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Empty Spaces, Endless Possibilities: Unleashing Urban Voids in India

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 International Conference on Future of Skills in Architecture, Design, Planning and Allied
Fields: A way forward for better Industry and Society

Empty Spaces, Endless Possibilities: Unleashing Urban

Voids in India
Harshad Raisoni1 Dr. Tanaya Verma2, Dr. Arati Petkar3

1
Reasearch Scholar, ASAP, Amity University, Rajasthan.
2
Director, ASAP, Amity University, Rajasthan.
3
Asst. Professor, Department of Planning, COEP Tech. University, Pune.
1
ar.harshadraisoni@gmail.com
2
tverma@jpr.amity.edu
3
asp.civil@coeptech.ac.in

Abstract
Urban land has become a crucial entity required to carry out multiple public infrastructural
projects in many compact Indian cities. In several cases, the public agencies attempt to consume
a significant proportion of the acquired urban land for the envisaged purpose but fail in utilizing
the land to its fullest capacity due to various financial or administrative reasons. As a result,
several lands earmarked for societal purposes remain vacant, unutilized, or underutilized,
severely affecting the urban realm of the city.

Such lands are termed as urban voids for this research. They need to be addressed in holistic
perspectives as the piece-meal approaches in resolving the scenario proved to be futile. Such
peculiar cases ought to be resolved primarily through policy interventions which necessitates the
holistic foundational studies required for understanding the gamut of urban voids in Indian
context. This research attempts to provide that perspective and sets the need for defining and
classifying the urban voids in an Indian scenario. It presents umpteen definitions and categories
available worldwide and endeavors to profound the Urban Void definition for the Indian context.
While addressing this gap, the research also suggests the set of qualifiers required for the
identification of the void lands based upon the parameters and provides the typology of voids.
This foundational study will underline the necessity for defining these empty spaces having
endless development possibilities. It will also be useful for the decision makers to formulate
appropriate policies considering land as a resource model.

Keywords: Urban voids, Defining voids, void qualifiers, land as a resource, Indian context

1. Introduction
In the ever-evolving urban landscape of India, the utilization of urban land has emerged as a
critical factor in realizing ambitious public infrastructure projects within the constraints of
compact city spaces. However, a recurring challenge has arisen where substantial portions of
acquired urban land are left idle, underutilized, or unutilized, resulting in a profound impact on
the urban fabric especially on socio-cultural aspects (Jayanthi, 2018). This intriguing
phenomenon, termed as ‘urban voids’ in this study, represents a perplexing urban planning
dilemma that requires comprehensive and integrated solutions beyond fragmented efforts
(Trancik, 1986).

Numerous instances across the nation demonstrate how public agencies, despite initially
procuring urban land for designated purposes, often encounter obstacles, whether financial or
administrative, that hinder the realization of these intended projects to their maximum potential.
Such sites have become blight and creates a negative image of the city on a global platform
(Silva, 1998). The resultant effect is an array of vacant or partially utilized lands that hold
immense promise for community advancement but remain caught in a state of stagnation (KIT,
2015). This phenomenon has not only urban planning implications but also broader social and
economic consequences, requiring a more profound understanding and strategic approach.

In this context, the present research endeavours to delve into the intricacies of urban voids in the
Indian urban framework, culminating in a comprehensive and contextually relevant
understanding of this phenomenon (Raisoni, et al., 2019). It is apparent that ad hoc solutions have
failed to address this multifaceted challenge, underscoring the need for policy interventions
grounded in a robust foundational understanding. Hence, the main objective of the research is to
establish the groundwork for such interventions by defining and categorizing urban voids within
the Indian context.

Drawing upon a plethora of global definitions and classifications of urban voids, this research
aims to tailor a nuanced and applicable definition specifically suited to the Indian scenario.
Beyond merely offering a theoretical framework, the research proposes a set of parameters that
serve as qualifiers for identifying urban voids and subsequently presents a typology of these
vacant or underutilized spaces.

By delving into these dimensions, the study aspires to illuminate the potential harboured by these
empty spaces and the diverse development prospects they encapsulate. Available lands can act
as a valuable resource in generating and mobilizing the capital or revenues upfront (Ballaney,
2013). Additionally, these urban voids have been found to have huge economic potential
(Peterson, 2008) and it can act as a catalyst to the local economy with the optimum utilization
and monetization (Raisoni, et al., 2023).

In a larger context, this foundational investigation will aid to the realm of policy formulation and
stand to empower decision-makers with insights into treating urban land as a valuable resource,
prompting the design and implementation of policies that harness the latent potential within urban
voids. By addressing the persistence of these voids, policymakers can not only enhance urban
aesthetics but also stimulate economic growth, community engagement, and sustainable urban
development.

Ultimately, this study sets out on a journey to unravel the intricate tapestry of urban voids in
Indian cities, inviting a holistic perspective that goes beyond isolated solutions. By encapsulating
the basic essence of these unutilized spaces through this foundational study, the transformation
of urban voids could be effectively achieved.

2. Analysis of Urban Voids

To achieve the objectives set for the research, it becomes imperative to analyse the available
definitions, the characteristics of voids and its typology. This analytical study will prepare a base
in defining the definitions of urban void in Indian context and setting up the qualifiers.
2.1. Analyzing the existing definitions of Urban voids

Following are the various definitions given by different authors or agencies to justify the meaning
of the urban voids as per their own context.

2.1.1. Urban Voids: According to Karlsruhe University Researchers “Urban voids are all areas
in a city, whose functions and designs have not yet been decided upon conclusively.” These may be
reserve areas, fallow land, distance spaces, vacant buildings, polluted or unused properties. All
these areas do not fulfill any concrete function in the urban system (Aruninta, 2009). Roger Trancik
describes the Urban voids as “the spaces that are useless, underused, abandoned, or in-between
spaces among public and private realms” (Trancik, 1986).

Going by meaning of the term ‘void’ is something which is ‘being without’ hence an urban void
can be interpreted as an urban area being without permeability and social realm. Urban voids are
undesirable urban areas that need redesign, anti-space, making no positive contribution to the
surroundings or users. They are ill-defined, without measurable boundaries and fail to connect
elements in a coherent way (Trancik, 1986).

Whereas Aporee suggests that “The voids of the city are spaces which disrupt the urban tissue,
leaving it incomplete and throw into question the use of those spaces. Sometimes called Urban
ruins”, they are at the limit between private and public space, without belonging either to the one
or to the other” (Aporee, 1998).

Void spaces are usually negatively identified as the problems of city beautification, deteriorated
environment, poor visual quality, undesirable and untidy conditions, the cause of violations and
public safety problems, and even more severe negative effects to the environment like 'Brownfield'.
In common, under-utilized land has been recognized as a significant barrier to the revitalization of
central cities and it is one of the most visible and demoralizing signs of inner-city decline
(Accordino & Johnson, 2000). Urban voids doesn’t mean the planned open and green spaces or
planned sidewalks which has specific purpose assigned to them but it means ineffective and
underutilized lands.

2.1.2. Vacant Lands: The Cambridge dictionary defines the vacant land as “Land that may be
improved and developed but is not currently in use.” According to Australian Government’s
Foreign Investment Review Board “Vacant land are the lands on which a dwelling has not been
constructed. A lot or parcel of land that is without any building, structure or improvement,
including impervious surfaces, but does not include recreation, green or open space created around
private or public facilities nor parcels connected or contiguous there to for the same or similar
uses.” (FIRB, 2017).

The authors Bowmann and Pagano conveys that “The vacant land includes not only publicly-
owned and privately-owned unused or abandoned land or land that once had structures on it, but
also the land that supports structures that have been abandoned, derelict, boarded up, partially
destroyed, or razed”(Bowman & Pagano, 2000).

According to the Environmental Protection Act 1990 (Kingdom, 1990) of United Kingdom “The
vacant Land can be described as land on which some previous productive use has creased for a
significant period of time and also land which would benefit from development or improvement.”
“Land which remains free of buildings, structures or human activities, except for agricultural,
forestry or conservation purposes. Land on which no permanent structure has been erected and/or
which is undeveloped” says the Canadian Board of Treasury.

The Maharashtra Vacant Lands Act, 1975 have no definition of urban voids but it defines vacant
lands as “All lands, whether agricultural or non-agricultural, which are vacant and are not built
upon on the appointed date”.

2.1.3. Contaminated Lands (Brownfields): According to the Environmental Protection Act 1990
of United Kingdom, “Any land which appears to the local authority in whose area it is situated to
be in such a condition, by reason of substances in, on or under the land, that; significant harm is
being caused or there is a significant possibility of such harm being caused; or pollution of
controlled waters is being, or is likely to be caused.” (Kingdom, 1990).

“With certain legal exclusions and additions, the term ‘brownfield site’ means real property, the
expansion, redevelopment, or reuse of which may be complicated by the presence or potential
presence of a hazardous substance, pollutant, or contaminant” conveys the United States
Environmental Protection Agency.

Brownfield land is a term used in urban planning to describe any previously developed land that is
not currently in use, whether contaminated or not or, in North America, more specifically to
describe land previously used for industrial or commercial purposes with known or suspected
pollution including soil contamination due to hazardous waste (Alker, Joy, Roberts, & Smith,
2000).

2.1.4. Lost Spaces / Dead Spaces / No Man’s Land: A leftover unstructured piece of land or lost
space defined as No man's land i.e. abandoned sites which are inadequately used. (Trancik, 1986).
The Collins dictionary defines “A No Man's land is piece of land, usually wasteland, to which no
one has a recognized title. It is an unowned or unclaimed piece of land which is also an ambiguous
area of activity or thought. No-man's land is an area of land that is not owned or controlled by
anyone.”

The International Federation of Housing & Planning describes, “Lost space refers to the inadequate
use of spaces in the city and are those undesirable urban areas that require redesign.” (Planning,
2015).

2.1.5. Derelict Lands: Derelict land is defined as 'land so damaged by industrial or other
development as to be incapable of beneficial use without treatment'. It is often associated with
redundant coal mining areas and railways (Kingdom, 1990).

2.1.6. In-Between Spaces: The term can refer to spaces of absence, voids, and the gaps between
the forms of objects. They are the edges and leftover spaces, which are ever-present in urban and
architectural design and which tend to unintentionally collide or create unfortunate divisions. These
spaces intervene between adjacent objects that are ultimately problematic for the physical and social
fabric. (Piccinno & Lega, 2013).
The term in-between has been largely depicted in cultural and social studies as a state of liminality,
often being often associated with contemporary geographical, economic and political questions.
The concept of in-between also implicates the ‘inter’ prefix, one that suggests juxtaposition,
overlapping, and concurrence, particularly between things (Luz, 2001).

2.1.7. Terra Incongnita: The authors have not given the meaning of terra (land) + incognita
(concealed, unknown) directly but the book discussed on the issue of vacant land and other similar
terms extensively. They explored the various meanings including conceptualizations of vacant land
as both ‘good’ and ‘bad’. They gave some examples of both opposite directions by these following
partners; opportunity/ problem and positive/negative (Luberoff, 2005).

2.1.8. LULU: A locally unwanted land use (LULU) is a land use that creates externality costs on
those living within close proximity. These costs include potential health hazards, poor aesthetics,
or reduction in home values. Such facilities with such hazards need to be created for the greater
benefits that they offer society (Brion, 1988).

2.1.9. In Rem Foreclosure Properties: City ownership for nonpayment of taxes has been called an
‘in rem’ status as described by Saving Affordable Housing (SAH, Cooperative Housing in Harlem)
in the case of New York City. It was because of a result of widespread disinvestment and
abandonment in the 1960s and 1970s; a large stock of buildings fell into this situation

Likewise, there are many other related terms like TOADS (Temporarily Obsolete Abandoned
Derelict Sites), Orphan Properties, Enemy property, Urban Wastelands, Remnant Parcels and so
and so forth. The qualitative analyses of the above-mentioned definitions have been performed;
which further assisted in setting up the characteristics of Urban Voids. Additionally, an extensive
literature review aided in identifying the characteristics especially for the Indian context as follows.

2.2. Analysis of characteristics of Urban voids

Following are the peculiar characteristics of urban voids found typically in Indian cities.

1. Vacant: Such lands in urban realm which are vacant, unused or fall in between the private and
public realm. No built up or structure is found on such lands. The functions and designs of these
lands are not decided conclusively.
2. Underutilized: Such land parcels are designed with large holding capacity but during the course
of time, the projects become unsuccessful economically by having less footfall. They consume
very less FSI.
3. Obsolete: Such lands which were previously useful sites but in the rapid urbanization phase,
they have become obsolete and now do not perform as per the current needs. Such abandoned
areas having deteriorated services and ruined buildings and premises which are not in use now
are considered as voids.
4. Brownfields: Such industrial sites which have become hazardous, chemically contaminated,
polluted due to its production functions and are environmentally dangerous are called as
Brownfields. Such lands may become obsolete and less productive as many of the industries
have been shifted outside the city area.
5. Illegally occupied: Such lands which under the intensive pressure of urbanization and sky
rocketed land prices, found to be encroached mainly by slums or any undefined use over the
public lands. Gradually, such illegal colonies turn into hub of illegal activities. Such lands are
also used for trace passing and considered as socially obsolete.
6. Change in land use: Such lands where the assigned land use and the existing land use is
different in many of the lands specially in core area of city due to economic pressure.
7. Dump yards: Such sites which are used to throw garbage but are not designated for the same
creates undesirable, unhealthy and untidy conditions over many small pockets of the city which
can also be considered under visual pollution.
8. Uncultured landscapes: The waterlogged areas, ecologically less sensitive pieces, salty &
marshy lands, low lying & fallow (barren) lands and many such other similar areas can be
considered as uncultured landscapes. Such important land resources act as a void in a an urban
context.
9. Urban blights: In the era of placemaking and tourism, numerous land holdings lie in visually
poor conditions. These vacant, obsolete or illegally occupied places turns into a visual decay
which have no positive contribution in urban context, instead they deteriorate the urban
environment. The cityscape or the skyline gets hampered due to such urban blights.
10. Conflicted lands: Such lands which have ownership conflicts, land lying vacant due to legal
disputes and lands without measurable boundaries are cogitated as conflicted lands. These
remain vacant or obsolete till the dispute gets resolved.
11. Reserved but not utilized or underutilized: Such lands which are earmarked as ‘Reserved
Lands’ for amenities and open spaces for the city, but due to lack of proper funds for the
development, such parcels become voids.
12. Infrastructural Voids: The large tracts of lands are occupied for the large infrastructural
projects like highways, multi-level flyovers and other urban requirements. Many a times, the
spaces below and abutting these infrastructures remain vacant or underutilized.

The above mentioned characteristics are commonly used to identify the voids in an urban Indian
context. However, the detail of features may change as per the local context.

2.3. Types of Urban voids

The following types of voids are generally found in most Indian cities majorly derived from the
characteristics study mentioned above.

2.3.1. Industrial Wastelands

1. Abandoned Industrial / Mill Lands.
2. Abandoned / old / hazardous buildings: Brownfields.

2.3.2. Spaces along Transport Networks

1. Road side unused or underutilized spaces – Sidewalks.
2. Spaces below Flyovers, freeways and Metro corridors.
3. Unused spaces along Railway corridors and railway yards.
4. Road Junctions, Loops, Roundabouts, squares, etc.
5. Underutilized footpaths and cycle tracks
6. Defunct bus stops, transport hubs etc.

2.3.3. Vacant lands near Natural features

1. Riverfront, lakefront, canal-front and nallah-front lands
2. Wastelands: Unstructured Landscapes, Salty, Marshy Lands

2.3.4. Unutilized or Underutilized Public lands

1. Reserved lands for Public open and green spaces, Amenity and service plots but unused lands.
2. Land not used for long time like vacated Military lands, failed projects, all previously
earmarked lands for some special purposes, etc.
3. Lower FSI Plots: Large tracts of land for underutilized from long time with low FSI
consumption
4. Illegal squatters and slums on public lands, etc.
5. All such public plots under litigations
6. Dilapidated Historical / Heritage ruined sites / unprotected sites
7. Encroached public lands by vendors

2.3.5. Infrastructural voids

1. Spaces near HT Lines
2. Parking lots, Storage facilities and waste disposal areas
3. Garbage collection / disposal areas

3. Key Findings
After a thorough understanding of several definitions of urban voids, the characteristics study and
typologies of urban voids, the following definition has been set for the Indian context along with
the qualifiers.

3.1. Definition of Urban voids for Indian context

The urban voids have been defined as follows for the Indian context. This definition could further
be utilized for the formulation of methodology and policy framework by the decision-makers.

“The 'Urban Voids' are the defunct, unoccupied, undeveloped, unstructured or underutilized urban
lands having an obsolete infrastructure; which in turn creates tangible & intangible hazards to the
urban fabric; yet has a strong potential of micro-level revival of urban environments by becoming
a catalyser. Therefore Urban Voids have the ability to become the opportunistic spaces that act as
a beneficial resource for the City.”

3.3. Qualifiers to be identified as ‘Urban voids’ in an Indian context

Following points become ‘Qualifiers’ for the public lands to be identified as ‘Urban Void’ in an
Indian context. These points have been extensively analysed based on the definition set,
characteristic study and types of voids investigated for this research.

1. If the land is vacant / unutilized / unoccupied / undeveloped / barren

2. If the land is underutilized with low consumption of FSI
3. If the land is defunct, environmentally polluted and/ or has obsolete buildings &
infrastructure.
4. If the land geometry is such that the land is undevelopable
5. If the land has uncultured landscapes
6. If the land is encroached / illegally occupied.
7. If it is considered as an urban blight with a poor imageability and visual decay of the city
8. If the land available near developed infrastructure has all the potential for the development
but if it is still not tapped and utilized, then such lands become underutilized lands.
4. Conclusions
In conclusion, this research underscores the critical importance of effectively utilizing urban land
in compact Indian cities for public infrastructural projects. The phenomenon of urban voids,
wherein acquired lands intended for societal purposes remain vacant or underutilized, poses a
significant challenge to urban development. The study demonstrates that addressing these voids
requires a holistic approach rather than fragmented solutions, as previous attempts have proven
ineffective. Policy interventions emerge as the primary means to tackle this issue, necessitating a
comprehensive understanding of urban voids in the Indian context.

Through a thorough examination of global definitions and classifications of urban voids, this
research has sought to establish a distinct perspective tailored to the Indian scenario. By proposing
a comprehensive definition of urban voids specific to India, the study aims to lay the groundwork
for identifying and categorizing these vacant spaces. The research also introduces a set of
parameters to guide the identification process, along with a typology that categorizes voids based
on their characteristics.

Ultimately, this foundational study underscores the urgency of addressing urban voids as spaces
teeming with untapped development potential. Its findings offer valuable insights for decision-
makers in formulating effective policies that consider land as a precious resource. By embracing
this research's insights, authorities can pave the way for more efficient land utilization, fostering
vibrant and dynamic urban landscapes while realizing the overarching goal of comprehensive and
sustainable urban development.

5. References
Accordino , J., & Johnson, G. T. (2000). Addressing the Vacant & Abondoned Property Problem.
Journal of Urban Affairs, 22(3).
Aruninta, A. (2009). The Development of a Public Land Management Policy For Under-Utilized
Space in Bangkok, Thiland. Bangkok, Thiland: Asian Institute of Technology.
Ballaney, S. (2013). Inventory of Public Land in Ahmedabad, Gujarat, India. The World Bank.
FIRB. (2017, July 1). Vacant land – conditions on development [GN19]. Retrieved from
www.firb.gov.au: https://firb.gov.au/resources/guidance/gn19/
Jayanthi, V. (2018). Rethinking Urban Voids: An Investigation beneath the Kathipara
Flyover,Chennai into a Transit Hub by Adaptive Utilization of Space. International Journal of
Architectural and Environmental Engineering, 12(2), 1-1.
Kingdom, G. o. (1990). Environmental Protection Act 1990. Retrieved from
www.legislation.gov.uk/: https://www.legislation.gov.uk/ukpga/1990/43/contents
KIT. (2015, Oct 30). Urban Voids: Recoding Functionless Areas in a City. Retrieved from
www.kit.edu:
https://www.kit.edu/downloads/pi/KIT_PI_2015_129_Urban%20Voids%20Recoding%20Fun
ctionless%20Areas%20in%20a%20City.pdf
Pagano, M. A., & Bowman, A. M. (2000). Vacant land in cities: An urban resource. New YorK:
Center on Urban and Metropolitan Policy, Brookings Institution.
Palicki, S. (2015). Multi-Criteria Assessment of Public Space from the Social Perspective. De
Gruyter, Real Estate Management and Valuation, 23(4), 24-34.
 Peterson, G. E. (2008). Unlocking Land Values to Finance Urban Infrastructure
(https://openknowledge.worldbank.org/handle/10986/6552 ed., Vol. No. 7). Washington D.C.:
World Bank.
Raisoni, H. (2018, January). A Review on Public Participatory Urbanism. International Journal of
Engineering Research, 7(1), 001-005.
Raisoni, H., Tungnung K. L., Petkar, A. (2023), Urban Void to Urban Catalyst: Unlocking the
potential of Public Lands in Pimpari-Chinchwad. Paper presented at Annual Research on Cities
Summit (ARCS) 7.0, International Conference on Sustainable Urbanism in the Global South,
School of Human Settlements, XIM University, Bhubaneswar, 10-11 February.
https://doi.org/10.5281/zenodo.7648092.
Silva, R. D. (1998). Urban Void as Public Space. Moratuwa: Faculty of Architecture.
Trancik, R. (1986). Finding Lost Spaces. New York, USA: Van Nostrand Reinhold.

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