Can Transit Oriented Development be effective in Urban India?

The concept of Transit-Oriented Development (TOD) as a planning tool is new to Indian cities, where quality mass rapid transit systems (MRTS) are a recent development. The idea of TOD has emerged due to the steep rise of congestion and poor air quality due to rapid urban development experienced in the last decade. Delhi, in particular, is looking to TOD as a solution to its mobility and air quality issues. The city recently prepared a TOD policy document that it will apply around Delhi Metro stations. TOD is being championed by UTTIPEC (Delhi Development Authority) as a solution to congestion, environment quality and housing equity. Global sustainability proponents are also encouraging TOD as a tool to achieve greater sustainability in the developing world, avoiding the costly mistakes of cities in industrialized West. TOD seems to be a win-win solution for local concerns and global sustainability. Can this concept, developed for the auto-dominated North American city, be universal enough to be applied in urban India?

The primary goal of TOD is to shift an auto-centric realm of urban living to a transit-centric realm of urban living. The main indicator of a city’s auto or transit orientation is the mode share – the proportion of daily trips being made by private vehicle transportation versus other public or non-motorized transport (NMT) means. If private vehicular modes of transportation constitute a major share of trips, TOD interventions aim to significantly shift the mode share. The TOD guidelines for Delhi indicate a desire to achieve a 70-30 modal share (public-private) in favor of public transportation by 2021^[1]. How does the mode share of Indian cities compare with other cities around the world? Do Indian cities have significant numbers private vehicle trips to easily shift to mass transit?

A 2011 comparison study in the journal Journeys^[2] of the mode share in select global cities with over a million residents included Ahmadabad, Bangalore, Delhi and Mumbai. The study indicated the Indian metros except Ahmadabad have 25% or less mode share for private transport. Only Tokyo (comparable in land area and population to Mumbai & Delhi), had a lower private transportation share at 12%. Going by the Journal’s report, Delhi already has a desirable mode share with only 19% of private transport trips. In addition, the Delhi metro ridership is at an all-time high at 2.4 million passengers a day^[3]. So can a TOD policy focused around Metro stations be effective in shifting the mode-share from cars to transit? Or will intensification add to the congestion?

This comparison indicates that Indian metros need to contextualize their TOD policies, if they aim to move automobile commuters to public transit. ­­Looking at Indian cities, the potential for significant mode share shift would be in Ahmadabad (42% private transport) and Bangalore (25% private transport). TOD strategies in Delhi and Mumbai would need to focus on making existing localities more amiable to non-motorized travel, and; focusing TOD strategies judiciously along transit corridors, by understanding travel relationships between trip originations and destinations.

To be effective, TOD policy formation should begin with setting quantifiable benchmarks that best represent the objectives and goals of the city. While shifting the mode share is a prominent TOD benchmark, other benchmarks should also be considered, especially for Mumbai and Delhi, where the mode share already is quite favorable. Benchmarks that quantify the following strategies can be utilized to measure the success of TOD policies:

·         Matching land use capacity along transit corridors to the MRTS capacity – This approach would be most effective for cities where a singular Mass transit system is being utilized for a TOD strategy. This will help create an optimum density along the corridor, and avoid congestion that may arise due to over intensification along the corridor.

·         Identifying existing transit rich areas –Existing neighborhoods with high public transit density should be candidates for TOD strategies to match the transit capacity. Transit stations areas that have multiple modes of transit such as regional rail or BRT could have much higher densities beyond what would have been dictated by the previous benchmark.

·         Setting land use mix goals for neighborhoods and districts – A diverse mix of land uses is the cornerstone for pedestrian and transit-oriented community. A benchmark for a desirable use mix would measure existing transit supported single use neighborhoods changing over time and attain the desired mix without necessarily intensifying beyond an optimal density.

·         Setting benchmarks for increasing cycle/rickshaw infrastructure – Rather than focusing on a private to public travel mode-shift, settings goals for increasing NMT modes could be more effective in changing travel habits. It has been evident in many cities, where proper investments are made in pedestrian/bicycle infrastructure, more people use it. Bogota, Copenhagen, Portland, Curitiba are prime examples of this.

·         Identifying TOD ready areas – Old, resettlement and traditional neighborhoods may already have ‘good bones’ for becoming a TOD with good street connectivity, use-mix and density. By adding transit connectivity, and minimal infrastructure interventions, they could become transit-oriented.

·         Setting a benchmark for affordability along the corridor – One of the goals set by DDA’s TOD policy is housing for all ^[4] by mandating affordable housing be part of any new project within the TOD zone. Affordability in urban metros should include the cost of housing and transportation. If redevelopment of existing slums is part of a TOD project, the resettlement should account for both the cost of housing and transportation from the new housing to the existing job centers of the displaced residents. If the cost rises beyond an established benchmark, alternatives should be considered.

These strategies, though not comprehensive, are crucial for making TOD successful in urban India. Setting benchmarks for these contextual strategies will provide targets that city planners and administrators can aim for by appraising policies, strategies and projects periodically to ensure the city is transforming from being auto-dominated to a more equitable multi-modal oriented environment.

Note: 

1. A more generalized version of this blog is posted at theCityFix.com - here
2. The Institute for Transportation & Development Policy(ITDP) has recently published a set of TOD standards that provide key metrics for creative good TOD projects. These metrics could be a good starting point for customizing Indian TOD strategy benchmarks.

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[1] UTTIPEC (2012). Transit Oriented Development – Policy, Norms, Guidelines pp. 3

[2] LTA Academy (2011). Passenger Transport Mode Shares in World Cities. Journeys, Issue 7 pp. 60-71. Website: http://ltaacademy.gov.sg/doc/JOURNEYS_Nov2011%20Revised.pdf

[3] The Economic Times (August 10, 2013). Delhi Metro sets ridership record with over 25 lakh commuters. Website: http://articles.economictimes.indiatimes.com/2013-08-10/news/41268141_1_ridership-record-delhi-metro-thursday

[4] UTTIPEC (2012). Transit Oriented Development – Policy, Norms, Guidelines pp. 3