An Assessment of Institutional Capacity of RAJUK in

Development Control of Dhaka City

Abstract
RAJUK (the capital Development Authority), former DIT, has been established in 1956
and entrusted with giving the responsibilities of improving physical and urban
condition of the Dhaka City. It is the supreme authority for 3 specific areas;
preparing plan for Dhaka city, execution of plan and control its development within
its jurisdiction. Presently, Dhaka became one of the fasted growing cities in the world
and its population more than 12 millions. Around 350 thousands new people are
adding to the existing city population in every year which creates huge pressure on
traffic and transportation, housing, power, gas and other utility services. It became
almost impossible to the city development agencies to deliver housing, transport and
other services to the city dwellers accordingly. So that every year scenario of city’s
built environment is getting worse than the previous year. RAJUK miserably failed in
the plan execution especially control its development as per the plan and the norms
and planning laws of the city. RAJUK provides ‘Planning Permission’ and ‘Land use
Clearance’ to the private land owner to construct any structure on his/her land in the
urban area in accordance to the compatibility of the master plan. It is the only
technique to implement the master plan and maintain the desired land use of an
urban area. But due to serious shortage of skilled manpower, corruption in the
planning permission process, lack of visionaries and weak monitoring capacity of
RAJUK Dhaka city grew haphazard way and turned into an unmanageable mega city.
As a result, the living conditions have deteriorated very rapidly and the social as well
as physical infrastructure are on the verge of collapse. This paper mainly focuses on
the process of planning permission of RAJUK for a new building and evaluates its
capacity of monitoring the development of Dhaka City. It also criticizes the
shortcomings, bribing and malpractices in this process which resulted an unplanned
city.

Introduction
It is the responsibility of urban local government to prepare physical development plan 
of a city and develop and control its growth accordingly. Ratecliff (1993) explained that, 
for this purpose ‘certain planning standards are followed to control the physical setting of 
the urban area and to ensure safety, health, amenity welfare, convenience, efficiency and 
public interest.’ A system of development control introduced in UK under the provisions 
of the 1947 Town and Country Planning Act which required for the first time that all 
future building development and any material change in the use of the building would, 
henceforth,   be   subject   to   the   need   for   planning   permission   from   a   local   authority 
(Ratecliff, 1993). In Dhaka city a government nominated a special agency RAJUK (the 
Capital   Development   Authority)   prepares   city   plan   and   sets   the   broad   goals   and 
objectives of the development plan. All the strategies of development plan are translated 
into specific land use and space requirements in such a way that it could ensures the 
optimum utilization of resources as various uses of land competes to each other. 
RAJUK is the legitimate agency entrusted with the job of preparing plan for Dhaka city, 
ensuring development as per the prepared plan and controlling the future development. 
It exerts its power of development control as per the development plan through planning 
permission1  (Mahmud   2006).   Planning   Permission   is   consisting   of   2   phase   approval 
namely; land use clearance and building permission. ‘Land use clearance’ certificate is 

1
It is the certification that proposed land use of a land is compatible with the development plan and its
design followed the planning laws and standard of RAJUK.
1
given after examining the compatibility with master plan and ‘Building Permission’ is for 
proper designing a building as per the Building Construction Rules of RAJUK.  
Presently,   RAJUK   exercise   5   legal   instruments   for   the   development   control   of   Dhaka 
City’s   land   use.   They   are   Town   Improvement   Act   1953,   EBBC   (East   Bengal   Building 
Construction)   Act   1952,   Private   Residential   Land  Development   Rules   2004,   Wet   Land 
Conservation   Act   2002   and   Development   Metropolitan   Development   Plan   (DMDP). 
Every   construction/erection/excavation   with   in   the   jurisdiction   of   RAJUK   requires 
permission/approval from the Authorized Officer or Building Construction Committee 
appointed under the provision of the Town Improvement Act, 1953. Any type of building 
construction, housing, commercial, industrial and whatsoever need planning permission 
and they must be in conformity with the land use provision of Master Plan/Urban Area 
Plan/Detailed Area Plans of different SPZ’s. 
Mahmud (2006) thinks, due to RAJUK’s weak institutional capacity, development control 
of Dhaka City can be characterize in these ways;  Firstly,  whole the process of planning 
permission is criticized with lot of allegations like; unnecessary delay of file processing 
and harassment coupled with bribery and corruption.  Secondly, overlooking or ignoring 
the provisions of planning laws intentionally from RAJUK and client both end. Third one 
is more technical that is in­competencies of RAJUK for skill man power and insufficient 
urban   planners   in   the   planning   department.  Fourthly,  which   happens   in   the 
implementation stage, is violation of plan by the people, construction without planning 
permission etc for the lack of effective monitoring by the RAJUK. 
This paper will demonstrate the process of getting a planning approval, critically review 
the whole process, how it affects the development control and last not the list, how it 
helps to implement the plan of a city.

Objectives and Methodology

Following objectives were set to prepare the paper;
• To review the development control mechanism of RAJUK
• To identify the reasons behind this process for being lengthy and
complicated
• To evaluate the institutional capacity and transparency of concern
departments of RAJUK
• To formulate a policy guideline to develop an easy and effective
mechanism plan-permission for building construction

Methodology of the study describes the research strategy adopted and step
followed to achieve the objectives of the study as showed in the following.
i) Conceptualization: collected text and document related to development
control, growth management and planning permission helped to
develop theoretical background of the research.
ii) Secondary Information Collection: Ordinance, rules etc of government in
physical planning were collected from RAJUK and other related
organization and studied to know the functions, roles and responsibility
of concern authority. An in-depth investigation into the recorded
documents helped to understand the process of issuing land use
clearance and building plan-permission and their nature.
iii) Field Investigation and Justification: A sample survey was conducted in
the year 2008 to know the implementation of ‘approved plan’ from
Md. Akter Mahmud
Page 2 of 17
 RAJUK. Samples were rationally distributed in the different areas of the
Dhaka City. Economic classes, income, planned areas and unplanned
areas were considered during sample distribution. Field investigation
was necessary for this research to know the types of violation of
building rules, how they were deviated from the plan that issued from
RAJUK and how they manage to do that. A comprehensive field
investigation will help to identify and quantify the level of corruption
done by the RAJUK and its officials.
a. Multi-Sampling: Firstly whole city was divided into two major
types e.g.; planned and spontaneously developed area. Then few
areas were selected from both categories as sample. 50 samples
were randomly collected from 3 planned residential areas, Uttara,
Gulshan and Banani, of Dhaka city. Other 125 samples were
randomly collected the spontaneously developed areas like;
Khilgaon, Taltala, Lalmatia, Shamoli, Mirpur, Kallanpur, Bangshal,
Tantibazar and Mugdhapara etc. During sample collection and area
selection socio-economic consideration was taken into account
Sample distribution is shown in the following:
b. Information from RAJUK: the process of “land use clearance” and
building permission process were reviewed. RAJUK officials and the
applicants of building permission and the brokers were interviewed
for preparing the paper.
iv) Interviews: Interviews were conducted with the researchers, experts
and concern officials of RAJUK which will help to enrich the report.
v) Data Analysis: All the information collected from both primary and
secondary sources were analyzed and explored for a suitable solution
Urbanization Pattern of Dhaka City
The creation of the independent state of Bangladesh in 1971, it gave Dhaka the glory and 
prestige of the capital of a sovereign country. This led to Dhaka's phenomenal growth. A 
recent  study  by World   Bank  has   estimated that   about  40%  of  the  total   population   in 
Bangladesh   will   be   living   in   urban   area   in   Bangladesh   by   2025   (ADB,   2000).   Urban 
population   density   in   Bangladesh   was   2179   persons/sq.km   in   1991   and   the   present 
density is estimated at approximately 3008 persons/sq.km. Population density of Dhaka 
mega   city   was   found   to   be   4795   persons/sq.km   in   1991   and   the   present   density   is 
estimated   at   approximately   8573   persons/sq.km.   However,   the   population   density   of 
DCC   area   is   more   than   three   times   of   the   megacity   area,   as   in   1991   it   was   15333 
persons/sq.km against estimated present density of 18055 persons/sq.km (BBS, 2001). 
With limited availability of flood­free land, further densification of population along with 
haphazard   encroachment   of   peripheral   land   of   Dhaka   as   well   as   in   urban   areas   of 
Bangladesh   seems   inevitable.   Dhaka   has   the   lion’s   share   of   urban   population.   The 
following table shows the level of urbanization in Dhaka region.

Md. Akter Mahmud

Page 3 of 17
Table 1: Total Population (in thousand) Residing in the Urban Areas of
Bangladesh
Year Population Urban Level of Dhaka City
of the Populatio Urbanization Populatio Share of
Country n n Urban
Population
(%)
1951 4,20,62 1819 4.33 411 22.59
1961 5,08,40 2640 5.19 718 27.20
1974 7,14,79 6273 8.78 2068 32.97
1981 8,71,20 13535 15.54 3440 25.42
1991 11,14,55 22455 20.15 6487 28.89
2001 12,38,51 28605 23.10 9912 34.65
Source: BBS, 1991, 2001
Above table shows that the level of urbanization has increased in the course of
time. Much of the urbanization has been concentrated in the Dhaka city, which
is 34.65% of urban people live alone in the Dhaka city (BBS, 2001). Presently,
around 120 million of people live in Dhaka city which has created tremendous
pressure in the service delivery system of the city. Around 350 thousands new
people is adding to the existing city people in every year which creates huge
pressure on traffic and transportation, housing, power, gas etc. It became
almost impossible to the city development agencies to deliver housing,
transport and other services to the city dwellers accordingly. So that every
year scenario of city’s built environment is getting worse than the previous
year.

Figure 1: Year Wise Population of Dhaka City

Year Wise Popu

13

12

Data Source: Azam, 2006

Figure 1 shows the population has increased from 7.3 million in 1991 to 12.2
11is expected that the population of Dhaka city will be 13.6
million in 2005. It
Population (million)

million and 24.25 million by the year 2010 and 2025 respectively (Azam,
2006). The primary reason of this fast growing trend of urbanization of Dhaka
are largely attributed to the establishment of capital city, locations of various
government and non-government offices, industrial and commercial
10
organizations, educational institution etc. (Jahan, et al, 2007).This rapid pace
of urbanization creates extreme pressure on basic utility services such as
Md. Akter Mahmud
Page 4 of 17

9
shelter, water, electricity etc. For instance, presently, the water demand of
Dhaka is 210 crore litres per day and the supply is 170 to 180 crore litres per
day. Thus Dhaka is facing shortage of water of 30 to 40 crore litres every day
(Daily Prothom Alo, 2008,). Lion’s share of water supply of Dhaka (86.26%)
comes from groundwater. Groundwater extraction puts heavy pressure on the
city’s water table, especially when most of the city’s supply of water depends
on what the tube wells extract from the ground. As a result ground water table
lowering 2-3 meters every year which became an environmental threat for the
city dwellers.

Planning Permission and Development Control

Planning permission is the only technique to materialize the plan into reality,
control the development into a desired form and implement the planning
standards, planning rules and regulations. So far, municipalities and the
development authorities exercised quite a few numbers of planning laws for
land use and building construction as legislations in the urban areas of
Bangladesh. These are: East Bengal Building Act 1952, the Paurashava
Ordinance 1977, Building Construction Regulations 1984, Building
Construction Act 1996 and recently approved Building Construction Act 2006.
These legal instruments ought to be used sufficiently for controlled
development of the towns and cities of Bangladesh. Though these legal
instruments are not enough but unfortunately our city management
authorities don’t practice much of these legal options we already have in our
hand. The acts and the master plans of the cities are the principal legal
instruments, which forces and exercises planning control and standards. The
land use of metropolitan Dhaka ought to follow the provision of the City
Master Plan. Housing, commercial and industrial project buildings need
planning permission, which are generally practiced. It must be in conformity
with the land use provision of the Master Plan. (Mahmud 2006)

Fig 2: Typical Development Control Process

Goals and objectives of 
development plan
Follow the 
planning  norms/ 
standards

Translation in to land use 
and space requirement

Guided by:
Rules/ Planning Laws
Planning norms
Implementation of plan  Circular
through project/ action  Government order
plan/ planning permission Government decision
Gazette notification

Source: Developed by the Author

Md. Akter Mahmud

Page 5 of 17
Planning standards are found in the various documents of government’s
decision. For town planning practice, government has its legislative standards
such as Building Control Regulations and Byelaws of the local government/
authority, decision of the board and circular of the government. For instance,
development controlling agencies in Bangladesh has Building Construction
Rules 1996, Mohanagar Imarat Nirman Bidhimala 2008, Bangladesh National
Building Code etc for such planning standards and legislative measures.
Sometimes planning standards and guidelines are also imposed from the
recommendation or advice of the commissions, reports and committees or
from the professional bodies. Besides, there are also empirical standards
those devised from the research works and the working experiences in the
planning field.
Processing of planning permission involves two stages:
• Land Use Clearance
• Building Permission

Land use Clearance
Generally planned residential areas of RAJUK like; Gulshan, Banani, Uttara, Dhanmondi 
and other private housing areas that already have the approval of RAJUK for developing 
as residential area are not subject to take the ‘land use clearance’ from RAJUK. For other 
areas   taking   the   land   use   clearance   is   must   before   submitting   plans   for   construction. 
Generally land use clearances are of two types:
• Type 1: General land use clearance 
• Type 2: Land use clearance using TI act

 Fig 3: A general Land use permission process
Collecting ‘Land use
clearance form’ by depositing
400Tk in Bank

Submitting complete
form with Mouza map
showing the proposed
map in the Planning
Section Surveyor will prepare a sketch
with correct field information
& sends it to ATP

Assistant Town Planner Send it to draftsman for

(ATP) of Concern area examining with the Master
Plan and returns it to ATP with
his report

ATP approves
application and send it
to Drafts man

Draftsman sign on
application and send it Applicant collect it from
to disperse disperse
Md. Akter Mahmud
Page 6 of 17
 Source: Own Illustration

Type 1:  Direct land use permission can be given if the proposed criteria of land use in 
certain area matches to the criteria and standards set by the Master plan for that area.  Fig 
3 shows the process how direct land use permission reached to an applicant after he 
submits his application a ‘general land use permission’ within the master plan area.  As 
per the section 74 (1) of TI Act, 
‘…………. it shall be unlawful for any person to use any land for any purposes other  
than laid down in the Master Plan, unless he has been permitted to do so under section  
75,    and
As per the Section 74(3) of the same Act,
‘All future developments and construction, both public and private, shall be conformity  
with the Master Plan or with the amendment thereof.’
Type   2:  Second   type   of   land   use   clearance   is   more   complicated  and   time   consuming 
which is shown in the fig. 4. However, for any kind of deviation or mismatch to the 
Master plan the application have to be proceeding through the TI Act 75(I)/(II). 
­“ 75(1) If any person desires to use any land for any purpose other than that laid down  
in the [Master] Plan, he may apply in writing to the Chairman for permission so to do.”
­ “75(2) If the Chairman refuses permission to any person, such person may, within  
sixty days of the Chairman’s refusal, appeal to the [Kartripakkha] against such refusal.”
Planning clearance or land use clearance is the step to check whether the proposed use of 
land confirm with the prepared plan by RAJUK. Ideally, this clearance assure planners 
that   land   will   be   used   as   per   plan   of   the   city.   RAJUK   control,   all   the   development 
activities   of   Dhaka   City   under   the   provisions   of   Town   Improvement   Acts,   Building 
Construction Rules and Land Use Regulations within the area under its jurisdiction. Any 
use of land or any type of construction needs approval or clearance from RAJUK and 
Authorized Sections are responsible for issuing those land use clearances. 

Evaluation of Land Use Permission Process
In black and white, it should take more or less 3 weeks to get a land use order by a plot 
owner/ applicant. From the field survey it was found that plan permission process is so 
complex, lengthy and harassing that people rarely take the normal procedure of plan­
permission rather they prefer to go through a deal with the illegal agents by giving them 
extra money.   File processing does not processed without persuasion or deal with the 
RAJUK officials. RAJUK’s official website2 says, Land use clearances have found some or 
major   deviations   when   constructing   the   buildings   and   seemed   to   be   regular   practice 
almost   in every  cases   of  approved  plans.  These  happened due  to  non­applications  of 
powers and lack in enforcement of building constructions rules and regulations. Field 
survey and interviews with planners suggest that negligence in duties, intention to forgo 
some   specific   cases,   poor   inspection   and   reporting   and   political   influence   made 
Authorized Section a fearsome part of the organization. In case of some critical issues, 
clients   or   developers   some   how   manage   the   authority   for   land   use   clearances   for 
particular areas where development is restricted for specific purpose. Peoples claimed 
that the files/plans are not approved properly and sites are not inspected as per given 
2
 http://www.rajukdhaka.gov.bd/new/about_rajuk/major_activities.htm Date of visit: May 02, 2009
Md. Akter Mahmud
Page 7 of 17
parameters. The unnecessary harassment or time killing or missing of specific files or put 
objections on files are most common practice dealing the Authorized Sections. The overall 
performance of this section is not up to the mark as mentioned by the clients.

Md. Akter Mahmud

Page 8 of 17
 Fig 4: Land Use Clearance Process Using TI Act
Collecting ‘Land use
clearance form’ by
depositing 400 Tk in Bank

Submitting complete form

with Mouza map showing
the proposed map in the
Planning Section
Surveyor will prepare a sketch
with correct field information &
send it to ATP

Assistant Town Planner Send it to draftsman for

(ATP) of concerned area examining with the Master Plan
and send back it to ATP with his
report

ATP sign and TA act

committee on application
and send it to Member Member planning approves the
Planning through deputy application
secretary

Chairman for his Draftsman

signature

Assistant Town
Planner (ATP) of
Concern area Draftsman

Applicant collects it from

dispatch

Applicant applies again for land use

clearance certificate under TI Act by
depositing 1000 TK.

Source: Own Illustration

Building approval
Building approval is the step where applicant applies by fulfilling the requirements like 
detail   plans,   sections,   elevation   etc   of   the   proposed   building   as   per   the   Building 
construction rules. The following documents are required to authorize a design.
1. Deed   
2. Duplicate Carbon Receipt (DCR) 
3. Land Rent receipt 
4. Mutation 
5. Draft Publication From 
Md. Akter Mahmud
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 6. 7 copies of the plan (for building up to 6 storied) 
If the building has more than 6 floors, a structural design is required along with the prior 
clearance certificates from the 7 organizations as mentioned in the previous section. For 
applying   a   building   permission   of   residential   building/residential   cum   commercial 
building more than 6 storey heights RAJUK demands prior clearance certificates from the 
following organizations:
o Directorate of Environment
o Dhaka Electric Supply Authority (DESA)
o Water and Sewerage Supply Authority (WASA)
o TITAS Gas
o Dhaka Metropolitan Police (DMP) Traffic 
o Dhaka City Corporation (DCC)
o Civil Aviation Authority Bangladesh (CAAB)
RAJUK has a Development Control Section (Authorized Section). Previously this section 
was comprised with two Authorized Officers, two Assistant Authorized Officers, four 
Chief Building Inspectors, 50 Building Inspectors and other staff. Now the number of 
Authorized Section has been increased to four (4) instead of two (2) by increasing the staff 
members   and   demarking   the   areas   specified   under   control   of   each   authorized 
jurisdiction.   These   sections   are   supported   by   the   four   Building   Construction   (BC) 
Committees headed by the Members (Planning and Development) for approval of the 
building plans and exercising the powers of the Act for planned growth of the city.

Law of approving a rejected plan 
If a plan is rejected the plot owner can make an appeal in the appealed division of the BC 
committee. This committee examines the plan again. If they find it is satisfactory, the BC 
committee can approve it. However, they can even reject it.

Evaluation of Building Approval Process
After   a   series   of   checks   and   clarifications   the   application   is   referred   to   the   Building 
Construction Committee for approval or rejection. It is done by the Authorized Section of 
RAJUK. The Authorized section is bound to give the clearance within 3 weeks. However, 
it varies with the frequency of their meeting.  RAJUK admitted in their official webpage 
that  in some cases the process of plan or building construction  approval  or clearance 
delayed due  to some undefined circumstances and caused peoples to take alternative 
solutions. Misuse of power as claimed by the clients; causes unnecessary harassment and 
delay.   The   provisions   of   Act   clearly   defined   that   the   plans   should   be   forwarded   for 
clearance or approval within 45 days and if, any objection made in the plan  must be 
notified within 30 days after submission for approval. In fact the process sometimes take 
more time as specified in the Act and in many cases it takes years to get the approval. 
Without   pursuing   the   file/case   file   does   not   go   forward.   As   a   result,   to   avoid   the 
harassment,   unnecessary   delay,   bypassing   the   planning   laws,   bypassing   the 
shortcomings  of  the  plot;  people tend to take  some  other means for plan  permission. 
RAJUK’s Authorized Sections are carrying out and dealing the process of development 
control  and  responsible  for issuing  land use  clearance  or  approval   for  building plans 
under the provision of TI Act.
Md. Akter Mahmud
Page 10 of 17
 Table 2: Reasons for taking the assistance of agents
Sl  Reasons Percentage
No
1 To avoid unnecessary delay 53%
2 To avoid harassment  22%
3 Don’t have to spent for running after it 7%
4 To avoid the complex process of plan approval 13%
5 Others 5%
Total 100%
Source: Field survey 2008
From the field survey and interview with the client (land owners) and agents, it was 
found   that   5   basic   reasons   are   responsible   for   corruption   in   the   planning   permission 
process of RAJUK. They are:
o to avoid the harassment
o complex process of planning permission
o unnecessary delay
o bypassing the planning laws
o bypassing the shortcomings of the plot owner

Law for a building constructed without prior permission
If   any   plot   owner   built   his   building   without   the   due   approval   of   RAJUK   there   is   a 
provision of regularizing the plan and the building with penalties. There is a law enacted 
since 1987. Under this law it is stated that if a building is constructed without RAJUK’s 
approval but following all the regulations and set backs of RAJUK then it is possible to 
provide permission. But the owner will have to pay a 10 times increased fees along with a 
minimum Tk. 5,000 fine (it can be more).  

Monitoring and Action against Unauthorized Building
The   building   inspectors   of   RAJUK   are   responsible   to   monitor   the   building,   their 
construction, their condition and continuous monitoring of all the buildings within the 
RAJUK jurisdiction area. If they find any kind of deviation or, if any neighbor complains 
against his neighbor regarding illegal construction, building inspectors prepares a notice 
to   the   violators.   This   notice   is   a   2C   type   notice   and   asks   to   show   the   authorization 
documents of the deviators within certain time period. Such notice is send 3 times. If the 
owner fails to show the required documents in time RAJUK is empowered to demolish 
his structure. 
Deviation in Residential Building
Severe problems of plan violation has been found in the construction phase of residential 
building   in   Dhaka   city.   Land   owner   take   the   ‘building   approval’   from   RAJUK   by 
submitting as per the requirements of the BC Rules 1996. But they start to deviate from 
the approved plan from RAJUK while constructing the building. Condition would not be 
Md. Akter Mahmud
Page 11 of 17
so acute if plot owners have complied the plan and rules they promised in the approved 
plan. BC Rules 1996 provided rules for construction of a residential building on the issues 
like width of adjacent road and distance of building from it, distance of building from the 
electric line, land use policy of proposed building, boundary walls, height of the building, 
parking facilities, use of basement and conditions to fulfill, light and air circulation, roof 
and   sunshade,   emergency   entrance   and   others   facilities,   special   rules   for   residential 
building   (setback   rules),   garage   and   rules   for   high­rise   buildings.   Among   them   most 
serious violations were found in the deviation of following provisions; 
a. Maintaining distance of building from adjacent road
b. Maintaining height of building
c. Maintaining setback rules of building

Fig 4: Land use clearance certificate

Fig 5: Lay out map of applicant’s plot

Explanations of above figures 
Fig 4: RAJUK approved the land use clearance with conditions. In ground, for the lack of 
monitoring, land owner does not fulfill the condition as he promised to do.
Fig 5: Space should be kept for Road extension. Plot owner promised to RAJUK on a deed to keep 
2 ft X 36 ft on the north side of the plot for a 20 ft road and 2 ft X 59 ft land on the east side of the 
plot for a 12 ft road. In reality plot owner do not keep space for road extension and violates the 
conditions so set on the deed. Building Inspectors are bribed if they come to visit the site during or 
post construction period. In the above case, roads are still less than 16 ft and 8 ft respectively.

Md. Akter Mahmud

Page 12 of 17
 Fig 6: A narrow alley of Dhaka City Fig   7:   Ground   Floor   Used   for   Shops 
instead of Parking

Explanations of above figures 
Fig 6: A narrow alley near Sonargaon Road. To get any planning permission it is a mandatory requirement 
that adjacent road­width would be minimum 3.5 meter and in case of private road it may be 3.0 meter. In the 
picture this road width is only 2 meter.
Fig 7: Parking space in a shopping complex. In the above photo, shopping complex buildings don’t have any 
parking space which is obligatory and promised to keep in the approved plan from RAJUK. Ground floor is 
used for shop instead of parking.

Performance Evaluation
Violation may occur in different ways in different respects. If a building plan does not 
comply with the rules and regulations of the concerned authority as stated it is called 
violation of rules. The building owners may cause violation the building designers and 
the erector can also violate rules. Violations are if, building construction does not follow 
construction rules of the local authority or does not follow Building By­laws or follow 
setback   rules.   Sometimes   owners   follow   the   building   construction   rules   partially   and 
sometimes they violate rules completes. In the present study building construction rule 
violation   has   been   classified   into   two   broader   classes   like   Partial   Violation   and   Full 
Violation. These are described as follows:
- Total   Violation:  Most   of   the   old   buildings   have   same   problem   of 
constructing buildings without due permission causing total violation. This kind 
of buildings also does not follow the building construction rules as stated in the 
books published by the Government.
- Partial   Violation:  This   kind   of   violation   is   intensively   occurring   by   the 
building owners. After taking the plan permission almost 95% building owners in 
Dhaka city are someway violating the ‘Building Construction Rules 1996’. Types 
of violations are:
i. Constructing floors more than it was permitted
ii. Construct   buildings   covering   open   spaces   as   shown   in   the 
approved plan
iii. Internal rearrangement of approved design without permission
iv. Increase floor space  from the first  floor and above by extending 
cantilever
v. Change its floor use without permission
From  the  survey it  was  found that  more  than  90% of the buildings  were  constructed 
violating the rules of BC Rules 1996 irrespective of planned and spontaneously developed 
areas of Dhaka city.

Md. Akter Mahmud

Page 13 of 17
 Table 3: Setback rules violation and deviation from the plan
Sl  Thana Locations of  Violation of Rules
No Buildings Building  Road  Setback 
Height encroachment Rules
1 Khilgaon  Khilgaon & Taltola 48% 84% 100%
2 Mohammad­pur Lalmatia & Samoli 60% 88% 96%
3 Mirpur Mirpur & Kollanpur 68% 92% 100%
4 Kotowali Bangsal & Tantibazar 68% 96% 100%
5 Sabujbag Mugdapara 78% 96% 100%
6 Ramna Kalabagan &  78% 96% 100%
Kathalbagan
7 Badda Nikunja ­ 2 52% 92% 100%
8 Gulshan  Gulshan & Banani 16% 44% 88%
9 Uttara Uttara 24% 56% 96%
Source: Field Survey 2008
From   the   result   of   survey   it   was   found   that   even   in   the   Uttara   Model   Town   86.66% 
Markets and the Commercial buildings don’t have the parking space as specified in their 
approved plan from RAJUK. Most of the markets are using their basement for renting 
shops. So that users of that commercial buildings and markets park their cars on street 
and occupying road, reducing carriageway of road and resulting traffic jam. Question is 
‘did the town planners/building inspectors of RAJUK notice it?’

The Mohanagar Imarat Nirman Bidhimala (Building Construction Rules 2008)
The   Building   Construction  Rule   (BCR)­2008   was   framed  through   an   intensive   3­years 
effort   of   professional   bodies,   experts   and   civil   society   members   in   consultation   with 
Government, after examination of building control tools in various countries, and with 
specific   consideration   of   land   supply,   population   density   and   resource   constraints   of 
Bangladesh.

Provisions of Building Constructions  
The Mohanagar BCR 2008 was formulated considering the various aspects of urban area. 
Provisions   were   formulated   considering   the   type   of   building   use,   road   width, 
concentration   of   vehicular   movement,   population   density,   parking   demand,   utility 
services and fire annihilation. There are also other rules which are needed to follow in 
building   construction   such   as,   plot   consolidation,   building   height,   parking   provision, 
footpath, and basement. Some very significant steps were taken in the Mohanagar BCR 
2008:
• Introduction   of   FAR   which   eliminates   the   building   height   limit   but 
permits total floor space as per the plot and its adjacent situation.
• Obligation   of   professionals   like;   Urban   Planner,   Architects,   Structural 
Engineer, Mechanical Engineer, Electrical Engineer, Geo­technical Engineer, Site 
supervisor, Plumbing Engineer will definitely encourage professionalism.
•   ‘One Window Service Cell3’ will ensure smoother approval of building 
permission through one window service, within a fixed time, through the consent 
of   the   stakeholders   which   would   be   a   transparent   mechanism  to  approve   the 
plans, thus eliminating harassment and abuse of power by authority,
• Introduction of ‘Urban Development Committee4’ will ensure the planned 
development of the city.
3
A   committee   for   considering   the   ‘development   permit’   (it   is   necessary   for   the   big   projects   and   tall 
buildings)  of  the applicants  which is composed of members from professional  institutes like; BIP, IEB, 
REHAB, Stake holders like; DCC, UDD, WASA, DESA, DITS, T&T, Fire Service, DoE, Police, Civil aviation, 
KPIDC, TITAS, Law ministry, Private organization working on handicap. D   
Md. Akter Mahmud
Page 14 of 17
BCR 2008 in Development Control
The Mohanagar Building Construction Rule (BCR)­2008 replaces the constraints of the 
previous rules, which encouraged its evasion and abuse, and brings significant incentives 
and benefits to all. Provisions of mandatory open space (or, maximum land utilization 50 
to   65%   of   total   plot   area),   setback,   ground   coverage,   Floor   Area   Ratio   (FAR)   etc   can 
provide significant social and environmental benefits to the residents. 
• By   analyzing   the   BCR   2008   it   was   found   that,   Supervision   and   monitoring   of 
RAJUK   in   different   phase   of   the   construction   and   introduction   of   occupancy 
certificate will ensure the quality of building and prevent the plan violation.
• From the findings of this paper it was found that more than 90% buildings of 
Dhaka city violated the rules of BCR 1996 where there was a mandatory limitation 
of buildings height. But in the BCR 2008, FAR was introduced and mandatory 
height limit is eliminated. It would be great challenge if RAJUK fail to monitor 
strictly the building construction gross density would increase which is against 
the spirit of planning and BCR 2008   

Recommendations
Legal and Technical Matters
• RAJUK has sufficient legal supports with act and by-laws. Planning
standards and planning laws should be enforced and practiced properly.
• RAJUK’s planning permission process should be more simple and
transparent. Adequate database, cross checking of data, frequent field
supervision, provision of accountability, provision of strong penalty in
case of default etc. should be regularized and compulsory. RAJUK never
used the digital data of Dhaka Metropolitan Development Plan. Instead
of manual and traditional ‘planning permission’ process RAJUK should
use that data base for planning permission. It will definitely improve the
present situation. Obviously for that RAJUK need skill and more town
planners in its organogram.

Institutional Arrangement
• RAJUK is a town planning institution and its 3 basic tasks are; Planning,
Development and Control. Organogram of RAJUK should be reviewed
and duties and responsibilities should be reexamined. Right people with
right qualification should work in the appropriate positions. Planners
should be appointed in the key positions of town planning and
development control. RAJUK, for instance, Member (Planning), Director
Town Planning, Director Plan Preparation, and Director Development
Control etc.

Institutional Strengthening
• RAJUK should recruit enough planning professionals in its regular set-up
for increasing its institutional capacity. Comparing the other cities of the
world and the Bangladesh context at least one Urban Planner should
work for serving 1 lac population of Dhaka City. For the efficient
management and development control, it is necessary to develop a
strong GIS data base of each parcel of land, its land use, use of each
floor of a building, number of people accommodating that building etc.
Therefore, information will be on the hand of Urban Planner and he will
exercise the Rules of the State as required.
• To provide planning service to the 12 million population of Dhaka at
least 120 Urban Planner should work in the whole RAJUK area. So that
they can look after the plan and manage the growth of the city. Ward
4
Composite   of   Government   nominated   Officials,   President/   Vice­president/   General   Secretary   of 
professional bodies, representatives from civil society, University professor, etc
Md. Akter Mahmud
Page 15 of 17
 Commissioners in the DCC area, chairmen of concern pourashava and
the Union Chairmen in the RAJUK area should be co-opt in the
development control process.

Concluding Remarks
Planning   permission   process   ought   to   be   more   simple   and   transparent.   Planning 
department in RAJUK should adopt new technical support for planning permission and 
development control instead of present manual system. A complete GIS database with 
‘plot   to  plot’   record   of   whole   RAJUK   area   can   help   a   great   deal   in   this   regard.   This 
database will contain the information of master plan so that any applicant can know the 
use of his plot proposed in the master plan which will not take more than few minutes.  It 
can substitute the present lengthy process of land clearance system and this service can 
be   provided   from   just   one   desk.   Hopefully,   newly   introduced   Building   Construction 
Rules 2008 will bring a better result if it is implemented properly. Previously RAJUK 
failed to implement the Building Construction Rules 1996 which was easier and straight 
forward rules to execute. It would be very unrealistic and optimistic to implement BCR 
2008 without the rearrangement of institutional capacity of RAJUK which was the major 
constraint of successful implementation of BCR 1996. Without removing that constraint it 
would be a great challenge to implement BCR 2008.

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Md. Akter Mahmud

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O’Sullivan, A. 1996. Urban Economics, Boston: Irwin/McGraw-Hill- a division of
the McGraw-Hill Company.
RAJUK. 1996. Building Construction Rules 1996, Dhaka

Md. Akter Mahmud

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