JahangirnagarPlanningReview

Vol.6,June2008,pp.4956,JahangirnagarUniversity

ISSN17284198

FARasaDevelopmentControlTool:ANewGrowth
ManagementTechniqueforDhakaCity

AdilMohammedKhan

Md.AkterMahmud
Abstract

Growthmanagemntintheformofdevelopmentcontrolmeasureswereintroducedtolimitthe
densityofanareaandregulatetheuseoflandaspertheplan.Withtheinrceaseofpopulation
agglomerationthesizeofcitygrows,marketofproductexpands,eonomicactivitiesincreasesbut
this process have to make a tradeoff with the environmental quality, pollution and other
negativeexternalities.Itisalwaysverycrucialforplannerstoscrutinizetheplanningpermission
applicationscarefullywhileaccomodatingnewdevelopment.Aslandisascarcenaturalresource,
cityplannersintroducedanumberofdevelopmentcontrolmechanismsforoptimumuseofland
without compromising with the citys environment, beauty, comfort and safety though these
mechanismsaredifferentincitiesasthecontextdemands.Thispaperinvestigatesandassesses
howfartheFloorAreaRatio(FAR),anewlyintroduceddevelopmentcontrolmeasuresinDhaka,
willcontributeasatechniqueofgrowthmanagementandhowmuchitwillbeeffectiveinsolving
the problems of Dhaka City and enhance the environmental, social and aesthetic value of a
neighbourhood. The FAR technique has been enacted with a hope that its successful
implementation will bring benefits to the city dwellers. It would be a great challenge for the
developmentauthorityofDhakaCitytoimplementtherulesofFARastheyhaveconstraintsof
skilledmanpowertomonitorthosedevelopmentactivities.

Introduction
Executionofplanningrulesbytheconcernedauthoritiesandexertionofresponsibilities
of the plot owners in various levels of Dhaka City has frustrated the city dwellers.
Mahmud(2007)haspointedoutthatabout94%ofthebuildingsofthiscityinsomeway
haveviolatedtheBuildingConstructionRules(BCR),1996ordeviatedfromtheirapproved
plan.Plansofthecitywereviolatedbothinlocallevelandcitylevelwhichresultedin
insufficientopenspaces.Privatebuildingsinindividuallevelaregrosslyresponsiblefor
illegallymaximizingthefloorspaceoftheirbuildingandviolationofsetbackrulesof
BCR1996.Asaresult,sunlightandventilationinthebuildingsarelargelyobstructedand
thatalsonarrowedtheadjacentlocalroadsandalleys,creatingcongestion.Throughthis
process, it grabbed the necessary urban spaces which could give us comfort and
breathingspace.The MohanagarImaratNirmanBidhimala(MINB)2007(GoB,2007)replaces
theconstraintsofthepreviousrules,whichencourageditsevasionandabuse,andbrings
significant incentives and benefits to all. Provisions of mandatory open space (or,
maximumlandutilizationof40to60%oftotallotareaforaresidentialplot),setback,
ground coverage, Floor Area Ratio (FAR) etc. can provide significant social and
environmental benefits to the residents. It eliminates mandatory height limitations of
buildingsandenablesdesignofmorelivableandopenspacesthroughdesignflexibility
andprovisionoflightingandventilationofbuiltspaces.Thequalityofbuildingandits
monetaryvalueareenhanced,besidesprovidingflexibilitytothearchitectsforspaceand

Lecturer, Department of Urban and Regional Planning, Jahangirnagar University, Savar,

Dhaka1342,Bangladesh.Email:adilmdkhan@yahoo.com

Associate Professor, Department of Urban and Regional Planning, Jahangirnagar

University,Savar,Dhaka1342,Bangladesh.Email:aktermahmud@yahoo.com

JahangirnagarPlanningReview,Vol.6,June2008

50

formanipulation.
ThemajorobjectivesofthispaperistoreviewtherulesinMINB2007,makeanassessment
ofsocial,environmentalandaestheticvalueofFARofMINB2007applicationandalsoevaluate
theimpactofFARatcommunityandcityscale.Relevantplanningtheoriesandplanning
regulationswereexaminedtoassessthepossibilitiesandpotentialsofFARofMINB2007in
developmentcontrolaswellasgrowthmanagementofDhakaCity.Italsofocusesprobable
contributionsofFARinacitywherelandissoscarce,communityspacesaresolimitedand
infrastructureissoinsufficient.
GrowthManagement
It is traditionally been assumed that continuous growth is essential for economic
prosperity but continuous growth with less planning interventions (i.e. development
control)allowedsomecitiesoftheworldtogoinsuchapositionthatenvironmental
qualityhasdegradedandtheybecamealmostunhabitable.OSullivan(1996)thinks,the
largecitiescanexploitscaleofeconomiesinproduction,retailingandpublicgoods.On
thecostside,thelargercityhashigherhousing prices,longercommuting distancess,
more pollution, congestion and crime. Recognizing the land as a precious and rare
naturalresourceandconsideringthecitysbeauty,safety,comfortandenvironmental
quality,cityplannersintroduceddifferentdevelopmentcontrolmechanism.Asplanning
is temporal and contextual, these mechanisms are different in different cities as it
demands. Growth management is not an issue of debate for property right versues
publicinterestorviolationoftheconstitutionalrightstofreedomofmovement,rather
itisameansofenhancingthequalityoflife.
Traditionalplansareoftenunabletoprovideprecisegrowthmanagementtechniquesfor
acity.So,theseplansareformulatedasnecessarykeepingconsistencywiththestrategies
andobjectivesofthegeneralplans.Keeble(1969)viewed
developmentcontrolinvolvesregulationsofthedetailedaspectsofdevelopment,
aboutwhich preciseguidancecannot begivenbythe development plan, soasto
ensureconvenientandslightresults.

Intherealsense,thedesireistoallowfororderlyenvironmentgrowththatwillmeetthe
requirementsforidealliving.PerhapsthisisthepositiveopinionheldbyKeeble,
thatalocalplanning authorityshould,clearlyunderstandthatthesoleobjectiveof
planningandplanningcontrolistosecuretherightuseoflandandthatplanning
powersmustnotbemadetoserveotherends.

CommonlyUsedGrowthManagementTools
Historyofgrowthmanagementinthisworldisnotmucholdanditwasintroducedonly
40to50yearsbacktorestrictthecitysspatialgrowthandregulateitsdevelopment. It
hasbecome increasinglypopularinthelastfewdecadesasawaytoincorporatethe
communitys growth management goals into the comprehensive context of planning.
Dependinguponthecontext,variousgrowthmanagementtechniqueswereimposedin
differentcitiesoftheworld.Oneverysuccessfulgrowthmanagementtechniquemaynot
workinothercityasitscontextisdifferent.Fewpopulargrowthmanagementtechniques
arebrieflydiscussedinthefollowing:
RestrictiononNumber:Withinthiscategoryafixednumberofresidentialbuildings,
commercial buildings or the industrial units are permitted for a given time period.
Managementofcommercialbuildingsandindustrialunitscomeintwoshapes:oneis
restrictingtheamountofsquarefootageofcommercialorindustrialstructuresthatcan
be built within a given time frame and, another measure is to restrict the height of

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FARasaDevelopmentControlTool:ANewGrowthManagementTechniqueforDhakaCity

commercialbuildingsandthusthefloorareawillbelimitedaspertheplan.Thesetypes
ofmeasuresrestrictthebuiltspaceavailableforemploymentandretailtransactions,just
aslimitinghousingconstructionrestrictspopulation.
FixingFloorAreaRatio(FAR): FARwasdevelopedasamorerefinedandadaptable
measureofintensitythanbuildingcoverage.Previouslyplotratiowasalsopracticedfor
thispurpose.Itexpressesinonemeasure,insteadofseveral,themathematicalrelation
between volume of building and unit of land. FAR, however, cannot replace more
traditionalbulkcontrolsentirely.Oftenitisnotasufficientheightcontrolnordoesit
regulatetheplacementofthebuilding onthesite.Sothistechnique mainlyusedfor
regulatingabuildingwithinasite.
Urban Growth Boundaries: Delineating boundaries to restrict growth comes in two
majortypes;oneistopermitandlimitresidential,commercialorindustrialdevelopment
withinagivenjurisdictionboundary.Theseboundariesseektolimiturbangrowthto
specific geographic areas through regulatory restrictions and/or limitations on
infrastructure expansion. Another type is phasing development areas where
developmentapprovalisdeferreduntilacertaintimeperiodoruntilexistingdeveloped
areasaresubstantiallydeveloped.Inthesimplestcase,aphaseddevelopmentsystem
prohibits development in areas that lack sewers or some other basic public service.
Phased development controls can slow growth to allow municipalities to budget
expenditures for expansion of municipal services to developing areas over a longer
period.Slowergrowthcanpreventtheoverburdeningofexistingfacilitieswhile new
onesarebeingconstructed.Phasingcanalsoencouragegrowthnearexistingbuiltup
areas,helpingtoreducesprawl.
Infrastructure Adequacy: These measures typically prohibit the construction of new
developmentunlessthepublicinfrastructureisinaplacetosupportit.Inthismethod,
prior to or as a condition of residential development approval or of commercial/
industrial development approval, it is specifically required to assess the level of
adequacyofservices1 (i.e.roadcapacityortrafficcongestion)orservicecapacity(i.e.
waterorsewerservicecapacity)
Zoning: Zoningis,ofcourse,themostbasicandcommonlyusedlanduseregulatory
tool.Zoningtypicallydictatestheusespermittedoneachparcelofland.Forexample,
commerciallandisrezonedtoresidentialuseorresidentialpropertyisdownzoned2so
thatitcanaccommodatefewerunitsperacrethanitcouldbefore.Eventhecontrolling
measurescanbeimposedtoaddressgrowthissueswithinthecontextof GeneralPlan.
Stepscanbetakentorestrictthetotalnumberofnewsubdividedlotsthatcanbecreated
inagiventimeframe.
GrowthManagementLegislationinBangladesh
DevelopmentcontroltechniquesinthecitiesofBangladeshlargelyfailedduetolackof
propermonitoringoftheconstructionactivities.Mahmud(2006)thinkslackofeffective
enforcementofplanninglawshaveresultedinahabitofplanviolation/deviationfrom
theoriginalplanbytheplotownersandeventuallygivingrisetoanunplannedand
haphazard development of the city. Existing planning regulations are not exercised
properlyduetocorruption,sociopoliticalinfluenceandlackofinstitutionalcapacityof
1

levels of service is measured on the basis of specific standards for virtually all public
infrastructure,includingroads(congestionlevels),schools(capacityandcrowding),parks(acres
perperson),andpoliceandfireservices(responsetimes).
intendedtoreducetheultimateholdingcapacityofanarea,eitherintermsofresidencesorthe
landavailableofbusinessexpansion.

JahangirnagarPlanningReview,Vol.6,June2008

52

theauthorities.Sogrowthmanagementtechniquesnevercomeupwithitsdesiredresult.
Developing countries are struggling with the insufficient and ineffective laws and
regulationsfordevelopmentcontrol.Perhaps,theyarestrugglingtomeettheimmediate
needandkeepingbodyandsoultogetherratherthanfindingasolutionofensuring
betterlivingenvironment(Mahmud2007).Presently,wehavefewlegalinstrumentsthat
ought to be used for controlled development of the towns and cities of Bangladesh.
Density control is generally one of the preferred development management tools as
densitiesdefinetheoverallsizeorbulkofconstructionwhilealsoexpressthedemand
thatanareaplaceonitsinfrastructure.

DMDPUrbanAreaPlansetforthguidelinesfordevelopmentmanagement(DMDP,
1995,VolII,P6).DMDPreportsuggeststhatcurrentRAJUKpracticeofallowing6
storeybuildingsinplanneddevelopedareasshouldcontinue:ifhighdensitiesare
to be permitted anywhere, it should be in areas where existing infrastructure
provision is the highest. The practice is also appropriate in the context of
anticipated density increases in existing area. In spontaneous growth areas,
developmentupto6storiesshouldonlybepermittedwhereitwouldnotover
burdeninadequateinfrastructurenetworks.

MohanagarImaratNirmanBidhimala:MINB2007amendedin2008providedmore
authoritytoRAJUK,clearcutresponsibilitytomonitorthedevelopmentofthecity,
spread out the responsibilities to various actors, spell out the responsibilities of
buildingdesigners,structuralengineers,sitesupervisorsandthepenaltiesifthey
fail.Importantly,itintroducedFARtomanagethegrowthofthecitybyitsrulesof
buildingcoveragearea,allowablefloorspaceandrelationamongbuildingheight,
roadwidthandplotsize etc.Obviously,success ofitwillfullydependonhow
theserulesareimplementedbyRAJUKinatransparentway.

Private housing and land development rules 2004 provides a complete legal
supportforlanddevelopmentinprivatesectorhousingwhichpermits350persons
peracrethoughthisstandardisquitehighcomparedwithothermegacitiesofthe
world. It provides complete procedures and guidelines for land development,
protectingtheenvironment.Italsoprovidespercentagesoflandthatmustbekept
forcommunityfacilities,amountoflandtobesoldout,schoolsites,roadhierarchy
and importantly planning standards, for example, allocation of land per 1000
population(GoB,2004).
WhatisFloorAreaRatio(FAR)?

The FAR is the totalbuilding square footage (building area) dividedby the site size
squarefootage(sitearea).Thus,anFARof2.0wouldindicatethatthetotalfloorareaofa
buildingistwotimesthegrossareaoftheplotonwhichitisconstructed.
Thus,FAR=(Totalcoveredareaonallfloorsofthebuildingonaplot)/(Areaoftheplot)

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FARasaDevelopmentControlTool:ANewGrowthManagementTechniqueforDhakaCity

Fig.1:ThisfigureshowsFARof1.0
Source:http://www.carfree.com/far.html

Thissimplymeansthat,ifthearea
oftheplotis100squaremeters,then
100squaremetersofgrossfloorarea
has been built on the plot. The
illustration above shows a 4story
building covering 1/4 of the site,
givingaFARof1.0.Fourfloorsof25
squaremeterseacharebuiltonasite
of100squaremeters.

Anotherinstance,anareahastheplanningdecisionofhavingFARof1.5andhereare
somewaystogetaFARof1.5:

Builda2storybuildingon75%ofthesite(2x0.75=1.5)

Builda3storybuildingon50%ofthesite(3x0.5=1.5)

Builda4storybuildingon37.5%ofthesite(4x0.375=1.5)

ThisshouldbenotedthataFARof1.5isquitehigh,althoughthisdensityisnotunusual
inVeniceorcentralParis,andisconsiderablyexceededinmostareasofManhattan.Most
ofthecitiesofdevelopedcountriesthosedonthavethescarcityoflandcanaffordtotake
themeasureoflowerFARthan1.0.MostoftheEuropeancitieshaveFARlessthan1.0.
FARprovidesthefreedomtoconstructtallerbuildingmaintainingthegivenFARbutit
shouldbekeptinmindthathigherbuildingswouldleavemoreroomforstreetsand
gardens,butbuildingshigherthan4storiesarenotdesirablebecausetheyareexpensive
to construct and unpleasant to live. By applying of FAR we can ensure more
environmentalandsocialbenefitsforgeneratingurbanspacesforoureverydaylife.
Buildingcoveragewillbehalfoftheplotwhen
FARvalueofanareais0.5.Plotcanbeused1
floorathalfoftheareaoftheplotor2floorsat
onefourthoftheploteither.
BuildingcoveragewillbefullwhenFARvalue
ofanareais1.0.Plotcanbeusedas1floor
coveringthewholelotor2floorsathalfofthe
plotor4floorsatonefourthofthelot.

Fig.2:TheoreticalexplanationofFAR.
FARinDhakaMohanagarImaratNirmanBidhimala2007
MinistryofPublicWorksandHousingpromulgatedDhakaMohanagarImaratNirman
Bidhimala (DMINB) in12April2006 underthepowerofTheBuildingConstruction
Act,1952butitwasbeingeffectivefrom1January 2007.Fromitsfirstpromulgationit
wasamendedquitefewtimes.ThisplanninglawintroducedanewtechniqueofFAR

JahangirnagarPlanningReview,Vol.6,June2008

54

development control which contributes in growth management for Dhaka City. By

introducingFARithaseliminatedrestrictionofthebuildingheight,exceptinfewareas,
andpermittedtotalfloorspaceaspertheplotsizeanditsadjacentroadwidth.Ithasalso
providedascheduleforFARIndexwhereFARindexwasdeterminedonthebasisof
plotsizeandadjacentroadwidthofthatplotwhichissameforwholecity,whichisnow
beingconsideredasoneoftheweakpointofthislaw.
Dependingonthesizeoftheplotandthewidthoftheadjacentroad,MINB2007has
proposed minimum and maximum FAR ranging from 3.25 to 6.0 for residential
buildings,2.0to4.5forEducationalbuildings,3.25to4.0forcommercialbuildingsand
3.0to10.0forofficebuildingpurposes.AlltheproposedFARinMINB2007arequite
highforacity which willaccommodate quite abig populationsize.Consideringthe
urbanizationrateandlandscarcitythesehighstandardswereadopted.
PlanningPermissioninDMINB2007
SuccessofFARimplicationwillmostlydependonthestagesofplanningpermissionof
MINB2007,especially,thelaststagewhereoccupancycertificatewillbeissuedbasedon
the field inspection. Inspectors will prepare report comparing the approved plan by
RAJUKandthebuildingconstructedinrealground.Tounderstandthetotalprocessand
the4stagesofplanapprovalofabuildingaregiveninveryshortintheFigure3.
Landuse
Clearance

All form of
development or
construction need to
have land use
clearance

Development
Permit

Building
Permit

Occupancy
Certificate
Beforeobtaining
occupancycertificate,that
buildingcannotbeused

Document to attach:
legal ownership
papers of land
Land clearance
certificate
Soil test report
FAR calculation & use
All the architectural
design and other
technical reports
List of responsible
technical personnel
NOC of other
stakeholders

Few projects need to take

development permits:
Residential building with more
than 40 units
Commercial building with more
than 5000 sqm floor space
Any project more than 2600
sqm site area
Projects directly connected
with highway or major road
Recreational use more than
1 hectre area
Any polluting industry
Any construction within 500
meter of an historical site
Any construction within 500
meter of a natural site

Fig.3:Stagesofplanningpermissionanditssalientfeatures.
BenefitsofFAR
Provisionsofmandatoryopenspace(or,maximumlandutilizationof40to60%oftotal
plot area for residential building), setback, ground coverage, FAR etc. can provide

55

FARasaDevelopmentControlTool:ANewGrowthManagementTechniqueforDhakaCity

significantsocialandenvironmentalbenefitstotheresidents(MINB,2007).Asitpermits
afixedamountoffloorspace,itindirectlylimitsthenumberofoccupantsofthebuilding
whichinturnwouldrestrictdensityofanareauptoacertainlevel.Fewotherbenefits
areasfollows:
Asiteliminatesheightrestrictionofbuildings,itenablesarchitectsmorefreedomto
design more livable and open spaces through design flexibility. The quality of
building and its monetary value is enhanced. It may produce more community
spaces,ifeffortscanbetakeninthecommunitylevel.
Itenablesprovisionofessentialparking,fireescapes andmechanical spacesfor
whichadditionalfloorareasarepermitted.IntroductionofFARofMINB2007will
increasemandatoryopenspacesaroundthebuildingwhichwillallowsufficient
light and ventilation to the building and reduce the total amount of built
environmentanditsimpactstothemacroclimate.About 50% oftheopenspace
mustbekeptunpavedsothatitwillallowmorerainwatertorechargetheground
watertablewhichisverymuchnecessaryforDhakaCity.

JahangirnagarPlanningReview,Vol.6,June2008

56

Fig.4:MoreopenspacescanbemanagedbyfollowingFARtechnique.
Source:Zaman,2005.

It makes open grounds, balcony and terraces, etc. affordable without loss of
buildablefloorarea,therebyimprovingtheenvironmentoftheneighborhoodand
buildings.
Awal (2006),claimsthattheFARprovisionsofthenewrulespermitgreaterfloor
area,makingdevelopmentmoreprofitableevenforthesmallestlandowners.
Table1:ComparativestatementbetweenBCR1996andDMINB2007.
Land

2.0Katha

2.5Katha

5.0Katha

7.5Katha

Road

20ft

20ft

20ft

20ft

FAR

3.0

3.25

3.50

3.75

Numberof
Floor

Rules1996

G+5

G+5

G+5

G+5

Rules2007

G+5(min)

G+6(min)

G+6(min)

G+7(min)

Ground
Coverage

Rules1996

60%

60%

65%

70%

Rules2007

65%

60%

60%

60%

TotalFloor
Space

Rules1996

4290sq.ft

5378sq.ft

11619sq.ft

19066sq.ft

Rules2007

4320sq.ft

6143sq.ft

13125sq.ft

21068sq.ft

Description

Source:Awal,2006.

It encourages greater floor area entitlements, and joint venture development of

adjacent plots by owners without legal restrictions which is profitable due to
increasedFloorAreaentitlements.
RecommendationsandConclusion

TogetthemaximumbenefitsofFARrules,applicationofFARshouldbeinthe
communitylevelwithcommunityeffortthantheindividualplotlevelwhichisa
greatchallengeinthesocioeconomiccontextofDhakaCity.Effortsmaybetaken
from the public authority level with the participation of private developer and
communityforthedevelopmentofareas.

A generalizedFAR only depending onthe adjacent roadwidthwill not able to

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FARasaDevelopmentControlTool:ANewGrowthManagementTechniqueforDhakaCity

achievetheprimarygoalofFARintroductioninDhakaCity.ValueofFARmustbe
revisedinaccordancetotheplotsize,populationsizeofthatparticularcommunity
and available utility services provisions on community. During fixation of FAR
value,itmustbekeptinmindthatitwillnotexceedtheperacrepopulationdensity
proposedbytheDetailedAreaPlan(DAP)ofthatareaorcontradictwiththepolicy
planofthecityplan.

PresentMINB2007hasencouragedtounifyingthesmallerplotstobiggerplotand
initiatecondominiumforconstructionpurpose.Ownersofthesmallerplotswill
havetospentmoreconstructioncostthanbefore.Sotheywillbesomewayother
compelledtounifytheadjacentplotstogetherandenjoytheadvantageofFARlike;
spaceutilizationandconstructioncostwhichwillrequiresharingmindsetofplot
owners.

ExecutionofDMINB2007passedoneandhalfyearanditistooearlytopredictonits
achievementbutdefinitelyitwillbringgoodresultsiftherulesareexecutedproperly
andthebuildinginspectorvisitsthesiteasaskedintherule.DMINBhasabuiltin
systemofmonitoringofdevelopmentactivitiesintheplanningapprovalprocess.Before
issuing theoccupancy certificate to use the building authoritywillinspect the siteto
checktheplanandreality.So,itisexpectedthatthisprocesswillreduceviolationof
planningrulesinfutureandthuseasethecongestedcityareasinthelongrun.Without
enoughskilledmanpowerofthecitydevelopmentauthority,thislawwillnotbringthe
resultsasitwasexpectedbeforepromulgatingtheMINB2007.
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http://www.carfree.com/far.htmlRetrievedon12May2008.