Policy Update
Elenora Tu’u
Background
Land use has become a contemporary challenge in rapidly developing countries, one that requires adaption to modernisation – and digital technology adaptation is not new to interdisciplinary sectoral integration for modern India – hence digitization of land records is crucial ,enhancing access to property ownership, simultaneously increasing transparency and reducing land disputes.
As per Department of Land Resource, land records through digitization process stands at 94% (est) across 28 states and Union Territories (UTs), however integration through other components remains uncovered in regions like Northern India and Maharashtra. Additionally, disputes of land rates account for two-third as per reports on civil cases , the introduction of digitization thus aims to reduce legal burden, while maintaining sustainable business practices on land use to boost investor confidence and development simultaneously.
The Digital Land Records Modernisation Programme (DILRMP) thus was initiated for such challenges in 2008, originally known as the National Land Records Modernisation Programme (NLRMP). In 2016, it was restructured into a Central Sector Scheme with 100% funding from the Government of India, supporting both states and Union Territories (UTs) in executing the programme through financial assistance, technical support, and resources. Through the Ministry of Rural Development ,the government of India allocated Rs.239.25 crore for the scheme (DILRMP) 2022-23 under union budget from which Rs.206.84crore dispersedly utilised for the same.
Since then, the progressive feedbacks of implementation saw a revised figure at Rs.176.65crore as cost rationalization in most states have achieved major digitization process,hence targeted fundings continue to be received for effective implementation process. The programme’s primary focus is to develop an integrated, modern, and comprehensive system that promotes sustainable land use practices. This initiative aims to enhance governance and empower citizens by providing them with the necessary tools and resources to engage with government services effectively.
By fostering innovation and digital literacy, the programme seeks to ensure that all stakeholders can actively participate in sustainable development of their communities. Where transparency for land use and management systems is real-time updated, envisioned to create an Integrated Land Information Management System (ILIMS) by the government of India (dolr.gov.in ).
In this case highlighting India as a rapidly developing country, mega scaling digital governance to reform structures to modernize its land administration system. Moreover, it exemplifies India as a global case study in digital governance – where issues around states with federal structures as India can harness frameworks to intersect sectors using digital technology for land administration process and so forth. This ambitious goal affirms the government’s commitment in nation building and illustrates India’s federal structure with the ability to optimize diverse administrative capacities while digitizing complex legacy systems bridging policy and technology intervention gaps for a modern India.
Budget Summary:
| DILRMP Budget | Notes | Fiscal Year |
| Rs. 239.25 crore | Demand by cabinet for grants. dmo.gov.in ,indiabudget.gov.in , data.gov.in , rural.gov.in ,prsindia.org ,archive.budget.gov.au , treasury.gov.au | 2022-23 |
| 2,417.97 crore included in | Department – wide figure: includes DILRMP among other schemes | 2023 -24 |
Key objectives of the programme
- To enhance real-time recording of land use.
- To optimise and utilise available land.
- Aims to benefit landowners and prospective buyers while assuming modernization of urban India through sustainable land business practices.
- Reassess policy formulation and planning over time.
- Enhance dissemination of information among various organisations.
- Optimise the system to reduce fraudulent transactions and minimise land disputes.
Timeline of scheme launched
The inception of the programme was in 2008 as the National Land Records Modernisation Programme (NLRMP). Currently restructured into the Central Sector Scheme, renamed as Digital India Land Records Modernisation Programme in 2016. Moreover, the scheme was further extended for a period of time for continuity for another five years – 2021 – 2026.
Beneficiaries through this scheme include landowners, buyers, urban local bodies, financial institutions, revenue and registration departments (pib.gov.in ), (dolr.gov.in ).
Functioning:
The role of DILRMP is to holistically integrate three major elements of digital components for sustainable business practices in land use, which promotes transparency and accountability, profiting all parties involved. This includes the integration of computerisation of an efficient land registration process for uninterrupted failures.
Additionally, use of modern technology like Geographic Information System (GIS), Global Positioning System (GPS) and drone surveys ensures up-to-date records for surveys. Furthermore, highlighting increased use of data security. Computerisation of Land Records (CLR) avoids misuse of information for fraudulent acts, as digitisation of textual Records of Right (RoRs) ensures data security (dilrmp.gov.in ). The scheme made strides through the transition revamping to DILRMP.
The restructure of land administration in India is marked by various factors, including regional practices, geography, language, culture and socio-economic conditions that have shaped the government’s intervention to enhance the system of land management and reduce the scope of barriers subject to misuse of land rights. The complex nature of these challenges shows the importance of digital integration for accurate and up-to-date records.
An example of ease in access for the public, reduces cost and increases efficiency, productivity and time management for processes, which has become essential. Although land management comes under state domain (Entry No. 18 and 45 of the state list of the 7th Schedule of the Constitution). The government of India, through its initiative revamping DILRMP, has been helping states and UTs through financial and technical assistance support; hence, digitising the same in the public domain shows the government’s affirmative effort to leverage modern material not just for the beneficiaries but also for public trust in both private and public spaces in business practices for land use and tenure (dilrmp.gov.in ).
Bridging the digital gap, however, does come with challenges. Despite the progressive measures with the extension of another five years added (2021 – 2026), several issues become barriers for fluidity of progress in data management systems. This entails data inconsistencies; discrepancies are often outdated – between textual and spatial records. Additionally, the incapacity or limited technical capacity in infrastructure in some states hinders implementation.
For example, the absence of conclusive land titling requires a stronger legal structure to avoid leads on continued disputes, with key initiatives under DILRMP, such as e-Court integration and the transliteration of land records, reducing land disputes and overcoming language barriers (drishtiias.com).
Due to the complex factors as mentioned earlier (regional practices, geography, culture, etc.), these factors also constrain human resource capacity in terms of trained personnel for data collection that suits subject-specific cases to assess issues or challenges around the factors to resolve conflicts among respective beneficiaries. These issues become complex and require skilled personnel to highlight capability and effectiveness for effective functioning of the programmes’ objectives and goals. Such cases of an impact assessment study in Rajasthan progress under DILRMP implementation, emphasising the need for capacity building or strengthened procedures for proper planning and setting of systems (ibsnna.gov.in ).
Performance timeline from (2021 -2025), Achievement Highlight:
The implementation of the programme under DILRMP has seen an increase in computerisation of land records in 36 states and UTs, 774 districts, 67,590 tehsils, and 6,482,002 villages covered. Above is the map taken from dilrmp.gov.in for reference.
Below graph displays the progress of key components under DILRMP as of 31st December 2023. These figures highlight positive progress in the implementation of land record modernisation in administrative and textual aspects, hence signifying the urgent need for accelerated digitisation of cadastral maps across states. State-wise implementation highlights of CoLR and Cadastral maps are 100% in Gujarat, Tripura, Haryana, and Lakshadweep, whereas areas like Nagaland, Arunachal Pradesh, and Meghalaya are yet to see progress in this in this area (dilrmp.gov.in ).
The line graph below shows the comparative progress across major components of DILRMP – December 2023 records dilrmp.gov.in . However, it also highlights the required tap-in focus on policies and technical intervention for the successful implementation of the programme. Under DILRMP’s successful initiatives, such policy adoption of National Generic Documents (NGDRS) and implementation of the Unique Land Parcel or Bhu-Aadhaar (ULPIN) have seen coverage of 28 states/UTs (April 2023), and 26 states/UTs have adopted ULPIN. Furthermore, the integration of sub-registrar offices (SROs) has reached 87% of SROs by December 2023. (blog.mygov.in )
This achievement highlights the government’s commitments, moreover emphasising the need to adopt measures that are inclusive, hence achieving a comprehensive integrated management system across the nation, promoting digital sustained practices that foster transparency, accountability, and efficiency in the successful implementation of programmes. Detailed state-wise programmes can be accessed on the DILRMP Management Information System (MIS). https://dilrmp.gov.in/
The progressive success of the programme with the initiative of the government to centralise as the supportive frame toward state and UT-led initiatives has covered all 28 states and UTs around the key component areas: RoRs, digitalisation of cadastral maps, SROs, and integration of SROs under the DILRMP programme.
Impact
Case Study: Naksha Project Initiative- DILRMP.
The National Geospatial Knowledge-based Land Survey of Urban Habitations (Naksha). Focuses on digitising urban land records with the integration of advanced technology-GIS and LiDAR
This landmark project in Andhra Pradesh targets almost 9.5 lakh properties through a digital survey across 10 municipalities with an area of 524 sq km through a budget funding of Rs 190 crore.The ongoing initiative through DILRMP by the government has been a success in ensuring all 28 states and UTs are digitally integrated. This shows a positive partway to enhancing transparency, improving access to credit, and ensuring efficient use of land and urban planning.Hence, it is a promising step to reducing land disputes, as more affirmative results are shown in accurate recording, leading to a decline in land-related disputes and litigations – exemplifying Chandigarh as a result of this progress.
Emerging Issues:
Despite the progressive turn of DILRPMs’ various initiatives, challenges persist in the effective execution of programmes.
- Such as data discrepancies whereby records may be miss-matched between textual and spatial. Exemplifying the Chandigarh issue in this case is a suggestion to conduct a regular survey for a timely update on records through the use of various digitised initiatives (pib.gov.in ).
- Additionally,issues around technical infrastructure in certain regions like Maharashtra, Northeastern States, and Union Territory of Lakshadweep highlights the need for structural reforms etc.
https://pwonlyias.com/editorial-analysis/land-record-under-pm-gati-shakti/?utm_source=chat. These areas face structural, geographic and administrative issues. Tailored solutions like offline data capture tools, tribal land law alignment or mobile mapping can bridge the gap surrounding geographic and terrain challenges, connectivity, and land record issues; enhance the technical workforce; and improve administrative coordination.
- Stakeholder Engagement – Improve administrative frameworks for transparency and efficiency in coordination and execution of programmes. The existing property case concern raised by stakeholders in Maharashtra published in TOI highlights these concerns. An integrated framework with a top-down approach enhances trust among the respective beneficiaries, affiliated members, and governing bodies.
Way Forward:
To accomplish the objectives of this programme (DILRMP), the potential of DILRMP lies in policy reforms through effective utilisation of digitised legal frameworks under the programme across all states and UTs for conclusive land titling and little to no disputes. Additionally, the integration of computerised systems such as blockchain for secure record-keeping. Moreover, strengthening capacity building by investing in training programmes for officials and stakeholders at all levels reduces coordination constraints while bridging the gap of skilled personnel.
Furthermore, launching awareness campaigns strengthens public trust in governance, highlighting the importance of leveraging the benefits provided through the digitisation of processes and land records. To realise the full potential of DILRMP, close monitoring tools and consistent evaluation require robust mechanisms to reassure the public, beneficiaries, affiliate members, and stakeholders through regular assessment and feedback affirming the commitment of and support from the government for sustainable business practices and development of the country through sustainable land use practices that benefit individuals and the development of a modernised India.
Selected References and Important Links:
- Revenue & Disaster Management Department, Government of Odisha. (2020, February). DILRMP at a glance.
https://revenue.odisha.gov.in/sites/default/files/2020-02/DILRMP_at_Glance_0.pdf - MyGov. (2022). GIS enabling India Land Records Modernisation Programme.
- Ministry of Rural Development. (2023, April). 28 States and UTs adopt National Generic Document Registration System for land records.
https://rural.gov.in/en/press-release/28-states-uts-adopt-national-generic-document-registration-system-land-records - Press Information Bureau. (2023, October 4). Extension of the Digital India Land Records Modernization Programme (DILRMP) till 2025–26 approved. Government of India. https://pib.gov.in/PressReleasePage.aspx?PRID=1989671
- Department of Land Resources. (2023). DILRMP Dashboard. Government of India. https://dilrmp.gov.in/dashboard-chart
- Bhattacharya, D. (2023). Digital land governance in India: Legal, technical and social dimensions. Economic and Political Weekly, 58(12), 34–40.
- Ministry of Rural Development. (2023). Demands for Grants 2023–24: Department of Land Resources. Government of India.
- Times of India. (2024, February 29). The Andhra Pradesh government launches ‘Naksha’ to revolutionize urban planning and property taxation. https://timesofindia.indiatimes.com/city/vijayawada/andhra-pradesh-government-launches-naksha-to-revolutionize-urban-planning-and-property-taxation/articleshow/121239653.cms
- Ministry of Finance, Government of India. (2023). Union Budget 2023–24: Expenditure Budget Volume II – Ministry of Rural Development. Retrieved from https://www.indiabudget.gov.in/doc/eb/sbe82.pdf
- Times of India. (2024, March 3). UT selected for pilot phase of ‘Naksha’ project to digitise urban land records.
https://timesofindia.indiatimes.com/city/chandigarh/ut-selected-for-pilot-phase-of-naksha-project-to-digitise-urban-land-records/articleshow/121420638.cms - Press Information Bureau. (2023, October 4). Extension of the Digital India Land Records Modernization Programme (DILRMP) till 2025–26 approved. Government of India. Retrieved from https://pib.gov.in/PressReleasePage.aspx?PRID=1989671
- Press Information Bureau. (2023, October 4). Extension of the Digital India Land Records Modernization Programme (DILRMP) till 2025–26 approved. Government of India. https://pib.gov.in/PressReleasePage.aspx?PRID=1989671
- Times of India. (2024, March 5). Fix existing property registration system before going fully online: Maha stakeholders to centre.
https://timesofindia.indiatimes.com/city/pune/fix-existing-property-registration-system-before-going-fully-online-maha-stakeholders-to-centre/articleshow/121525002.cms - PW Only IAS. (2024). Land records under PM Gati Shakti – Editorial analysis. https://pwonlyias.com/editorial-analysis/land-record-under-pm-gati-shakti/
- Department of Land Resources. (n.d.). Citizen-centric services under DILRMP. Ministry of Rural Development, Government of India. https://dolr.gov.in/citizen-centric-services/
- Department of Land Resources. (n.d.). Digital India Land Records Modernization Programme (DILRMP) – Overview. Ministry of Rural Development, Government of India. https://dolr.gov.in/programmes-schemes/dilrmp-2/
- Department of Land Resources. (n.d.). DILRMP Management Information System (MIS) 4.0 Dashboard. Government of India. https://dilrmp.gov.in/
- Department of Land Resources. (n.d.). Program DILRMP – Guidelines and technical manuals. Government of India. https://dolr.gov.in/document-category/program-dilrmp/
- Drishti IAS. (n.d.). DILRMP and digitalisation of land records.
https://www.drishtiias.com/daily-updates/daily-news-analysis/dilrmp-and-digitalisation-of-land-records - Lal Bahadur Shastri National Academy of Administration. (n.d.). Impact assessment study of DILRMP – Rajasthan.
https://www.lbsnaa.gov.in/storage/uploads/pdf_data/1740635993_Final_Rajasthan_for_Rural_Studies.pdf - Department of Land Resources. (n.d.). Digital India Land Records Modernization Programme (DILRMP) – Overview. Ministry of Rural Development, Government of India. https://dolr.gov.in/programmes-schemes/dilrmp-2/
- Lal Bahadur Shastri National Academy of Administration. (n.d.). Impact assessment study of DILRMP – Rajasthan.
https://www.lbsnaa.gov.in/storage/uploads/pdf_data/1740635993_Final_Rajasthan_for_Rural_Studies.pdf - Department of Land Resources. (n.d.). Digital India Land Records Modernization Programme (DILRMP) – Overview. Ministry of Rural Development, Government of India. Retrieved from https://dolr.gov.in/programmes-schemes/dilrmp-2/
About the contributor: Elenora Tu’u is an undergraduate student specializing in Politics and Public Policy. This article is published as part of her course work with the IMPRI Impact and Policy Research Institute.
Acknowledgement: The author extends her sincere gratitude to Aasthaba Jadeja and fellow interns, who provided guidance throughout the process.
Disclaimer: All views expressed in the article belong solely to the author and not necessarily to the organisation.
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