34. The Journey Through Urban Administration and the Departure of Pramukh Swami Maharaj
For nearly two decades after the formation of the state of Gujarat, policy formulation and politics remained largely rural-oriented. However, the rapid pace of urbanization compelled the administration to become more attentive to the welfare of urban residents. The lesser-known Town Planning and Valuation Department was transformed in 1983 into the Urban Development Department, and along with focusing on rural welfare, the state government became increasingly active in framing welfare schemes for the urban population as well.
A city was once seen as merely the domain of water supply, drainage, and roads — responsibilities handled independently by local self-governing bodies such as municipal corporations and municipalities. But as these local bodies faced shrinking revenue sources and citizens’ hunger for development grew, the government’s role evolved from that of a mere regulatory agency into that of a proactive welfare institution for urban areas.
Later, the Urban Development Department became the Urban Development and Urban Housing Department. Consequently, its scope expanded beyond water, drainage, roads, electricity poles, parks, and gardens — to include primary healthcare, sanitation, solid and liquid waste management, skill development, hawker zones, housing, flyovers, bypasses, ring roads, BRTS, metro systems, airports, smart cities, geographical expansion of towns, new town-planning schemes, and much more. With this widening of scope, the importance of the department and its minister continued to grow.
Promotion as Additional Chief Secretary
On 1 July 2016, I was transferred to the Urban Development and Urban Housing Department. The government promoted me from Principal Secretary to Additional Chief Secretary (ACS).
In the Indian Administrative Service, Level 17 is the highest grade — the topmost echelon. The pay of an Additional Chief Secretary is equivalent to that of the Chief Secretary, and one becomes Chief Secretary only through transfer to that post. Hence, this was our final promotion.
The Minister of the Department
When I took charge of the Urban Development and Urban Housing Department, the Chief Minister herself held its ministerial portfolio. Thus, our work was directly linked to the head of government. In administration, the Chief Minister is the final authority for all decisions — reminding one of the film dialogue, “Mera vachan hi mera shasan hai” (“My word is my rule”). However, within government, everyone must operate within the framework of the Rules of Business and the Delegation of Powers.
A New Chief Minister
My happiness lasted only a month. On 1 August 2016, the woman Chief Minister resigned, and the government changed. Shri Vijaybhai Rupani became the new Chief Minister, and the portfolio of the Urban Development Department went to the Deputy Chief Minister, Shri Nitinbhai Patel.
It was said that Nitinbhai’s “crown” was snatched away at the very last moment. No one knew what divine will had in store for that morning. On 4 August 2016, his name was considered almost finalized for the Chief Minister’s post, but by the afternoon of 5 August, the decision changed. Despite the outgoing Chief Minister’s final efforts, by 6 p.m. that evening, Vijaybhai Rupani was formally sworn in as the Chief Minister of Gujarat.
Due to seniority or compromise, Nitinbhai became the Deputy Chief Minister and was entrusted with important portfolios — Finance, Roads & Buildings, and Urban Development. In Swarnim Sankul (the government complex), the Chief Minister’s grand chamber was on the third floor and the Deputy Chief Minister’s on the second. He remained Deputy Chief Minister for five years, but despite being seated next to the Chief Minister in Cabinet meetings, he could never quite gain that symbolic “head of the table” prestige.
Yes, as the senior-most minister and Finance Minister, his voice carried the greatest weight in the government. Even when alone in the Legislative Assembly, he could handle the opposition with unmatched eloquence and firmness. Yet, the lost opportunity for him and the out-of-turn rise of Vijaybhai occasionally created coordination challenges between the two. My role involved maintaining harmony and coordination with both — a task I accomplished successfully by earning their mutual trust.
Urbanization in Gujarat
Gujarat ranks among the top large states in India in terms of urbanization. Nearly 45% of its population resides in urban areas. If we include the daily influx of people from nearby villages and distant areas who come for work or shopping, the daytime population exceeds 60%.
Under my charge were eight municipal corporations, eight urban development authorities, and 162 municipalities — a total of 178 urban entities. Together with their municipal commissioners, CEOs, chief officers, and other officials, they formed a vast administrative network.
As Additional Chief Secretary of Urban Development, I also served as:
Chairman of the Gujarat Urban Development Company (GUDC)
Chairman of the Gujarat Urban Development Mission (GUDM)
Director on the Board of GIFT City
Director on the Board of Gujarat Metro Rail Corporation
Chairman of the DREAM City Project (Diamond Research and Mercantile City, Surat)
Through these positions, I had the privilege of contributing to Gujarat’s wide-ranging and dynamic urban development initiatives.
The Passing of Pramukh Swami Maharaj and His Final Rites
The new Chief Minister, Deputy Chief Minister, and I were deeply engaged in the work of our new department when, during Dakshinayan, on 13 August 2016, the revered saint of the BAPS Swaminarayan sect, Pramukh Swami Bapa, departed for his divine abode.
Because of my seniority, I had earlier been given charge as in-charge Secretary of a small district like Botad. However, when I was Relief Commissioner in 2012, I had visited Pramukh Swami Bapa at the Shahibaug temple in Ahmedabad. On that occasion, I had taken a khadi cloth for him. When I offered it, he recalled an incident about a similar piece of cloth offered to Shreeji Bapa (Lord Swaminarayan) by a devotee who was a tailor, during his final moments.
Bapa’s health at that time was weak, and his voice very soft, so I could not fully understand his words. Yet, as if by divine providence, the responsibility of managing his final rites, on behalf of the Government of Gujarat, ultimately came to me.
The saints and followers of the organization were highly educated and disciplined. They had placed Bapa’s mortal body in a transparent glass chamber with nitrogen circulation and temperature control so that the body would remain preserved until the final rites.
That evening, I received instructions from the government rather late, and immediately set out for Sarangpur that very night. I remembered the earlier visit and took with me a fresh khadi garment from home. Upon reaching Sarangpur late at night, I paid my respects before Bapa’s mortal remains, offered the garment, and consulted with my close friend, Swami Brahmavihari, regarding the arrangements. We then began organizing the official coordination.
The BAPS organization was immensely capable and resourceful; its followers were dedicated and efficient. Thus, there was no shortage of manpower or material. The Collector, District Police Chief, and the entire government machinery got into action. We arranged entry and exit routes, parking, drinking water facilities, and sanitation for the massive crowds of devotees expected to arrive. A helipad was prepared, and vehicles were arranged for visiting dignitaries.
On 14 August, devotees poured in throughout the day and night like a river in full flow.
On 15 August, the Prime Minister was to arrive. After completing the Flag Hoisting Ceremony at the Red Fort in Delhi, he came directly to Sarangpur. Bapa’s body was placed in a large hall where saints and devotees were singing devotional hymns softly. The pink line of the saffron turban tied on the Prime Minister’s forehead that morning was still faintly visible. Dressed in white, he entered the hall reverently.
He bowed before Bapa’s mortal remains and came to the podium to speak. His very first words were, “Bapa was like a father to me,” and his voice choked with emotion. He took a sip of water from the glass beside him, and as he looked up, our eyes met for a brief moment.
He went on to recall his memories with Bapa — how, during his public life, Bapa often guided him not to use certain words in speeches. Bapa would tell him that his public journey would be long and that he should always speak carefully and thoughtfully. The Prime Minister also remembered how, after he hoisted the national flag at Lal Chowk in Srinagar, Bapa had personally called him to bless and advise him.
On 16 August, Bapa’s spiritual brother, Swami Hariprasad of Sokhada, cut short his visit to Canada and reached Sarangpur.
That afternoon, at the appointed auspicious time, Pramukh Swami Maharaj’s body was consigned to the sacred fire with Vedic chants as per Hindu rites.
In the holy flames of sandalwood, the glory of Pramukh Swami Maharaj radiated in all ten directions. Everyone present — filled with reverence and emotion — watched that divine farewell with gratitude and tears.
Several of Bapa’s qualities deeply touched me.
He broke the barriers of caste and community, welcoming people of all 18 varnas and even those from other religions. The then President of India, the eminent scientist Dr. A.P.J. Abdul Kalam, was his disciple. The Prime Minister, Narendra Modi, regarded him as a father figure. When my wife Lakshmi once saw that the head priest of the Orlando temple, Hasmukhbhai Panchal, belonged to the OBC community, she was astonished — such was Bapa’s inclusiveness.
He used to say, “If the accounts section of an office is pure, the entire administration will be pure.” Wherever I worked, I would remember Bapa and make financial integrity my first priority.
He was extraordinarily committed to cleanliness. He would personally wash the temple’s restrooms with a scrubber in his hand — never shying away from such work. His discipline and perseverance were incomparable.
I vividly remember one night — at 10:30 p.m. during the Kutch earthquake relief operations — when he personally called Swami Brahmavihari in Bhuj, who was leading the relief work. I was present at that very moment.
He established numerous grand temples and Hari Mandirs, spreading the message of Hindu dharma not only across India but around the world. He played a key role in preserving the cultural and moral values of new generations of Hindu families abroad and in keeping them united.
Finally, even his vision for a Hindu temple in Abu Dhabi was realized. That a Muslim nation would allocate land and extend support for a Hindu temple is a matter of wonder in itself. His purity and devotion to God immortalized him forever.
Cleanliness Campaign and ODF Urban Gujarat
Our first major initiative was the Cleanliness Campaign and the drive to make all cities and towns Open Defecation Free (ODF) — and we succeeded in achieving this goal.
In cities, segregation of solid waste into wet and dry categories and door-to-door collection systems were implemented effectively. Special attention was given not only to main roads but also to the cleanliness of inner streets and public places. Public awareness regarding hygiene was greatly enhanced.
Projects were conceptualized to make productive use of solid waste — such as generating electricity from waste.
For liquid waste, it was ensured that wastewater would be released into rivers or lakes only after proper treatment.
We completed all the pending works for providing household toilets in urban areas and established a network of public and community toilets in markets and public spaces. Consequently, all urban areas of the state were declared Open Defecation Free (ODF).
In many municipalities, underground drainage projects were moving slowly. We expedited and completed more than 125 such projects, and for the remaining ones, tenders were issued and work orders granted.
Swachh Survekshan Awards
As a result, in the Swachh Survekshan 2017, Gujarat ranked first in the entire country.
Among the top ten cities, two from Gujarat — Surat (4th) and Vadodara (10th) — were included.
In the list of the top 100 cities, 23 cities from Gujarat earned positions.
LED Bulbs
Since LED lighting reduces electricity consumption, we launched a massive campaign under the central government’s mission to replace all streetlights in major cities with LED bulbs. The work was carried out rapidly and comprehensively.
Smart City Projects
Under the Smart City Mission, Ahmedabad, Vadodara, and Surat had already been approved, and their municipal commissioners were actively engaged in project implementation.
We made presentations in Delhi for Rajkot and Dahod and successfully secured Smart City projects for both cities.
These projects included the installation of CCTV cameras, internet connectivity, Command and Control Centers, waste management systems, smart infrastructure solutions, LED and solar power projects, as well as improvements in education and healthcare facilities.
In Dahod, for instance, work began on projects like the restoration of Siddharaj Jaysinh Lake.
All these efforts significantly enhanced urban citizens’ comfort, convenience, and security. Under the AMRUT (Atal Mission for Rejuvenation and Urban Transformation) scheme, infrastructure development works were also undertaken across various cities.
Flyovers in Ahmedabad
When the Sarkhej–Gandhinagar Highway (SG Highway) was first constructed, it remained relatively empty, as the Ashram Road and C.G. Road continued to dominate the city’s traffic flow.
However, after the completion of the Sardar Patel Ring Road, the importance of SG Highway grew rapidly. As the green belt around Gandhinagar began to shrink, the adjoining areas witnessed a surge in population and vehicular traffic.
We approved the construction of around twelve flyovers along SG Highway to ease congestion.
Additionally, the Bopal and Ghuma gram panchayats were converted into municipalities, which were later merged into the Ahmedabad Municipal Corporation (AMC).
Similarly, the geographical boundaries of other major municipal corporations were expanded by including adjacent developing villages, so that residents of those areas could benefit from urban infrastructure and civic amenities.
The Complex Game of DP–TP (Development Plan – Town Planning)
We launched a major campaign to reform the DP–TP system. Once a city’s Development Plan (DP) is finalized, frequent changes are uncommon. But under that DP, the Town Planning (TP) Schemes — that’s where many find opportunity, and many others find headaches.
Each municipal corporation prepares a Draft TP as the first step, meaning most of the groundwork and conveniences are decided locally. Once the Chief Town Planner (CTP) gives recommendations and the government approves the draft, the offices of the CTP and Town Planning Officer (TPO) gain great importance. After that, years often pass before a Preliminary TP is prepared and finalized — and Final TPs are a rarity.
A list of pending Draft TPs often shows delays ranging from 2 to 20 years.
Why do Draft TPs remain pending before the TPO for so long?
According to the government’s town planning scheme, 40% of each landholder’s plot is deducted for public amenities like roads, schools, or parks, and the remaining 60% is allotted back as a Final Plot (FP). While most of this is determined in the draft TP, until the Preliminary TP is approved, the TPO — under the CTP’s guidance — has great scope to make “adjustments.”
As a result, individual plot owners would keep approaching TPOs seeking favorable changes — and if both sides “agreed,” changes were made.
Plots that were supposed to face 18-foot roads would suddenly appear on 90-foot roads, and vice versa. Corner plots would get shifted, road alignments altered, and land reserved for public use sometimes quietly disappeared. Ultimately, whoever had better access and influence managed to get favorable outcomes.
Because of these manipulations, Preliminary TP approvals got delayed for years. Meanwhile, TPOs’ “recommended changes” were often used by municipalities to grant building permissions. Properties were sold, transferred, and developed — so by the time the Preliminary TP finally reached for government approval after years, the damage was irreversible.
In one instance, a major city connector road was proposed to be widened to 60 meters, but despite being aware, the TPO and CTP approved it as 40 meters, creating long-term planning complications.
Some plot owners even manipulated the 40% deduction rule — by purchasing other land elsewhere and offering it as their “public deduction,” effectively reducing their deduction to zero.
It was rumored that in one particular TP scheme, the government had granted such an exception, which emboldened several TPOs to misuse their powers.
We even received complaints that some TPOs ran private offices or operated under consultancy firms, meeting people unofficially on holidays to “settle” land matters.
To control this, we started weekly monitoring meetings, created a WhatsApp group for real-time coordination — and within one year, where normally only 15–20 Preliminary TPs were approved annually, we approved over 100. This set a new record and created a model for future officers to follow.
To enforce discipline, we even suspended or initiated departmental action against a few TPOs. This created deterrence across the department.
But the root cause still remained — we needed a systemic fix. I knew it was like dealing with a “restless mouse” — you must identify the real source of its jumping before you can stop it.
I began studying The Gujarat Town Planning and Urban Development Act, 1976. It was only about 50–55 pages long and had seen almost no major amendments in 40 years.
Under Section 49, TPOs were authorized to change original plots into final plots, giving them power to alter allocations — and hence, huge discretionary influence.
We amended the Act to restrict this power — requiring prior government approval for any such changes.
Where a Final Plot (FP) was different from the Original Plot (OP), TPOs could no longer issue independent recommendations. This effectively shut down a widespread system of plot manipulation.
We also issued guidelines ensuring that, during both Draft and Preliminary TP stages, final plots should be allotted as close as possible to the landowner’s original location.
If someone’s plot fell under a road or public utility, their new plot had to be allotted near their original site — thus bringing fairness and eliminating a major form of corruption.
Common GDCR (General Development Control Regulations)
At that time, Gujarat had 8 municipal corporations, 8 urban development authorities, and 162 municipalities. Each had its own GDCR — meaning different rules for building height, FSI, setbacks, land use, and parking.
For example, the benefits available to a builder in Ahmedabad were different from those in Surat or Rajkot.
Consequently, applicants seeking similar relaxations would line up in Gandhinagar, visiting the Deputy CM’s office, the Additional Chief Secretary, OSD, and the Chief Town Planner offices.
Sometimes the crowd was so large that we would have to excuse ourselves saying we had meetings elsewhere, just to manage the rush — often skipping lunch.
We studied the problem, consulted technical and field officers, and drafted a unified regulation — the Gujarat Comprehensive GDCR 2017.
We grouped all urban areas into nine categories and introduced uniform, fair rules for each.
This brought consistency, reduced lobbying, and established clarity for developers and citizens alike.
RERA (Real Estate Regulation and Development)
Next came consumer protection in housing.
While the central RERA guidelines were issued, Gujarat still needed its own law.
We took up the task — first issuing The Gujarat RERA Ordinance (2016), and later getting it passed in the Legislative Assembly in 2017.
The state then established the RERA Authority and an Appellate Tribunal to hear appeals.
Today, because of RERA, homebuyers’ rights are protected, and builders also benefit from clear rules and transparency, reducing the earlier dependence on black-and-white dealings.
TP Digitisation
In earlier times, submitting layout plans and obtaining building permissions in cities was considered a complicated process. To simplify it, we digitized all Town Planning (TP) schemes. Once every plot is digitized and linked with its respective General Development Control Regulations (GDCR), the Computer-Aided Design (CAD) drawings can be automatically verified — making online building permission possible. We even conducted a successful trial run of this digital approval process.
However, for those who indulge in unauthorized constructions, such permissions would remain only a formality — because the intent to bypass legal procedures still persisted.
Exemption from Non-Agricultural (NA) Permissions in Urban Land
The Chief Minister suggested that once a TP scheme is finalized, why should applicants still be required to obtain Non-Agricultural (NA) permission for construction? Many citizens found the NA approval process cumbersome and time-consuming.
In coordination with the Revenue Department, we examined whether the required premium or conversion charges were being duly paid in finalized TP areas. Where applicable, collectors were instructed to issue No Objection Certificates (NOCs) after collecting such charges. Based on these NOCs, urban local bodies were authorized to grant building permissions.
However, obtaining NOCs from revenue offices turned out to be almost as difficult as getting NA permissions themselves. Therefore, it became necessary for the Urban Development Department to expedite the finalization of Preliminary TP schemes to simplify the entire process.
Demonetisation
Just when our reform drive had shifted into top gear, demonetisation struck. Many still vividly remember the historic announcement made at 8 p.m. on 8 November 2016, declaring that ₹500 and ₹1,000 notes would cease to be legal tender from midnight.
At that time, India had around ₹17.97 lakh crore of currency in circulation, out of which ₹15.44 lakh crore (86%) suddenly lost validity following the Reserve Bank of India’s decision.
For the first 15 days, citizens were allowed to exchange old notes up to ₹4,000 per day over the counter. Soon, long queues began forming outside banks across the country due to the sudden cash shortage. For the next 50 days, people were permitted to deposit their old notes into their accounts, turning bank branches into warehouses of returned currency. Many bank managers had never seen such massive piles of cash in their careers.
During those months, the winter vegetable harvest had already begun. Ordinarily, markets and street vendors would be full of fresh green vegetables during this season. But when a crisis hits, government machinery must step in.
Our district administrations arranged temporary marketplaces and stalls in urban areas so that farmers could directly sell their produce. However, when purchasing power vanished from the markets, what could farmers earn?
I still recall visiting one such temporary bazaar in Gandhinagar, where four large cabbages (around 3–4 kg) were being sold for ₹10 — a symbol of the liquidity crisis.
Though the early days of demonetisation were harsh, by June 2017, the situation gradually stabilized.
At the time, India’s population stood at 134 crore; today it has reached around 145 crore — a growth of about 10%.
However, the currency in circulation, which was ₹18 lakh crore then, has now risen to nearly ₹38 lakh crore, more than double.
With more money in people’s hands, purchasing power increased, driving up production and services — and eventually making the Indian economy more dynamic and resilient.
GUDC (Gujarat Urban Development Company)
We continuously monitored and successfully completed underground sewerage projects for nearly a hundred municipalities. But one issue in GUDC (Gujarat Urban Development Company) truly shocked me.
GUDC handled the tendering process for underground drainage works in municipalities — from inviting bids, selecting contractors, and monitoring project progress, to making stage-wise payments. The Additional Chief Secretary served as the Chairman, and another IAS officer as the Managing Director (MD).
During meetings regarding tenders or progress reviews, issues often surfaced — delays in work, complaints about payments, or grievances from contractors. Those who felt wronged would file appeals and raise their voices.
One such complaint report got stalled midway. The then MD discussed it with me but failed to submit the final report. Later, when a new MD took over and the matter was revisited, what came to light was truly startling.
It turned out that the entire process of preparing project reports, drafting tender specifications, scrutinizing bids, and verifying periodic bills had been outsourced to a private agency.
Upon investigation, it was discovered that the agency was owned by a technical officer of GUDC himself — the very person involved in finalizing tenders and approving payments!
There were also doubts about this officer’s direct recruitment and subsequent promotion, which was allegedly based on a degree certificate from another state — the authenticity of which had been questioned.
This collusion between the outsourcing agency and the officer was exposed. When we began taking action, I received calls from two or three senior officials urging leniency.
Eventually, that technical officer resigned from the company. I, however, gained a reputation for “not listening to recommendations.” But the matter was too serious to ignore or overlook.
When a government company, working on behalf of municipalities for essential infrastructure such as sewerage systems, relies on contract-based officers, questions inevitably arise about their qualifications, technical competence, procedural knowledge, and adherence to professional ethics.
Vibrant Gujarat Summit – Africa Delegation
In September 2016, the government gave me the opportunity to lead a delegation to South Africa and Kenya as part of the Vibrant Gujarat Summit 2017.
We held seminars and dialogues there, aiming to foster coordination between industrial entrepreneurs from Gujarat and those from South Africa and Kenya. The goal was to promote medical tourism, enhance mutual investments, and strengthen industrial partnerships.
We visited Cape of Good Hope (the legislative capital), Johannesburg, and Pretoria (the administrative capital) in South Africa; and Nairobi (the capital city) in Kenya. We also had the rare chance to experience the wildlife of the Maasai Mara Reserve and enjoy the beauty of nature.
Back in India, at Mahatma Mandir in Gandhinagar, we organized an excellent workshop on investment and development opportunities in urban areas.
When the Vibrant Gujarat Summit took place in Gandhinagar, we had the privilege of welcoming the President of Kenya and his delegation with great warmth.
My Transfer to the Health Department
As the saying goes, “Bawa uthya bagal maa haath” (the saint rose with his arm already raised) — implying that destiny was already written.
On 15 June 2017, the government transferred me from the Urban Development Department and appointed me as Additional Chief Secretary, Health and Family Welfare Department.
Now my responsibility was to strengthen the state’s health system and expand the reach of doctors and medical services. Both Panchayat and Health were destined to be part of my journey. But where was rest or ease in sight?
13 October 2025
Coincidentally, on the very day I wrote this piece — 13 October 2025 — Gujarat Samachar (Page 8) published a witty “Smile Tip” that read:
“Ravana had built a city of gold.
Now our leaders and officers make gold out of Town Planning — that is, city planning itself.”
0 comments:
Post a Comment