industry and trade organisations, NGOs, political parties, the elected and administrative wings of the Indore Municipal Corporation and many others who are actively involved in the growth and development of the city.

    Lastly we put on record thanks to all those who have helped us directly or indirectly in preparing this document.




    Smt. Uma Shashi Sharma (Mayor, IMC) Shri. Vivek Aggarwal, IAS District Collector, Indore Shri. Madhu Verma (Chairman IDA) Shri. P. Narahari, IAS (Municipal Commissioner, IMC) Shri. C. B. Singh, (C.E.O., IDA) Shri. S. C. Garg Chief Engineer (West Zone) MPPWD Shri C. M. Shukla (Deputy Collector, Indore) Shri V. P. Kulshrestha Joint Director T&CP





    Shri. P. Narahari, IAS (Municipal Commissioner, IMC) Shri. C. B. Singh, (C.E.O., IDA) Shri Ramesh Bhandari (Dy. Commissioner, IMC) Shri Kumar Purshottam (Dy. Commissioner, IMC) Dr. A. K. Puranik Chief Health Officer, IMC Shri. H. K. Jain City Engineer, IMC Shri. Narendra Tomar City Engineer E&M, IMC Shri. Harbhajan Singh City Engineer Slums, IMC Shri. J.P. Pathak City Engineer Water Supply & Sewerage, IMC Shri. Prabash Sankhala Project manager Sewerage, IMC Shri. Anoop Goyal Executive Engineer, IMC Shri. R.S. Jha Account Officer, IMC Shri P.K. Mistri Chief Engineer, IDA Shri. D. L. Goyal Chief City Planner, IDA Shri S.R. Pawar Dy. Housing Commissioner, MPHB Shri. B. N. Shrivastava Executive Engineer, MPPWD Shri. Vijay Marathe OIC Planning, IDA


    Mehta and Associates Hitendra Mehta Jitendra Mehta Rajeev Bangar Ajit Mali Ms. Neli Kools Pawan Kabra Yogendra Patidar Anand Joshi Deepak K. Parmar For Capacity Building & Reforms City Managers Association M.P Ashish Agarawal Renu Handa Anubhav Shrivastav Financial Operating Plan Accounts Department IMC



    Preface II Acknowledgement III CDP Advisory IV Project Team V Planning Team V Contents VI Abbreviations Acronyms and Key Terms X List of Tables XII List of Illustrations XV List of Maps XVI SECTION I INTRODUCTION 1.0 Introduction

    1.1 Backgrounds 1 1.2 City Development Planning 1 1.3 Previous Planning Interventions in Indore 3 1.4 Approach towards the Indore City Development Plan 4 1.5 Report Structure 9

    2.0 Implementing Agencies 2.1 Urban Local Bodies and New Context of Local Government 10 2.2 Indore Municipal Corporation- Nodal Agency 11 2.3 Parastatal Agencies 18


    3.1 Historical Background 20 3.2 Location and Linkages 22 3.3 Physical and Geographical Character 22 3.4 Natural Drainage 23 3.5 Regional Setting and Growth Pattern 23

    4.0 Demographic and Social Profile

    4.1 Population Growth Trends 25 4.2 Population Density 26 4.3 Literacy 27 4.4 Sex Ratio 27 4.5 Age Structure of the Population 27 4.6 Social Structure 28 4.7 Conclusions 28

    5.0 Economic Base

    5.1 Registered Establishment 30 5.2 Trade and Commerce 30 5.3 Industries 31 5.4 Employment 32 5.5 Income Profile 33 5.6 Conclusion 34




    6.0 Land Use 6.1 Land Use Classifications 35 6.2 Existing Land Use 2001 35 6.3. Conclusion 36

    7.0 Infrastructure and Environment 7.1 Water supply 37

    7.2 Sewerage 41 7.3 Solid Waste Management 43

    7.4. Storm Water Drainage 45 7.5 Transport System 46 7.6 Environment 48 7.7 Conclusion 55

    8.0 Housing and Slums 8.1 Housing Situation in Indore 57 8.2 Urban Poverty 60 8.3 Slums in Indore 60 8.4 Characteristic of Slums 62 8.5 Earlier Public Interventions of Slum Improvements 68 8.6 Conclusion 70

    9.0 Inner City 9.1 Background 83 9.2 Inner City Area 83 9.3 Problem of Inner City 84

    10.0 Urban Heritage 10.1 Urban Heritage 85 11.0 Organization, Institutional Setup & Finance

    11.1 11.1.1 Introduction 87

    11.1.2 Institutions and Organization 87 11.1.3 Area of Fragmentation 89 11.1.4a Organization Structure 91 11.1.4b Executive Wing 94

    11.1.4c Zonal Offices 94 11.1.4d Municipal Financial Powers 95

    11.1.5 Key Observations and Issues 96 11.1.6 Strategic Elements for Program Design 97

    11.2 Indore Municipal Corporation Governance Overview 98 11.3 Urban Governance Issues and Strategies 100

    12.0 Problems and Issues 12.1 Water Supply 104 12.2 Sewerage 104 12.3 Solid Waste Management 104 12.4 Storm Water Drainage 105 12.5 Transportation 105 12.6 Environment 106 12.7 Inner City Area 106 12.8 Urban Heritage 106



    12.9 Slums 106 12.10 Strengths of City 107 12.11 Constraints of the City 107


    13.0 Vision and Goals 13.1 Vision of City 108 13.2 Goals 110

    SECTION IV CITY INVESTMENT PLAN 14.0 City Investment Plan - Strategies and Action Plan

    14.1 City Investment Plan 114 14.2 Urban Planning & Growth Management- Strategies & Action Plan 114 14.3 Urban Renewal Strategies and Action Plan 115 14.4 Water Supply Strategies and Action Plan 117 14.5 Sewerage - Strategies and Action Plan 119 14.6 Storm Water DrainageStrategies and Action Plan 122 14.7 Solid Waste ManagementStrategies and Action Plan 123 14.8 Transport System (Roads, Bridges, Traffic Management, Parking

    Lots, Goods And Mass Transport) - Strategies And Action 125 14.9 Housing for Urban Poor Strategies & Action Plan 136 14.10 Environment -Strategies & Action Plan 138 14.11 Heritage Structure-Strategies & Action Plan 140 14.12 Special Projects Strategies and Action Plan 141

    15.0 Reforms and Capacity Building

    15.1 Agenda 145 15.2 GIS Application 145 15.3 Capacity Building 151 15.4 The Training Perspective 154 15.5 Recommendations and Implementation Strategy 157 15.6 Action Plan 159


    16.1 Strategy 164 16.2 Financial Operating Plan 165 16.3 Forecast of Revenue Expenditure 166 16.4 Forecast of Capital Income and Expenditure 167 16.5 Income Expected from Projects identified under JNNURM 167 16.6 Projects Identification Under JNNURM 169 16.7 Financial Operating Plan for IMC(FOP) Results 169 16.8 Fund requirement by IMC and other Agencies 170



    AC Asbestos Cement ADB Asian Development Bank ASI Archaeological Survey of India BDO Block Development Officer BMW Bio Medical Waste BPL Below Poverty Line CAA Constitutional Amendment Act CBD Central Business District CDP City Development Plan CDS Community Development Societies CI Cost Iron CIP City Investment Plan COD Chemical Oxygen Demand DI Ductile Iron DUDA District Urban Development Authority EDP Electronic Data Processing EIUS Environmental Improvement of Urban Slums EWS Economically Weaker Section FOB Foot Over Bridges GDP Gross Domestic Product GI Galvanic Iron GOI Govt. of India ha. Hectare HIG High Income Group IDA Indore Development Authority IDP Indore Development Plan IMC Indore Municipal Corporation JNNURM Jhawhar Lal National Urban Renewal Mission LIG Lower Income Group Lcpd Liters Capita per Day MC Municipal Corporation MGD Million Gallons per Day MIC Mayor-in-Council MIG Medal Income Group MLD Million Letter Per Day M.P Madhya Pradesh MPHB Madhya Pradesh Housing Board MPPCB Madhya Pradesh Pollution Control Board MIS Management Information System MPTNCP Madhya Pradesh Town and Country Planning MS Mild Still MSL Mean See Level MSW Municipal Solid Waste Mos Marginal Open Space MoU Memorandum of Understanding MPSRTC Madhya Pradesh State Regional Transport Corporation MT Metric Tone NGOs Non Governmental Organization NRW Non Revenue Water NTACH Indian National Trust for Art and Cultural Heritage PCU Passenger Car Unit PHED Public Health Engineering Department




    PPOUL Prevention of Pollution of Upper Lake PPTA Preliminary Project Technical Assistance PSC Pubic Service Commission PSP Public and Semi Public PWD Public Work Department ROW Right of Way SC Schedule Caste SFC State Finance Commission SPM Suspended Particulate Matter SPS Sewage Pumping Station Sq Square ST Schedule Tribe STPs Sewage Treatment Plants SWM Solid Waste Management ULBs Urban Local Bodys VAMBAY Valmiki Ambedkar Awas Yojna UPAP Urban Poverty Alleviation Program WTP Water Treatment Plant Semi pucca semi permanent

    Pucca permanent

    Rickshaw 3-wheeler motorized vehicle

    Nagar sewa Public buses that run within the city

    Human poverty The lack of essential human capabilities, notably literacy and nutrition

    Income poverty The lack of sufficient income to meet minimum consumption

    Patta Slums notified in Madhya Pradesh Gazette under Madhya Pradesh

    Patta Act.



    SECTION I INTRODUCTION 1.0 Introduction 2.0 Implementing Agencies

    Tab. 2.1 Structure of Deliberative Wing of IMC 13 Tab. 2.2 Indore Municipal Corporation Management Team 13 Tab. 2.3 Distribution of wards in Each Zone of Indore Municipal Corporation 15 Tab. 2.4 Zonal Administrations 16


    Tab. 3.1 Mean Monthly Temperature Recorded in different Seasons 23 Tab. 3.1 Growth of Indore Planning Area 1975-2002 24

    4.0 Demographic and Social Profile Tab. 4.1 Population Trends 1901- 2001 Indore Municipal Area 25 Tab. 4.2 Population Trends in Indore Planning Area 1971-2001 25 Tab. 4.3 Population projections for year 2011 and 2021 26 Tab. 4.4 Ward wise Population and Density 26 Tab. 4.5 Literacy Rate Comparison 27 Tab. 4.6 Age Structure of the Population 2001 28 Tab. 4.7 Cast Structure 28

    5.0 Economic Base Tab. 5.1 Growth trends in Work Force Participation, Indore 29 Tab. 5.2 Trend in Occupational Structure, Indore 29 Tab. 5.3 Commercial Establishments Indore 30 Tab. 5.4 Commercial Establishments Indore 30 Tab. 5.5 Commercial Establishments Indore 31 Tab. 5.6 Commercial Establishments Indore 31 Tab. 5.7 Summery of Employment by Income Group 32 Tab. 5.8 Summery of Employment by Income Group 33 Tab. 5.9 Summery of Employment by Income Group 33

    6.0 Land Use Tab. 6.1 Status of Indore Planning Area 36 Tab. 6.2 Existing Land use 2001 36

    7.0 Infrastructure and Environment Tab. 7.1 Status of Indore Planning Area 37 Tab. 7.2 Water Reservoirs 38 Tab. 7.3 Water Distribution 39 Tab. 7.4 Operation and Maintenance Cost 40 Tab. 7.5 Diameter wise Break up of Existing Sewerage System 42 Tab. 7.6 Diameter wise Break up of Sewerage System Laid by IDA 42 Tab. 7.7 Areas other than Municipal limits Connected to the Sewerage System 43 Tab. 7.8 Ward wise Solid Waste Generation and Collection 43 Tab. 7.9 Ward wise Biomedical Waste Generation and Collection 44 Tab. 7.10 Strom Water Discharge in River 46




    Tab. 7.11 Growth Trend of Registered Vehicles in Indore District 47 Tab. 7.12 Growth Trend of Registered Vehicles in Indore District 48 Tab. 7.13 Growth Trend of Registered Vehicles in Indore District 48

    Tab. 7.14 Road Accidents Trend in Indore 48 Tab. 7.15 Changes in the Ambient Air Quality in Indore 50 Tab. 7.16 SPM Respirable Dust Concentration at Indore 50 Tab. 7.17 Average Particulates in Ambient air Along the Roadsides at the Respirable Zones 51 Tab. 7.18 Surface Water Quality in Khan River Indore 51 Tab. 7.19 Ground water Quality (Month- May 2001) 52 Tab .7.20 Surface Water Quality (Month- May 2001) 53

    8.0 Housing and Slums Tab. 8.1 Housing Need Stock and Shortage during different Period 57 Tab. 8.2 Household Profile 59 Tab. 8.3 Slum Population in Indore City 61 Tab. 8.4.Slums Notified by Madhya Pradesh (Slum Clearance and Improvement) Act

    on 25-5-1999 63 Tab. 8.5 List Slums Developed in ODA Project, Slums Notified Under Gezzette by

    Municipal Corporation and Slums Resettled by Administration 72

    9.0 Inner City Tab. 9.1 Core Area Land Use Break Up 84

    10.0 Urban Heritage 11.0 City Governance & Institutional Setup Tab. 11-1 Agency responsibilities for City Services in Indore 90

    Tab. 11-2 Financial Powers 95 Tab. 11-3 Urban Governance and Institutional Strengthening Strategies 101

    12.0 Problem and Issues


    13.0 Vision and Goals Tab. 13.2.1 Water Supply 110 Tab. 13.2.2 Sewerage 111 Tab. 13.2.3 Storm Water Drainage 111 Tab. 13.2.4 Solid Waste Management 111 Tab. 13.2.5 Roads And Transports 112 Tab. 13.2.6 Slum Rehabilitation and Basic Services to Urban poor 112


    14.0 City Investment Plan - Strategies and Action Plan Tab 14.1 Sub Mission For Urban Infrastructure And Governance 116 Tab 14.2 Water Supply 118 Tab 14.3 Sewerage 120 Tab 14.4 Sub Mission For Urban Infrastructure And Governance 122 Tab 14.5 Solid Waste Management 124 Tab 14.6 Roads And Bridges (IMC) 127



    Tab 14.7 Widening Of Existing Bridges, Construction Of New River Bridges, Construction Of Rob, Flyovers And Grade Separators (IMC) 132

    Tab 14.8 Sub Mission For Urban Infrastructure And Governance 133 Tab 14.9 Slum Rehabilitation/Relocation And Slum Area Improvement 137 Tab 14.10 Environmental Up gradation, City Beautification And Urban Forestry 139 Tab 14.11 Heritage Structures 141

    15.0 Reforms and Capacity Building Tab 15.1 Present status of various E-governance applications 146 Tab 15.2 Departmental Concerns 152 Tab 15.3 Action Plan With Verifiable Indicators 154 Tab 15.4 List of Training Programs for Municipal Personnel 159 Tab 15.5 Broad Training Process Flow 161

    SECTION V Financial Operation Plan

    16.0 Financial operating plan Tab 16.1 Assumption adopted for forecasting realization under various heads 166 Tab 16.2 Assumption adopted for forecasting items of Revenue expenditure 166 Tab 16.3 Assumption adopted for forecasting items of Capital Income and

    Expenditure 168




    Illust. 1.1 Process of Formulating a City Development Plan 2 Illust. 1.2 City Development Plan Preparation 8


    Illust. 3.1 H. H. Maharajadhiraja Shrimant Malhar Rao I Holkar I Bahadur 20 1733 - 1766 Illust. 3.2 H.H. Maharani Shrimant Akhand Soubgahyavati Ahilya Bai Sahiba. 21 1767 - 1795

    Illust. 4.1 Age Structure of the Population 2001 28 Illust. 4.2 Caste Structure 28 Illust. 5.1 Trend in Occupational Structure, Indore 30 Illust. 6.1 Status of Indore Planning Area 36 Illust. 6.2. Land Use Break Up Indore Planning Area 2001 36

    Illust. 7.1 Traffic Load on Various City Roads 47 Illust. 7.2 Growth Trend of Registered Vehicles in Indore District 48 Illust. 7.3 Population Growth V/S Green Spaces in Indore City 54

    Illust. 8.1 Decadal Increase in Housing Shortage 58 Illust. 8.2 Distribution of Population in Different Subsystems 58 Illust. 8.3 Area V/s Population in Different Subsystems 58 Illust. 8.4 Household Income Groups in Indore 59 Illust. 9.1.Core Area Land Use Break Up 84 Illust 11.1 Indore Municipal Corporation 90 Illust.11.2 The organisation structure of the Deliberative Wing of IMC 93 Illust.11.3 The organisation structure of the Executive Wing of IMC 93



    15.0 Reforms and Capacity Building Illust. 15.1 Simple Model of Training Process 156 Illust. 15.2 Elaborate Model of Training Process 156 Illust. 15.3 Training Detail 162





    Map: Location Map Map: Indore Planning Region Map: River Basin Map: Physical Map Map: River Khan & Its Tributaries Map: Contour Map Map: Evolution of Indore Map: Existing Land Use 2001 Map: Land Use as Per Indore Development Plan 1991 Map: Indore Municipal Limits Map: Ward wise Population Density Map: Existing Industries Map: Old Water Supply System Network Map: Narmada Water Supply System Map: Ward Wise Distribution of Tube Wells / Hand Pumps/ PVC Tanks Map: Proposed Drainage Sewerage Project Map: Open Sewer out fall / Proposed Sewage Treatment Plant Map: Indore Vikas Bond Roads & Bridges Map: Transport Networks Map: Public Transport Routes (TEMPO) Map: Public Transport Routes (MINI Bus) Map: Street Lighting Map: Air Pollution and Traffic Map: Slums Map: Government / Semi Government Offices Map: Historical Places / Religious Places




    Most of the developing countries are facing problems of rapid urbanisation. India's level of urbanization is projected to rise from about 28 per cent in 2001 to 36 per cent by 2026 - when the total urban population could number roughly half a billion. In 2001 there were thirty-five 'million plus' cities, it seems likely that there will be nearly seventy by 2026. And because the urban population is becoming increasingly concentrated, these seventy cities could contain around half of all the country's urban inhabitants. Delhi and Greater Mumbai will probably each contain thirty million people.

    Cities and towns have a vital role in Indias socio-economic transformation and change. Apart from their contribution to the countrys gross domestic product (GDP), which is currently placed at about 50-55 per cent, and their growing role in the global markets, cities in India are the center-point of innovations and hub of many activities. At the same time, most cities and towns are severely stressed in terms of infrastructure and service availability. In 2001, 50.3 per cent of urban households had no piped water within premises, and 44 per cent of them were devoid of sanitation facilities. Even with a relatively high economic growth registered during the 1990s, 23.6 per cent of the countrys urban population continued to be below the poverty line. According to the Census of India 2001, 14.12 per cent of urban population lives in slums, with a significant proportion of it without access to even the most basic services. The inner areas of cities face widespread dereliction, decadence, and neglect, with significant negative economic consequences.

    The studies on various human settlement analysis shows that the rapid and haphazard growth of urban sprawl and

    increasing population pressure is resulting in deterioration of infrastructure facilities, loss of productive agricultural lands, green open spaces, loss of surface water bodies, depletion of ground water aquifer zones, air pollution, water contamination, health hazards and many micro-climatic changes. Therefore, the environmentally compatible urban planning must begin with a comprehensive look on the use of land. It is in this regard, the development plan or Master Plan of the city must be reviewed every 5 to 10 years to take care of the population pressure and provide better quality of life in the city and its environs.

    The Master Plan is a legal document specifying the allocation of broad land use in the city for the future development. Such plans propose the new areas for the development as well as extension of urban infrastructure.

    In the preparation of an environmentally compatible urban development plan, it is a prerequisite to understand linkages and interactions that exist between different components of the urban environment. Secondly, the data collected on different aspects of the urban environment has to be translated into useful information for the purpose of urban development. Thirdly, there is also a need to aggregate this information according to administrative/natural and hierarchical units.

    A City Development Plan (CDP) is both a perspective and a vision for the future development of a city. It presents the current stage of the citys development where are we now? It sets out the directions of change where do we want to go? It identifies the thrust areas what do we need to address on a priority basis? It also suggests alternative routes, strategies, and interventions for bringing about the change what interventions do we make in order to attain the vision?


    1 Introduction1.1. Background

    1.2. City Development Planning



    Illust. 1.1 Process of Formulating a City Development Plan

    Source; As Suggested by JNNURM Tool Kit



    It provides a framework and vision within which projects need to be identified and implemented. It establishes a logical and consistent framework for evaluation of investment decisions.

    A CDP is anchored on the Jawaharlal Nehru National Urban Renewal Mission (JNNURM) goal of creating economically productive, efficient, equitable and responsive cities. As a step to achieving this goal, the CDP focuses on the development of economic and social infrastructure, strategies that deal specifically with issues affecting the urban poor, strengthening of municipal governments and their financial accounting and budgeting systems and procedures, creation of structures for bringing in accountability and transparency, and elimination of legal and other bottlenecks that have stifled the land and housing markets. It provides a basis for cities to undertake urban sector reforms that help direct investment into city-based infrastructure. Preparation of a CDP is a multi-stage exercise, involving:

    (i) In-depth analysis of the existing situation, covering the demographic, economic, financial, infrastructure, physical, environmental and institutional aspects: The purpose of this stage is to review and analyse the current status of the city with regard to the state of its development, systems and procedures, as equally its institutional and financial context. This stage is meant to identify the strengths and weaknesses in the citys development and to provide an understanding of what impedes service delivery and management within the existing set-up and what contributes to better service provision. This stage offers an opportunity to bring out the unique features of the city that may distinguish it from other cities.

    (ii) Development of a perspective and a vision of the city: Using the results of the first stage of analysis combined with consultations with key stakeholders and civil society, this stage is meant to develop a vision for the future development a shared vision of where the city wants to be in a medium-term perspective. It is a

    collective vision of the future direction expressed in terms of expectations and often-even goals, such as water for all.

    (iii) Formulating a strategy for bridging the gap between where the city is and where it wishes to go: It is in this stage that strategies and interventions are identified for attaining the vision and future development perspectives. This stage is used to first identify the options and strategies and second, to evaluate the strategies from the perspective of their contribution to the goals and objectives of the JNNURM. The chosen strategies are translated into programmes and projects in this stage. This is the phase where the city needs to decide which programmes would contribute most to the vision and mediumterm perspectives. It is at this stage where criteria are selected, with appropriate consultative processes, for prioritizing the strategies, programmes and projects.

    (iv) Preparing a City Investment Plan (CIP) and a financing strategy: An investment plan and a financing strategy are an integral part of the CDP. It is an aggregate investment plan indicating, for instance, the cost involved in providing 24/7 water supply from the present level of 10/7; it is not a financial estimate of a project for increasing the capacity of a water plant from 1,00,000 MLD to 1,50,000 MLD. Crucial to this stage is a plan that considers the alternative sources of financing the vision and the accompanying strategy and programmes.

    Unlike other cities in the Madhya Pradesh state or else where in the country, Indore had the benefit of consciousness of Holkars and the civic authorities towards proper and planned development of the city. Some of the significant efforts made in the past are discussed below.

    In 1912 Shri H.V. Lancaster was invited, by the local body to advice in respect of expansion of the city and improvement in the sanitary conditions in residential areas.

    1.3. Previous Planning Interventions in Indore



    In 1918 Sir Patrick Geddes was invited by Maharaja Tukoji Rao Holker to advise the Government and local body regarding improvement and expansion of the city. He prepared drainage and water supply schemes, Industrial Development schemes, Suburban Development, Housing Schemes and Landscaping etc.

    Sir Geddes advocated segregation of working area (particularly industries) from residential area and yet maintains work place and Folk place relationship. Development of Industrial area on the Northeastern side of the city and residential area for cotton and other industrial workers within distance of one kilometer from these industries is the most valuable scheme implemented on his advice. This has given a proper direction for industrial development in the city.

    Sir Geddes suggested planting of flowering trees in suitable position and roadside trees in the form of boulevard along the Western and Eastern banks of the river, which flows in the center of the city. Unfortunately this scheme has not been implemented and most of the space is now occupied by jhuggis and slums. In 1938 Shri R. H. V. Stamper, consulting surveyor to the Government of Bombay was invited by Holkars to seek his advice for improvement and expansion of the city on proper lines. His report was devoted to improvement of circulation pattern, although he advised on development of some residential colonies also.

    Shri Stamper suggested seven traffic routes to inter connect different localities and provide for heavy intra-city and inter-city traffic. These traffic routes were named as Route No. 1, 11, III, IV, V VI and VII. Out of the seven traffic routes, Route No. I and Route No. 11, now known as Subhash Marg and Jawahar Marg, were constructed after acquisition of urban property along these routes. These now form lifelines of the city. Indore would have been a city of chaos without these two important roads. Besides these T. Route No. IV and VI have also been constructed in parts. Scheme for construction of T Route No. III by Town

    Improvement Trust is in progress. The circulation plan of the city will have to take note of this pattern and incorporate it as far as possible in the Development plan.

    Indore Development Plan (1974-1991) was published and adopted under 18 & 19 of Town & Country Planning Organisation Act - 1973. The plan envisaged planning area was 21,410 ha. 12,145 ha. were provided under different uses for 12.5 lakhs population.

    The CDP will be the IMCs operating blueprint for achieving greater efficiencies and to deliver the highest possible level of service to the community. As mentioned earlier, the plan is developed on the basis of extensive consultations and a participatory process that began in Aug 2005, through the initiative of the City Development Plan under the JNNURM Programme.

    The CDP focuses on the key issues identified under the JNNURM. This is the first plan of its kind for the city. Through the plan the citizens of Indore will share a vision for the future and identify issues in various sectors a city development in the short, medium and long run. This establishes priorities and investment decisions can be made for the desired future when the next CDP is prepared.

    The City Development Plan will be focusing on the components to which JNNURM will be providing its assistance. The City Development Plan is prepared taking in to view the deficiencies and requirements of the city till 2021. It targets for a sustainable and harmonious development of the city of Indore, to be fulfilled by 2021. This will indirectly phase the development period in two stages of seven years each. The first seven years will be focusing upon the utilization of funds under JNNURM as

    1.4. Approach to Indore City Development Plan



    envisaged by JNNURM and expecting the same for next 7 years.

    1.4.1. Planning Process The various steps undertaken for the formulation of the Indore City Development Plan are discussed below

    Step 1: In depth analysis of the existing situation of the city under following sectors

    City Profile Demographic and Social Profile Economic base. Land Use Infrastructure and Environment Housing and Slums Inner City and Heritage Conservation Organization, institutional setup and

    Governance. Step 2: Identification of the Problems Issues and Potentials regarding the Sectors discussed in previous step consolidating the Problems Issues and Potentials as per the priorities to the different Sectors. Special priority will be given to the components under JNNURM. Step 3: Deciding vision for development of the City with the sectoral goals and objectives by taking into consideration the development perspective of the city. Step 4: Formulating the Strategy for filling up the Sectoral deficiencies as well as meeting the future requirements of the city and correlating it with City investment Plan and Financial Strategy. This will involve enlisting of the projects as per the priorities identified in the step 2 and phasing them in suitably in the plan period. 1.4.2. Plan Formulation The IMC has been involved in development of Indore and providing the Basic infrastructure facilities as per section 66 of Municipal Corporation Act 1956. For this purpose IMC has been conducting studies to assess the current situation and future demand, to name a few Comprehensive traffic & Transportation study by C.E.S in 2004, studies of the slums in the city under Slum less Indore Project for Urban poor by

    Mehta & associates, Indore in 2004, Indore sewerage Project by Montgomery Watson in 2002, Settling of Municipal Waste Process complex by ILFS in 2005, Energy Saving for street Lighting and tension Pumps by Asian Electronics in 2003, Capacity enhancement of Yeshwant Sagar Dam by Water & Power Consultancy in 2003. Similar studies for Water Supply, Solid Waste Management and Drainage by consultants of Asian Development Bank (ADB) in 2002. Thus IMC has wide database and deep understanding of the shortcomings and the necessities of the city.

    For the formulation of the CDP, the future vision of the city was developed through a participatory approach by the IMC, initiated in Aug. 2005. Broadly, IMC has conducted this in following ways:

    The preparation specifically for CDP under JNNURM started on Aug. 2005. For the purpose of this, meetings were conducted with various departments like Road and Bridge Cell, Health, Sanitation and Water Supply Department, Revenue Deptt., Garden and Park Department etc. and the 12 zones of IMC. The Suggestions and proposals from the officers and HODs of the various departments were compiled and presented before the Mayor in Council.

    At the Zonal level, IMC had conducted meetings with the Municipal Councillors and identified stakeholders ward wise. A list of the stakeholders presents in the meeting(s) and importantly the minutes of the above meeting(s) at zonal level have been documented. The documentation included the photography and videography of these deliberations.

    Responsibilities were assigned to the various zones and departments of IMC for the distribution and collection of questionnaires from the identified stakeholders. Owing the responses found from the various stakeholders in the submission of the duly filled in questionnaire, efforts are underway to collect the filled-in questionnaires.



    The responses to the questionnaires were fed into the computer of the IMC. The evaluation and analysis of the suggestions in the questionnaires received till date has being carried out to attain the satisfaction level regarding the existing services provided by IMC

    IMC is creating an effective database of the detailed existing services to work out the CDP. It will also be helpful to know the present scenario of the different services provided by the corporation, thereby framing intrinsic and concise City Development Plan.

    Though the members of the IMC Council are Corporators and Public representatives, to encourage participatory approach IMC conducted Workshop from 27.12.2005 to 28.12.2005. The workshop was attended by public representatives, technocrats, citizens, government and nongovernmental organisations. The details of the workshops and the suggestions are enclosed in the Annexure. An open house discussion was also initiated by IMC. The Outcome i.e. the suggestions of the people were incorporated in the CDP.

    Key Stakeholders and Planning Partners:

    Members of Parliament, Members of Legislative Assembly Elected Members of Urban local Body and Other elected representatives

    Representatives of Government Departments and Parastatal Agencies from the City

    The Citys Community Planning Partners comprising of NGOs and CBOs

    Corporate Bodies in Industrial, Commerce and Other Sectors

    1.4.3 Plan Approval The Draft of the CDP was again reviewed by the respective department of the IMC on 05.01.2006 and presented before the IMC Council on 12.01.2006 The council approved the Draft CDP on 12.01.2006 vide resolution 176 (refer Annexure). Therefore the draft of the CDP was sent for approval to the State Level Nodal Agency

    (SLNA), and it was approved by the SLNA under JNNURM on 28.01.2006 (refer Annexure)

    The plan will be revised regularly and the corporation will prepare annual progress reports on plan implementation including proposed development works. This will be supported by annual departmental community surveys on the services that IMC provides to its citizens.

    The plan will also propose a Financial Operating Plan for 2006-2021 based on the long-term financial vision and identify high priority investment requirements. It will also focus on capacity building of the institutional, financial and technical aspects of the corporation to strengthen urban services delivery.

    1.4.4 Plan Implementation The implementation of the plan will be successful when the resource allocation decisions are made in a coordinated manner with the other agencies involved. The investment strategies will be linked to achieve the plans goals

    For certain sectors like transport and communication, development of outgrowths, etc, which are not under the purview of IMC directly, the strategies under such themes is to identify other agencies like IDA, MPPWD, MPHB, Mandi Samiti, ICTS Ltd, non-profit organizations and citizen groups with whom the corporation will work in a coordinated manner to support an array of activities and services. In such cases the primary responsibility vests with the other agencies, the corporation will take up the secondary responsibility.

    1.4.5 Plan Monitoring and Evaluation Regular monitoring and annual evaluation of plan implementation is an envisaged essential. The corporation perceives that Seeing is Believing and hence the plan implementation will be regularly monitored by way of site visits by the concerned officials. Sets of sustainability indicators are developed under each sector to help



    constant monitoring of the resultant changes in the social, economic and environmental set up of the city.

    While monitoring and evaluation are carried out in concordance, annual evaluation reports will be prepared by each division of the corporation and compiled into an annual progress report of the CDP. This will help ensure consistency within and among the plan themes. The evaluation reports will lead to both plan amendments and improved ability to predict future scenarios. The corporation will strive to find improved means to communicate with its citizens and involve them in planning and decision-making. Progress in this direction has already been achieved through its online communication method.

    1.4.6 Plan Review Plan review will be the final stage of the CDP process that sets agenda for the following CDP. Since the plan period extends for a period of seven years, it is essential that a critical review of the current plans success and failures with regard to the goals and objectives of the CDP as well as with those of the long term strategic plan is carried out at the end of the five year plan period. Plan reviews will also be carried out annually based on the extent of implementation evaluated through progress reports.



    Existing Situation Review & Defining City Vision & Goals and Arriving at City Development Plan

    Review of current service delivery levels from citizens perspective Agenda note preparation on visions and goals of the CDP in consultation with planning partners Review of state and local level organisations/ institutional operations

    Draft Plan Formulation and Identification of Capital Improvement Programme

    Address issues and identify future requirements within plan period Identify tasks to address strategies formulated to cater to future needs. Identify institutions involved

    Plan Review

    Annual reports and progress assessments Identification of shortcomings Areas of focus for forthcoming CDP.

    Plan Monitoring and Evaluation

    Review of sustainability indicators Identification of key areas of deficiencies

    Public Consultation, Plan Approval and Finalisation

    Critical review and approval of plan by citizen groups/ public representatives, elected councilors and l i

    Draft CDP

    (City Vision and Goals)

    Final City CDP

    (For Implementation)


    (Draft for Public



    Agenda for Future

    (Various Sectoral Strategies)

    Annual Progress

    Illust. 1.2 City Development Plan Preparation

    Source: Coimbatore City Development Plan



    The report is divided into Five Sections. The sections are divided on the basis of the City Development Planning Process.

    Section I Introduction.

    Section II Existing Situation Analysis.

    Section III Development Perspective and Vision.

    Section IV City Investment Plan: Strategies and action plan

    Section V Financial Operating Plan

    Section I: Introduction

    Introduces the City Development Plan and the key agencies involved in Plan Preparation, Formulation and Implementation. This Section is divided in to two chapters. First chapter focuses on City Development Planning Process and Approach towards the Indore City Development Plan, while the second chapter introduces the Implementing Agency Indore Municipal Corporation and other Parastatal Agencies.

    Section II: Existing Situation Analysis

    It has been divided in to 10 Chapters. It analyses the existing situation of the city and elaborates Problems and Issues particularly regarding to the following components in the JNNURM with respect to the City profile, Demography and Social Profile, Economic Base and Land Use

    Infrastructure and Environment

    o Water Supply

    o Sewerage

    o Solid Waste Management

    o Storm Water Drainage

    o Transportation

    o Air and Water Quality

    Housing and Slum

    o Housing Situation in the city

    o Shelter and Urban Poor (Slums)

    o Basic Services for Urban Poor (Slums)

    Inner City and

    Urban Heritage

    Section III: Development Perspective and Vision

    This Section Deals with drawing an over all vision of the city and deciding Sectoral Goals to achieve it. The sectoral goals are further supplemented by aims and objectives of the sector.

    Section IV: City Investment Plan: Strategies and Action Plan

    This Section Deals with preparation of Strategy for achieving the Goals, Aims and Objectives identified in section III. The strategy will involve identification of the projects to meet the goals and objectives within a stipulated period of time

    Section V: Financial Operating Plan

    This Section specifies the total financial outlay in the plan period. Amount of central sponsorship envisaged under JNNURM, UBLs own contribution and Private sector involvement in financing the development as per the projects identified in the Development Strategy.

    1.5. Report Structure



    The 74th Constitutional Amendment Act, 1992 has imparted constitutional status to Urban Local Bodies and has assigned appropriate functions to them. The relationship of Urban local bodies with the State Governments with respect to their functions and powers, ensuring of timely and regular elections and arrangements for revenue sharing etc., now have constitutional backing. This is unlike earlier, when the urban local bodies continued to be under the control of state governments especially for their finances. Urban local bodies were made responsible with additional powers to play a key role in the preparation of local development plans and programmes for ensuring social justice as envisaged in the Twelfth Schedule of the Constitution, This is facilitated by Section 243 (W) of the 74th Constitutional Amendment Act, 1992.

    2.1.1 Functions and Powers

    In conformity with the 74th CAA, of the Madhya Pradesh Municipal Corporation Act, 1956 were amended. Now ULBs are entrusted with the functions listed in the Twelfth Schedule of the constitution or Section 243 (W) of the Constitutional Amendment (74th) Act, 1992.

    2.1.2 Finances and Taxes

    The 74th CAA also provides for the constitution of a State Finance Commission (SFC) to review the financial position of the municipalities and make recommendations. Article 243-X of the Constitution provides the State legislature to authorise a ULB to levy, collect and appropriate such taxes,

    duties, tolls and fees in accordance with the procedures subject to limits.

    2.1. Urban Local Bodies and New Context of Local Government

    Twelth Schedule (Section 243 W 74th Constitutional Amendment Act)

    Urban planning including town planning

    Regulation of land-use and construction of buildings

    Planning for economic and social development

    Roads and bridges Water supply for domestic, industrial

    and commercial purposes Public health, sanitation

    conservancy and solid waste management

    Fire services Urban forestry, protection of the

    environment and promotion of ecological aspects

    Safeguarding the interests of weaker sections of society, including the handicapped and mentally retarded

    Slum improvement and up gradation Urban poverty alleviation Provision for urban amenities and

    facilities such as parks, gardens and playgrounds

    Promotion of cultural, educational and aesthetic aspects

    Burials and burial grounds; cremations, cremation grounds and electric crematoriums

    Cattle pounds; prevention of cruelty to animals

    Vital statistics including registration of births and deaths

    Public amenities including street lighting, parking lots, bus stops and public conveniences

    Regulation of slaughter houses and tanneries


    2 Implementing Agencies



    Besides these ULBs are also empowered with certain other financial powers.

    The 74th Constitutional Amendment Act lays specific emphasis on Urban Environment Management and Integration of Rural and Urban Development Plans in any district or metropolitan area.

    2.2.1 History of Municipal Government in Indore

    Before 1818, when the capital of Holkars was shifted from Maheshwar, Indore was a small town. Later, the city prospered and became a major center for opium trade. Despite it's prosperity till 1870, Indore lacked planned development in regards to facilities like water supply, drainage, sanitation, and waste disposal. In 1870, the first municipality was constituted in Indore and Bakshi Khajan Singh was appointed Chairman. With the formation of the Municipality, the then rulers of the Indore State, the Holkars, initiated some bold initiatives. Trade and Commerce were given leverage to strengthen the city economy to ensure a positive growth. Piped water supply system was established at the turn of the century to cope with the demand of the city. In 1906; the city started its own powerhouse and established a new water supply system from the Bilaoli water body. The municipality was also given enough authority to initiate scientific planning and management. In 1910, extensive landuse mapping was initiated and the city was mapped in 100 sheets. A city sanitation project was initiated in 1912 under the expert supervision of Mr. Lancaster. During this period, the city shifted from its traditional opium and agricultural trade and commerce to modern industries, predominantly textiles. Realising the potential of new industries, the Holkars invited Mr. Patrick Geddes, who prepared the first authentic "master-plan' for the city. Geddes plan was not restricted to land use, but is one of the most comprehensive

    documents in urban planning and incorporated many of the aspects that are currently considered desirable, like peoples participation and need for future growth. Soon the municipality became the first city to have an elected municipal government responsible for the welfare and growth of the city. A city improvement trust was created and sanitation and waste disposal was undertaken in a scientific and planned manner. The Indore method of composting city wastes was a successful model followed in several other towns. Regular cleaning of the city and sprinkling of water along the roads was initiated and made mandatory.

    After independence, Indore city was included into Madhya Bharat and declared as the first category of municipality by the local government department of Madhya Bharat. In the year 1956, during the reorganisation of states, Indore was included in Madhya Pradesh and in the same year it was declared a municipal corporation.

    Despite such a long lead time in planned development, Indore unfortunately is reeling under the set of problems that most modem cities are facing, air pollution, water scarcity and problems in maintaining a quality environment, problems of solid waste collection and disposal, lack of adequate revenues and the vagaries of the current democratic and bureaucratic institutions.

    2.2.2 Landmarks in Municipal Governance of Indore

    Some of the important landmarks indicating the evolution of the Indore Municipal Corporation are:

    In 1856 Octroi on 21 items and transit tax on Agra-Bombay Road was introduced to promote trade and commerce in Holkar State.

    1893-94 piped water supplies from Sirpur and Piplyapala water reservoirs were introduced.

    1904 Municipality was given judicial powers equivalent to class III Magistrate.

    2.2. Indore Municipal Corporation- Nodal Agency



    1906 Juna power house was established at Indore and power generated here was used to provide street lighting for the city, prior to this kerosene lit

    1906 Octroi and opium tax were abolished and arrangements were

    made to compensate this revenue loss from Govt's exchequer.

    1906 completion of construction of Bilawali Tank.

    1910 Mr. Ramchandra Rao and his team developed a detailed survey map (in 100 sheets) of Indore City, promoted by then Holkar ruler. This set of maps - still the most authentic documentation of valuable property and urban agglomeration development - is still available and in use by City Engineer's Office.

    1912 Municipality was made a semi-autonomous institution through a municipality act.

    1912 Mr. H.V. Lancaster was invited by the local body to give advice regarding expansion of the city and improvements in the sanitary conditions in residential areas.

    1913 Limbodi-Bilawali water supply scheme was made operational to control acute water crisis, which the city faced from time to time in the past years.

    1918 Mr. Patrick Geddes (eminent city planner of that period) prepared a developmental plan for planned development of Indore City under Holkar rule.

    1920 For the first time people used their right affranchise to elect 15 (out of 30) members of Indore Municipality.

    In 1923 entertainment tax and vehicle taxes were introduced in the municipal area of Indore.

    In 1924 overall control of Municipal government was handed over to elected representatives and Indore became first city of central India to have an elected municipal government.

    In 1924, based on the recommendation of Mr. Patrick Geddes, city improvement trust was constituted with a view to ensure cities planned development.

    1925 primary education was made compulsory for all.

    1926 Indore Municipality bought a vehicle for lifting wastes and spraying water on roads.

    1929 detailed aerial photography survey was done under Holkar's initiative for then Holkar State of

    Indore (6 detailed survey sheets are available, presently with City Engineer's Office).

    1938 Mr. R.H.V. Stamper prepared a report on improvement of city circulation pattern. Jawahar Marg and Subhash Marg - now form lifelines of the city - have been constructed as per the recommendations of Stamper.

    1939 completion of Yeshwant Sagar Dam under Maharaja Yeshwant Rao Holker's initiative to overcome water crisis of Indore. The dam - still a major source of water supply to the city - was designed by the eminent civil engineer Dr. M. Vishweshwaraiya.

    1956 Indore municipality was upgraded to Municipal Corporation and the late Ishwarchandra Jain became its first Mayor.

    1984 commissioning of Narmada Project Phase I.

    1992 commissioning of Narmada Project Phase II.

    Till 1995 tenure of mayor was for one year. Since then the tenure of the mayor was increased to five years (from 1995-99).

    2000, modernizations of Indore Municipal Corporation through various programs like e-Governance, municipal asset management, etc.

    2.2.3. Municipal Governance in Indore

    Indore Municipal Corporation, despite its limited resources, is trying to revive its glorious past of good governance, which respects its citizens, their aspirations and encourages their participation in all its efforts towards city's overall development.



    CITY COUNCIL (Members: Chairman, Mayor, Member of Parliament (2)*, Member of State Legislative Assembly from Indore Municipal Area (5)*, 69 Ward Councilors)

    Appeal Committee

    Accounts Committee

    Mayor in Council

    Mayor Chairman of the following committees-

    Housing & Environment, Water Works, Education, Revenue, Market, Planning & Rehabilitation, Food & civil Supplies, Law& General Administration, Health and Women & Child Development Advisory Committee Advisory Committees (Each contains a Chairman and 9 Councilors Housing &Environment, Water Works, Education, Revenue, Market, Planning & Rehabilitation, Food & civil Supplies, Law& General Administration, Health and Women & Child Development Advisory Committee

    Wards Committee (12), 1/ Zone


    Chairman-1 Members-6

    Each committee has a chairman and 5-8 Councilors of wards in a zone

    Department Heads

    Other Key Officials Main Departmental Functions

    Commissioner office Commissioner Chief Executive Officer





    Council Office Office Superintendent General Administration (46) Public Relation Officer Public Relation and Protocol 15) Manger Ravindra Natya Griha (6) Manger Nehru Stadium (13) Manger Community Hall (3)






    Librarian Library (26)

    IMC Head Office

    Tab. 2.1 Structure of Deliberative Wing of IMC

    Source; Various Office Orders, 2001, Note: * have no Voting Powers

    Tab. 2.2 Indore Municipal Corporation Management Team



    General Administrative officer

    General Administration (71)

    Records Department (12) Stores Officer Stores (41) Nodal Officer Poverty Alleviation Department (56) Law Officer Law Department (20 + 19*) Garden Officer Garden Department (500) Garden Officer Swimming Pool (52) Zoo In charge Zoo (57)

    Additional Commissioner

    Public Analyst Laboratory (19) Accounts Department

    Office Superintendent General Administration (5) Chief Cashier Treasury (27)

    Accountant Contingency (24) Establishment (18)

    Accounts officer

    Pension Unit (10) Revenue Department

    Deputy Commissioner Revenue Office Superintendent

    General Administration (25)

    Assessment Officer Assessment Section (78) Zonal Offices (84)* Market & Rent Section (68) Land & Building Section (14) Encroachment Removal Section (39) Advertisement Section (3)

    Revenue Officer

    Vehicle Tax & Animal Encroachment Section (86)

    Assessment Officer Tax Collection Section (71)

    Additional Commissioner Revenue

    Property Tax Collection Section (41) Health Department

    General Administration (43+10+22) Disease Prevention & Birth & Death Registration Section (68) Malaria Prevention (137) Cleaning of Public Toilets and Drainage Section (240)* Sanitation Service Section (2613)*

    Health Officer

    Garbage Collection Section (135)*

    Veterinary Doctor/Meat Inspector

    Veterinary Section (64)

    Public Works Department and Planning Department Gen Admn. (80) Planning & Dev. Cell (91) Encroachment Removal Section (57) Survey Design & planning Section (24)

    City Engineer (Public Works)

    Zonal Executive Engineers

    Assistant Engineer Sub Engineer Office

    Superintendent Senior Clerk Bill

    Building works Maintenance (428+8) RDDC Cell Bridge Cell



    City Engineer Planning

    Building Officer Building Inspector Vigilance Daroga Building Clerk

    Building permission , removal of illegal constriction,

    Water Work and Drainage Department City Engineer Executive Engineers

    Assistant Engineer Sub Engineer Office


    Water supply and maintenance, Tube well maintenance, Drainage constriction and maintenance

    Electrical and Mechanical Department

    City Engineer Executive Engineers Assistant Engineer Sub Engineer Office


    Maintenance of Vehicles Street light maintenance, Fire Fighting

    Table 2.3: Distribution of Wards in Each Zone S.No. Zone No of Wards

    Included Ward Nos.

    1. Hegdewar (Killa Maidan) 7 2,3,4,5,6,7,202. Lalbhadur shastri (Subhash

    Chowk ) 7 17,18,19,21,24,25,27

    3. Bhagat sing (Jawahar Marg) 7 22,23,47,48,49,50,544. Harciddhi 7 43,44,45,46,56,57,585. Maharana pratap (Hawa

    Bangla ) 4 1,51,52,53

    6. Pt.Dindayal (Bilawali) 5 55,59,67,68,697. Chtripati sevaji (Stadium) 6 41,61,63,64,65,668. Gangadhar Tilak (Saket

    Nagar ) 5 9,34,36,39,62

    9. Bhimrao Ambedekar (shatri- pancham ki Phel)

    5 31,33,35,37,38

    10. Dr. Shayama Prasad (Vijay Nagar )

    4 10,11,12,32

    11. Subhash Chandra Bose (Subhash Nagar)

    5 13,14,15,16,8

    12 Mahatama Gandhi 7 26,28,29,30,40,42,60Source: IMC

    Source; IMC Establishment Schedule, 2000



    Table2.4: Zonal Administration

    Executive Wing

    Deliberative Wing

    Commissioner, IMC Additional Commissioner-1 for 6 Zone Additional Commissioner-2 for 6 Zone


    Department Heads

    Functions Key Staff Members per Zone

    Wards Committee

    Water Supply & Drainage Maintenance

    Asst Engineer 1 Sub Engineer - 1 or 2

    Public Works (Building permission, Maintenance, Construction Control)

    Asst Engineer 1 Sub Engineer 1 or 2 Building Inspector 1

    Health & Sanitation Sanitation Inspector 2 Sanitation Sub Inspector -2Sanitation Supervisor 6 or 7 Cleanliness Workers 220

    Councilors of every Ward Which come under a zone

    Revenue Collection Rev Sub Inspector 1 Bill Collectors - 6 or 7 Peons 3

    Office Clerks & peons 2* Words Committee Office Staff

    Source: Various IMC Office Orders, 2001 (*competent persons derived from workforce in the zone)



    At present, municipal area is divided in 12 zones and 69 wards of various sizes and population, for effective decentralized planning and implementation. The deliberative and executive Wings of IMC are the pillars, which provide strength and balance to its organizational structure; a brief description of the same is given as under.

    As per the provision of Madhya Pradesh Municipal Corporation Act, 1956, IMC has a mayor (chairperson), elected through direct election, councilors (Refer Table 2.1) elected by direct election from 69 wards, 2 members of Parliament and 5 members of State Legislative Assembly representing constituencies within municipal areas. In accordance with the 74th constitutional amendment, 25 seats out of 69 are reserved for women. There is a provision to nominate 6 persons having special knowledge and experience in the city council, which have been nominated recently.

    Mayor - ex-officio chairman of mayor in council (MIC) - along with councilors, commissioner and MIC are entrusted to carry out provisions of M.P. Municipal Corporation Act, 1956. Presently as per the provisions, MIC has 10 members -each heading an advisory committee of various departments of IMC. Composition of advisory committee and MIC is described in annexure IV.

    Municipal account committee is constituted under Section 131-A of MPMC Act 1956.

    As per provisions, it consists of 7 members elected by the elected councilors by secret ballot from amongst themselves. It has no member from MIC. The members of the committee also select from amongst themselves a chairman. The prime responsibility of the committee is to examine the accounts of the corporation, ensuring appropriation of funds and grant for expenditure, also to examine, scrutinize and ensure appropriation of money shown in the accounts, and disbursed in accordance with the allotment for the same.

    The appeal committee has mayor and four elected councilors where mayor is ex-officio chairman of it. Main responsibility of the committee is to examine appeal against the order of the commissioner and subordinate officer.

    2.2.4 Organisational Structure Table 2.1 ahead describes composition of IMC's existing organizational structure. A few analytical observations regarding the organisational structure of IMC are presented below:

    Massive size, especially due to large number of conservancy workers at head office and zonal offices. The present strength of conservancy workers is about 2,613. In accordance with, the WHO norms, IMC had decided to recruit 2,000 more such workers. Large number of clerks, supervisors, peons, messengers create relatively unproductive workforce in various departments.

    Poverty Alleviation Department, which manages various welfare and social security schemes, lacks skilled persons.

    IMC's laboratory, which is entrusted with important responsibilities like regular monitoring of quality of water supplied and food adulteration, is under staffed.

    Planning and design section of Public Works Department also lacks in skilled staff.

    There are large number of supervisors and labourers, instead of trained coaches and lifeguards at swimming pool.

    Lack of proper documentation and record keeping puts a question mark on existing huge clerical staff in sections of various departments.

    2.2.5 Decentralization of Municipal

    Administration Decentralization of municipal functions and activities through twelve zonal offices and their respective wards committees is a significant achievement of IMC, which has received encouraging response from citizens as it has made dissemination of



    information, revenue collection, grievance redressed, etc., simpler and effective.

    To ensure efficiency and effectiveness in municipal governance, the whole of city area is organized in eleven zones, each comprising of 5-7 wards. IMC plans to develop all its zonal offices as mini corporations. The system has been designed to decentralize municipal governance in a true sense.

    As presented in the Table 2.4 (Annexure IV), the chairperson of wards committee heads the deliberative wing at the zonal office level, where councilors of wards, which fall in a particular ward, are the members of the committee. These committees for their territorial areas are empowered to:

    i) Sanction up to an amount of Rs. 50,000 for the function of the committee,

    ii) Inspect and supervise any work. Major responsibilities entrusted towards committees are as under:

    Construction of new roads and drains

    Maintenance of existing roads and drains

    Arrangements for water supply and sanitation

    Recommendations for all types of licenses

    Collection of tax, rent and fees Implementation of national

    programs relating to social welfare services and social security schemes.

    Removal of encroachments. Development and maintenance of

    gardens, public places. Supervision of primary schools,

    primary health centers and public distribution systems.

    Environmental improvements

    To carry out the responsibilities entrusted to it, wards committees are expected to prepare proposals and submit them to the municipal commissioner in the month of October for perusal in the next financial year.

    2.3.1 Indore Development Authority Until 1973, the city had a 'City Improvement Trust', to assist the Indore municipal body in its developmental activities. In 1973, the Improvement Trust was converted to Indore Development Authority (IDA) under the Madhya Pradesh Town and Country Planning Act, 1973. Primarily, IDA develops new residential areas. During the early stages of development of such areas, IDA is responsible for developing basic infrastructure. Once a sizable number of plots are sold, the area is formally transferred to IMC, which is then responsible for the maintenance of the infrastructure in the area. So far, four residential colonies developed by IDA has been handed over to IMC with all the legal formalities.

    Apart from developing residential areas, IDA has taken up a number of development schemes like construction of some major roads, traffic squares, Krishnapura Lake, Meghdoot Garden, etc.

    The Commissioner of IMC is the ex-officio member on the board of IDA.

    After publication and adoption of the lndore Development Plan 1991 u/s 18,19 of Nagar Tatha Gram Nivesh Adhiniyam 1973, the main implementing agency IDA has played an important role. lndore Development Authority has taken so far 80 schemes on an area of about 4500 ha. Out of which development in 33 schemes covering an area of about 1900 ha has been completed. Twenty-eight schemes (area about 1000 ha) have been dropped due to various reasons. In 19 schemes (area of about 1600 ha) the process of land acquisitions is in progress.

    2.3.2 Madhya Pradesh Public Works Department

    Public Works Department (PWD) deals with the construction and maintenance of buildings, roads, and bridges. Irrigation, flood control works.

    2.3. Para Statal Agencies



    2.3.3 Madhya Pradesh Pollution Control Board

    MPPCB monitors air quality, water quality and noise levels at various sampling points distributed throughout the city. It is also mandated to monitor industries and enforce pollution control measures. MPPCB is the nodal agency appointed to implement the 'National River Conservation Plan.

    2.3.4 Public Health Engineering Department Government of Madhya Pradesh

    The Public Health Engineering Department (PHED), a State Government body, is charged with a number of responsibilities in water supply and sanitation. It is a state level body; presently the staff is deputed to Indore to oversee the Narmada water project.

    2.3.5 Madhya Pradesh Housing Board

    MPHB functions as per the MP housing development act of 1972. It has constructed about 20000 units in Indore city of HIG, LIG, MIG, EWS, Shops, Offices and Halls and about 4000 developed plots. The MPHB have been constructing and developed in 21 colonies in the city. MPHB works in collaboration with IMC for maintenance of services.

    2.3.6 Indore Development Fund Ltd. A limited company, Indore Development Fund Ltd, has been formed to mobilize funds for repair and construction of Roads in the city. The company id fully owned by IMC.

    2.3.7 District Urban Development Authority

    It function under the administration of the Indore District Collectors office and finally reports to the Urban Development department of the state government.

    2.3.8 Madhya Pradesh Town and Country Planning (MPTNCP)

    T&CP department in Indore was established under MPTNCP act of 1973. The main function of T&CP is to prepare master plans and give permission for development of schemes in accordance with master plan.

    2.3.9 Krishi Upaj Mandi samiti, Indore

    Mandi samitis main function is to provide a set up for the farmers of the regional area to sell their commodities. Presently there are three main mandis functioning under Krish Upaj mandi samiti, Indore. Out of the three the Grain mandi at Chavvani is ill placed in highly congested area.

    2.3.10 Indore City Transport Services Ltd.

    This is an unique imitative that have been taken by Dist. Administration and IMC by setting up a fully Govt. owned Company named Indore City Transport Services Limited (ICTSL) to provide with an efficient transport system in the city.



    Indore, a 2.0 million plus city today has transformed from a traditional commercial urban center into a modern dynamic commercial capital of the state.

    Indore, the most prominent city of Madhya Pradesh and the district headquarter of the district with the same name is situated on the western part of the Malwa (historically known as Deccan plateau) on the banks of two small rivers, the Khan and the Saraswati. Indore is 17th among the 23 million plus cities of India enumerated in the 2001 census. The city is currently the most populated city of Madhya Pradesh.

    Indore has been a center of affluence due to flourishing trade and commerce right from the beginning. It is the biggest commercial center and is termed as the business capital of Madhya Pradesh.

    3.1.1. Early Indore- Juni Indore

    Indore owes its early growth to trade and commerce, which is still a dominant feature of the city. The present city is about 400 years old settlement. Till the end of 15th century its original nucleus was a riverside village, which occupied the bank of river Saraswati. This area is now known as Juni Indore.

    Indore situated on the plateau of MALWA was just a village called Indur/Indurpuri. The name Indore is attributed to the Rashtrakut ruler Indra on whose name the village must have derived its name. According to some myth the name of Indore was derived from the name of Indrashewar temple. The Indore Kasba is mentioned in some of the

    documents in the late 17th century during the rule of Aurangjeb, the famous Mogul ruler.

    The little village grew as an important halting place for pilgrims traveling between great religious cities, Ujjain on the bank of the Holy River; Narmada and Omkerashwar. Later, in addition to the halting place it also became a camping place for forces of Moghul's and Marathas who frequently moved to South and North for expanding their kingdoms. The Zamindars of village Kampel (about 10 km. S.E) visualized the opportunity of flourishing trade in this settlement and settled on the banks of the River Khan. To withstand the foreign invasions, Zamindars built a castle, giving this village a character of a walled town, although the town hardly suffered the destruction of feudal wars.

    3.1.2. Holkars Indore

    There is no firm date about establishment of Indore as a city. It is believed that the village of Indrashewar gradually developed

    3.1. Historical Background


    3 City Profile

    Illust. 3.1 H. H. Maharajadhiraja Shrimant Malhar Rao Holkar I (1733 1766)



    into a Kasba, then to a Pargana and finally as a important town on 29th July 1732, when Bajirao Peshwa-I granted Holkar State (Jagir) by merging 28 and half parganas and then providing this Jagir to the MALHARRAO HOLKAR, the founder ruler of Holkar Dynasty.

    He ruled the state from 1728 to 1766. During this period development was primarily for military and commercial establishment. Later the boundaries of the state were amended and Maheshwar was also included in the Jagir. In 1818 the capital was shifted from Maheshwar to Indore, through the proposal was initiated by Rani Ahilya Bai, daughter-in-law of Malhar Rao holkar.

    Establishment of Holkars capital at Indore provided new forces for development of the city. In view of the defense needs, the three roads, one leading to polo ground, the other to State stable now M.T. Cloth Market, and the third Topsham Road were first to develop. All the defense establishments were located on these

    roads, location of defense establishments were at a reasonable distance from the civil population. The town, which was called Indur, under the influence of Maratha rulers, must have been called Indoor which under the influence of British must have further distorted to Indore.

    During the period of Maharaja Tukoji Rao II efforts were made for the planned development and industrial development of Indore (1852-86). It was during his time that Krishnapura Bridge, Krishna Bai Chattri and roads were constructed. With the introduction of Railways in 1875 the business in Indore flourished. During the regime of Maharaja Shivaji Rao, Holkar college, Moti Bunglow was constructed. Indore retained its status of being the administrative capital till the regime of Yashawant Rao Holkar who due to some military reasons established his capital seat Bhanpura. As the British defeated the Holkars (Tukojirao II) and Scindia at Mahidpur, a Mandsaur treaty was signed by virtue of which Indore was again made the capital. A residency with British resident was established at Indore, but Holkars continued to rule mainly due to the efforts of their Dewan Tatya Jog. In fact during that time Indore was established as Head office of British Central agency.

    3.1.3 British Indore

    In 1903 Maharaja Shivaji Rao Holkar left the throne in favor of his son Maharaj Tukoji Rao III during whose regime also the development of city continued. Manikbag palace, Maharani Saraya, Gandhi hall, Old High Court Building, Yashwant Niwas, Tukoji Rao Hospital were constructed during his tenure. In 1906 Electric supply was started in the city. Fire brigade was established in 1909 and in 1918 to promote proper development of Indore Master Plan was prepared by noted Architect and Town Planner Patrick Geddes.

    3.1.4 Post Independence Indore

    In 1948, the Holkar State acceded to Indian Union. With the formation of Madhya

    Illust. 3.2 H.H. Maharani Shrimant Akhand Soubgahyavati Ahilya Bai Sahiba. 1767 - 1795



    Bharat State, Indore became the summer capital of the state. The present Commissioner Office then was used as Ministry office and the assembly session were held in Gandhi hall.

    The first ever-planning intervention in the post independence period was in the form of Indore Development Plan (1974-1991), which was published and adopted under 18 & 19 of Town & Country Planning Organisation Act - 1973. The plan envisaged planning area was 21,410 ha, out of which 12,145 ha. were provided under different uses for 12.5 lakhs population.

    Indore Development Authority and Madhya Pradesh Housing Board have played an important role in implementing the Development Plan 1991 besides private colonizers and Co-operative Housing Societies.

    Indore a nearly 2.0 million city today has transformed from a traditional commercial urban center into a modern dynamic commercial capital of the state.

    Indore city is linked by three modes of transportation viz. Road, Rail and Air; Regional road pattern fans out in all directions. The National Highway (Mumbai-Agra Road) passes through the citys habited area. State Highways and other roads connect the city with the State Capital Bhopal, all District Head Quarters of the Division and important towns within the District.

    The city is, served by a broad gauge and meter gauge railway line. The Railway line passes through the heart of the city, which forms a physical barrier for, inter communications within the city. The city is also served by a regular air service, which con