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TRANSFORMING GWALIOR CITY

BACKGROUND
Gwalior is a major city of Madhya Pradesh having a population of more than a
million. It is a historic city with many heritage structures. The City consists of 3 subcities namely Gwalior, Lashkar and Morar. These sub-cities are inter-connected with
each other, but the other 2 sub-cities are traditionally dependent on the Lashkar area, as
the only CBD (Centre Business District) Maharajbada is situated in Lashkar. The
Maharajbada is the heart of the City, contains 7 major historic buildings. It is a major
tourist attraction in Gwalior. All major markets are situated in and around Maharajbada
area. The Lashkar is also the oldest portion of the City. Many more heritage buildings are
located in this area. The major problem faced by Lashkar area is huge encroachment and
traffic congestion. Encroachments on government land and illegal construction are the
bane of narrow roads and heavy traffic congestion. Lashkar is not only majorly affected
area by this problem but Gwalior sub-city is also affected. Since CBD Maharajbada is
situated in Lashkar area, public from Morar and Gwalior area frequently travel to
Lashkar, particularly Maharajbada area. This causes heavy congestion, resulting in
traffic jams during the peak hours.
Temporary encroachments in the form of Gumtees, (make shift shops), Thellas
(Hand-carts) was a huge problem in the City, resulting in traffic congestion in all the
major markets of the City.
There has been tendency in all the urban areas of this Country to construct small
religious structures on the public land. Gwalior is no exception. There were many
religious structures; be it temples, mosques, dargah, which were constructed on the public
roads. Over 90 structures were identified, which were situated on the carriage-ways of
major roads of the City. Since, many religious organizations were involved, it was very
difficult to remove these obstacles for the traffic.
In the City area, there are nearly 50 marriage gardens, which are offering their
services to the public for marriage functions. On one hand, they are providing space for
organizing functions like marriage but at the same time, they were resulting in huge
traffic congestion, specially during the peak marriage season. The vehicles whether two
wheelers or four wheelers of all the guests, coming to attend the marriage functions, were
used to be parked out-side the marriage garden, on the roads and thereby literally
blocking that road. Frequent traffic jams in the marriage season was a routine thing in
Gwalior city.
There has been no major investment in the road sector since last 3 decades and at
the same time number of vehicles in the city have multiplied many folds. There was a
major need to construct new roads specially converting two-lane roads to four-lane roads
in the City to ease-out the traffic flow.

Like all the cities of the Madhya Pradesh, Gwalior was also facing huge problem
of illegal colonization. In fact, powerful illegal colonizer mafia was operating in the city
and adjoining villages. It was busy constructing illegal colonies one after another,
resulting in un-organized sub standard housing and very poor infrastructural facilities in
these colonies. People, who had purchased plots in these colonies were literally fooled by
this mafia.
The drinking water for the Gwalior city comes from Tighra dam, which is of
sufficient capacity to provide drinking water to the whole public of present Gwalior city.
But due to the paucity of water distribution net-work which includes over-head water
storage tanks and water pipeline, nearly one third of the city population was not getting
tapped water supply.
There are many areas in the City, where people who have migrated from rural
areas to the urban areas are living in small temporary hutments. They are living in abject
poverty and having no drinking water and sanitation facilities. There was an urgent need
for providing them with properly build houses having required amenities.
MOTIVATORS FOR THE INITIATIVE The main motivation behind this initiative was a huge demand from the public that
the City must become a better place to live. People of Gwalior were appalled by the
massive encroachments, illegal constructions, traffic congestions, illegal colonies and
there was a great demand that there should be a massive initiative to tackle these
problems. The other motivators and catalyst of the initiative are District Administration
and Municipal Corporation, Gwalior, who joined hands and came out with an action plan
which finally resulted in this initiative.
PURPOSE AND PRIORITIES OF THE INITIATIVES
Purpose and priorities of the initiatives can be summarized in the following
points:(i)

(ii)

(iii)
(iv)

To remove the massive encroachments and illegal construction from the

government land specially from the roads with the twin purpose of freeing
the precious government land as well as widening the carriage-way of the
roads in order to ensure the free flow of traffic.
To remove temporary encroachments like Thellas (Hand-carts),
Gumtees from the roads and rehabilitating them in the nearby hawker
zones. This also necessitated construction of new hawker zones.
To remove all such religious structures which were illegally constructed on
the roads and which were blocking the traffic flow.
To ensure sufficient parking space in all the marriage gardens of the City,
so that the vehicles are parked in that parking space and not on the roads.

For this, it was required to demarcate certain percentage area of the

marriage garden with a separate entry just for the parking.
(v)
To identify and generate sufficient parking areas in various markets of the
city, so that tendency to park vehicles on the road is curbed. This was
required to ensure full carriage-way of the roads for the traffic and not for
the parking.
(vi) To convert major roads of the city from two-lane to four-lane, so that their
traffic carrying capacities could be enhanced.
(vii) To identify areas in the City and villages around the City where rampant
illegal colonization was going on. At the same time, a crack-down on these
illegal colonizers was planned to curb this illegal and unorganized
development.
(viii) To ensure tapped drinking water supply to every citizen of Gwalior, many
over-head water storage tanks were needed, at the same time water pipeline
distribution net-work was also required in the areas where these over-head
water storage tanks work were taken up.
(ix) It was planned to provide houses to the poor people, which were residing in
temporary hutments with no amenities, encroaching precious government
land.
DATE OF IMPLEMENTATION OF THE INITIATIVE
The whole initiative was aiming at really transforming Gwalior and over coming
huge problems as mentioned above, so it was a lengthy process. The process was
started in the year 2009 and it is continuing till date.
STRATEGIES
ADOPTED
FOR
BRINGING
TRANSFORMATION AND POSITIVE IMPACT

ABOUT

THE

Basic strategies adopted in the initiative are summarized below :(i)

To remove encroachment and illegal construction, it was required first to

identify them and secondly to remove them. Since Gwalior is a big city, it
was not possible to simultaneously remove all the encroachments from all
the areas. So some target areas were identified. The criteria for identifying
the target areas was traffic density and congestion in that area. Also, this
was taken into account that markets of Gwalior needs to be de-encroached.
Once these target areas were identified, there was a joint survey and
demarcation by the Revenue department and Municipal Corporation
officials in which encroachment on the government land specially on roads
were identified. For this Government Nazul map, Town and Country
Planning map and Municipal Corporation map were taken as reference
material. Once, these encroachments and illegal constructions were
identified, then cases were constructed under Municipal Corporation Act,
1956 or M.P. Land Revenue Code, 1959 depending on whether the land in

(ii)

(iii)

question is Municipal land or revenue nazul land. Due notices were given
and after that joint team of District Administration, Municipal Corporation
and Police was sent on the spot along with required man-power and
machinery to remove the encroachments. A daily co-ordination meeting
was held in the evening between nodal officers of these 3 agencies to
ensure proper co-ordination and to plan for next day operations. The whole
anti-encroachment and anti-illegal construction drive was carried out in a
remarkably coordinated and successful manner. Massive encroachments
and illegal constructions were removed from the target areas through this
drive.
Temporary encroachments in the form of Thellas (hand-carts) and
Gumtees were creating huge congestion in the market areas of the city. To
tackle this menace, again joint teams of District Administration, Municipal
Corporation and Police were formed and they were given responsibility of
removing these temporary encroachments and encroachers from the roads
in order to remove congestion from the carriage ways. Before removing
them proper announcements were made. Secondly, new hawker zones were
constructed in the nearby areas so that these Thella dwellers (hand-carts)
could operate from those areas. Continuous drive was undertaken to push
these Thella dwellers to the hawker zones, so that traffic is not blocked
because of that.
There were many religious structures which were obstructing free flow of
traffic as these were located on the carriage ways of the major roads. First,
joint team of Revenue department and Municipal Corporation surveyed
such religious places. As many as 93 religious structures of different
religions were identified in the City, which were situated on the major
roads , obstructing the free flow of traffic. After identifying these religious
structures, a meeting of different religious leaders and also District Peace
Committee was organized, in which after heated arguments and discussions
a consensus was farmed that religious structures which were directly
obstructing the traffic, should be removed. After that pujaries /sevadars /
maulvies and concerned people with the religious structures were called for
meeting in which they were convinced to give their consent for removal of
these religious structures. This was done in a phased manner . At a time a
group of approx. 10 religious structures were taken. Continuous meetings
and discussions were held and after that they were removed from the road
and deity of the religious structure was shifted to the nearby religious
structure of the same religion. In all such meetings, District Magistrate
himself along with Municipal Commissioner and Police officials were
participating, so that it was possible to convince concerning people on such
a delicate and sensitive matter. Adopting this phase-wise approach all
identified religious structures were removed from the roads. For convincing

(iv)

(v)

(vi)

(vii)

religious leaders relevant Honble High Court and Honble Supreme

Courts order were also discussed in those meetings.
First a survey of all the marriage gardens of the City was conducted
through revenue officials and their parking needs and available parking
space was assessed. There was also a relevant Honble High Court order in
a P.I.L. in which the Honble Court has directed the District Magistrate to
take proper action in this regard. After survey, it was decided that to ensure
proper parking of the vehicles in a marriage function at least 35% of the
marriage gardens. space should be reserved only for parking. Marriage
garden owners were called and told that they have to ensure 35% parking
space in their marriage garden. Initially they were not complying with this
direction, so joint teams of concerning City Magistrate and C.S.P. (City
Superintendent of Police) were formed and these teams were directed to
lock and seal these marriage gardens unless they ensure 35% parking area.
After the sealing of the marriage gardens, owners came to brisk action and
they demarcated 35% area of their marriage garden with the help of
revenue officials. This 35% area was fenced and a separate entry was also
created for vehicles. A proper sign board was also placed in this parking
area at the entry point. As a result, now Gwalior is the only City in the State
of Madhya Pradesh where in all the marriage gardens, sufficient parking
space is available for the parking.
Major roads of the City, where traffic density was highest, were identified
and listed. These roads were first made encroachment free and thereafter
widening process was undertaken. All the major congested roads of the
City were covered and nearly 75 % of the identified roads were converted
from two-lane roads to four-lane roads. Remaining 25% of the identified
roads were widened adequately to smoothly carry the traffic. Funds
available under HUDCO loan scheme, special package sanctioned by the
Honble Chief Minister, Madhya Pradesh and funds available through
Municipal Corporation revenues were used for above mentioned fourlaning and widening works.
There were major and minor bridges in the City on the Swarna-rekha and
Morar rivers, which were very narrow and they were causing heavy traffic
congestion and traffic jams during the peak hours. Such major and minor
projects were identified and their widening work was undertaken.
There had been an urgent requirement to address the illegal colonies issue.
To do this, first a detailed survey of illegal colonies was undertaken
through Revenue department. All Halka Patwaries of the City and adjoining
villages were asked to conduct a detailed survey as to how many illegal
colonies are either developed or in the process of development, in their
respective areas. The survey took around two months and after that these
illegal colonies were identified. Two pronged strategy was formulated to
tackle this issue. First cases were lodged against illegal colonizers under

Municipal Corporation Act in the urban areas and M.P. Panchayati Raj Act
in the nearby villages. Secondly, those illegal colonies which were in the
process of development were demolished on the spot, so that a new illegal
colony could not be developed. Another measure which was undertaken
was that the hoardings were displayed in all the major parts of the City
where all such illegal colonies were notified and displayed for public
knowledge. In these hoardings an appeal was also published , not to
purchase any plots in such illegal colonies. At the same time, government
agencies like Housing Board and G.D.A. (Gwalior Development Authority)
were encouraged to take up new legal colonies so that housing needs of the
public could be addressed. Housing Board and G.D.A. were allotted
prominent nazul land for this purpose by the District Collector.
(viii) To meet the tapped drinking water needs of the public, areas where water
distribution pipeline network was not sufficient, were identified and
pipelines were laid under A.D.B. (Asian Development Bank) Project.
Similarly, areas where there was a need for over-head water storage tank,
were identified and construction of new over-head water storage tanks were
undertaken in these areas under the A.D.B. Project.
(ix) There was a survey undertaken by the Municipal Corporation as to how
many poor families are there, which are living in small hutments without
any amenities. After that a project was undertaken in the IHSDP (Integrated
Housing & Slum Development Programme) to build new houses for such
identified people.
ROLE OF VARIOUS STAKE HOLDERS
The main stake holder in the initiative was the public of Gwalior City. In fact, it
was due to the demand of public that this initiative was undertaken. A process of regular
consultation was undertaken with the public, so that they can also participate in the
development process. There were numerous good suggestions from the public which
were incorporated in the development plan. Similarly, there were many complaints from
the public which ensured removal of encroachments from precious government land.
Public at large was very co-operative and very encouraging through-out the initiative and
specially during the anti-encroachment drive and road widening process. The key stake
holders which were central to this initiative were District Administration, Municipal
Corporation and Police department. The whole process of surveying, planning and
execution was done by District Administration and Municipal Corporation under the
leadership of Collector, Gwalior and Commissioner, Municipal Corporation. Stakes of
Police department were two folds
First, they provided security support in anti-encroachment drive and secondly,
ensuring the smooth flow of traffic through this drive was the priority of the traffic
police.

HIGHLIGHTS/POSITIVE FEASURES OF THE INITIATIVE Transparency and stake holder participation

The whole initiative was conducted in a very transparent and fair manner. All the
surveys and demarcations by the Revenue department and Municipal Corporation
whether it is for identifying encroachments or illegal construction or illegal colonies etc.
were in the public domain. Since the beginning due notices were given in all the cases
before undertaking any action. Before undertaking anti-encroachment drive, the
information was also published in the newspapers. Illegal colonies were also notified
through the public hoardings so that public could be saved from investing their hard
earned money in such illegal colonies. A dedicated Committee was also formed to
receive representations from the public and decide them after following due procedure of
law.
As mentioned above, the major stake holder of this initiative was public at large.
There was enthusiastic participation from the public during the course of drive against
encroachments, illegal colonies, illegal constructions. All the religious leaders, members
of the District Peace Committee participated and cooperated in the major task of
removing the religious structures from the roads. Other major stake holders like District
Administration, Municipal Corporation and Police acted in a cohesive and unified
manner thereby transforming the Gwalior city. All these stake holders acted as a team in
ensuring stern action against encroachments, illegal colonies and illegal constructions.
INNOVATIVENESS OF THE INITIATIVE AND ITS REPLICABILITY
There were many innovative features of the initiative, which are as under :(i)

The District Administration that includes District Collector, the Revenue

department, Municipal Corporation led by the Commissioner, Municipal
Corporation and Police department led by the Superintendent of Police acted in
a very cohesive and coordinated manner. Every action was well planned and
was undertaken in a team work fashion.

(ii)

There has been a debate on judicial activism since a long time but in Gwalior
the judicial activism was utilized in a very positive and pro-development
manner in removing illegal religious structures and ensuring parking spaces in
marriage gardens. The relevant orders of the Honble High Court of M.P.,
Bench at Gwalior were very helpful. Fear of contempt proceeding was utilized
in a positive manner to control mischievous elements.

(iii)

The Anti-encroachment, anti-illegal construction drive which was undertaken

in the Gwalior city was phenomenal and historical. Even then full transparency
is ensured in the drive by giving reasonable opportunity of hearing to the
public and at the same time the whole process of survey, demarcation and
removal was done fully in the public domain.

(iv)

Proper rehabilitation of the persons which were effected by the antiencroachment drive was also planned and was executed.

(v)

Removing religious structures from public places like roads is a very delicate
and sensitive issue but in Gwalior city nearly hundred such religious structures
of various religions were removed in a smooth fashion and not a single law and
order issue was created due to this removal.
Problem faced by the Gwalior city as mentioned in the background
are the same as is faced by nearly all the cities, whether major or minor, of
Madhya Pradesh and for that matter this country. This whole initiative could be
a very good model to be replicated in other cities of the State.
Increased efficient of out-puts and effectiveness of out-comings
Proper management of field staff and workers resulted in increased
efficiency during the drive. Public after understanding the fairness and
lawfulness of the action, started removing encroachments and anti-illegal
constructions on their own. This increased the speed of removal process. After
the drive, the congested areas of Gwalior city have been de-congested and
opened up permanently. Traffic is moving smoothly and city is beautified.

(vi)

Display of leadership / team work by the nominees - The whole initiative was
undertaken under the dynamic leadership of District Collector and
Commissioner, Municipal Corporation, Gwalior. The nominees led the
initiative at all the stages, whether planning at the table or executing it on the
roads. All the agencies i.e. District Administration, Municipal Corporation and
Police acted as a team and in a perfectly cohesive manner .

(vii)

Sustainability of the initiative The initiative has resulted in sustainable outputs on the major roads and markets, where drive was undertaken and now
encroachment free and de-congested. Traffic is smoothly plying in these areas.
The public of Gwalior is now aware of illegal colonies and verify before they
purchase any property / plots, about the legality of the colony. There has been
substantial reduction in the tendency to encroach upon the public street and

government land. Now public of the whole city is getting tapped water supply
through the newly created water storage tanks and water distribution network.

OUT-COMES
The out-comes of the initiative could be summarized in the following points :(i)

Under the initiative massive anti-encroachment and anti-illegal construction

drive was undertaken. As many as 4000 encroachments were removed in the
drive. After removing encroachments 8 Lakhs Sq.ft. precious government land
was freed from illegal encroachments. The value of this freed government land
is ` 400 crores approximately .

(ii)

Continuous action was taken against temporary encroachers like Thellas

(hand-carts dwellers). The action has taken against as many as 350 temporary
encroachers.

(iii)

As many as 5 new hawker zones were constructed to accommodate these

Thellas (Hand-carts), so that public can also utilize their services as
temporary localized markets.

(iv)

During the drive nearly hundred religious structures were identified which
were causing obstruction on the roads and hindrance to the smooth flow of
traffic. During the initiative as many as 93 religious structures were removed in
a phase-wise, smooth and peaceful manner.

(v)

As many as 44 marriage gardens were functioning in the City. It was ensured

that 35% area of each of this marriage gardens is exclusively reserved for the
parking. This was ensured in all 44 marriage gardens and as much as 7,74,867
Sq.Ft. of parking space was created in these marriage gardens.

(vi)

By removing encroachments and followed development as much as 31 kms. of

roads were converted from two-lane to four-lane. Similarly, 11 kms. road was
sufficiently widened for the smooth flow of traffic.

(vii)

As many as 3 major and 4 minor bridges were identified which were causing
traffic congestion. The widening of these bridges was undertaken. 2 no. of
major bridges and 4 no. of minor bridges were adequately widened to ensure
the smooth flow of traffic. The construction of the remaining one major bridge
is going on.

(viii) Under the initiative some existing rotaries which were occupying unusually
large spaces and thereby obstructing the smooth flow of traffic, were shortened
by reducing there over all dia-meter. 4 such rotaries were undertaken in this

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manner. This was done on busy rotaries to facilitate the smooth flow of traffic.
Secondly, as the anti-encroachment drive was undertaken, a need, was felt for
new rotaries in many areas so new rotaries were constructed at 6 places.
(ix)

After the anti-encroachment drive huge parking spaces were made available in
the market areas where the drive was undertaken. As much as 60000 Sq.Ft.
parking space was generated after the drive. At 4. Places new multi-level
parking places have also been planned which is under process of execution.

(x)

As the road widening process was undertaken, a need was felt for shifting the
electric poles which were obstructing the carriage way. Under the initiative as
many as 508 no of electric poles and 101 transformers were shifted during the
drive to facilitate the widening of major roads and ensuring smooth flow of
traffic.

(xi)

On humanitarian grounds, the persons which were affected by the entire

encroachment drive were also rehabilitated. The rehabilitation plan was
prepared first to rehabilitate temporarily and secondly permanently. The
selection of persons rehabilitated was made in a transparent manner by inviting
applications by publishing in the newspapers. Only rehabilitation of those
persons were undertaken whose livelihood has been affected due to the
removal of the encroachments. Nearly 200 such persons were rehabilitated
temporarily. To rehabilitate them permanently construction of market complex
has been undertaken at 13 locations.

(xii)

Under the initiative as many as 40 illegal colonies were demolished which

were in the process of development, legal actions were launched against 577
legal colonies under the Municipal Corporation Act and 154 number of
colonies under the M.P. Panchayati Raj Act.

(xiii) To provide tapped drinking water through out the City, 15 major over-head
water storage tanks were constructed and commissioned in the years where
hither to tapped water supply was not available and they were obtaining on
either tubewells or water tankers. Similarly, 370 kms. Water distribution
pipelines were laid and commissioned to carry drinking water from these water
storage tanks to the house hold.
(xiv) To provide the permanent houses with all the amenities to the urban poor,
construction of 1848 houses was undertaken under the I.H.S.D.P. (Integrated
Housing and Slum Development Programme). Out of these, 30% houses are
completed and remaining are in the process of completion.
Detailed write up , photographs of the initiative , media reports can be found in url
http://gwalior.nic.in/transforming.html

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