J&K’s NAKSHA initiative could transform land record governance

By: Meraj Zargar

The National Geospatial Knowledge-Based Land Survey of Urban Habitations (NAKSHA) is a pilot program initiated to modernize urban land records using advanced geospatial technology. As per an order issued on January 30, 2025, by the General Administration Department, Civil Secretariat, Government of Jammu and Kashmir, a Union Territory Level Committee and a Project Management Unit (PMU) have been formed to monitor and implement this program in Jammu and Kashmir. These committees will oversee the pilot project and ensure its success in four urban local bodies: Awantipora, Pattan, Bishnah, and Katra.

Governance and structure of NAKSHA

The Union Territory Level Committee is chaired by the Chief Secretary and comprises senior officials, including the Financial Commissioner and Administrative Secretaries of Finance, IT, Housing & Urban Development, Planning, Monitoring, and Revenue Departments. The committee is responsible for reviewing progress, with at least four meetings annually to ensure effective implementation of the program.

The Project Management Unit (PMU), led by the Commissioner of Survey and Land Records, acts as the executing body. Its team includes officials from various departments, including Tehsildars, Executive Officers of the respective Urban Local Bodies (ULBs), GIS experts, remote sensing analysts, and data entry operators. The PMU will liaise with the Department of Land Resources (Government of India) and manage field surveys, hiring, procurement of technical resources, and reporting progress to the Union Territory Committee.

The Revenue Department serves as the Nodal Agency, ensuring that the program adheres to established policies and guidelines.

Launched in October 2024 under the Digital India Land Records Modernization Program, NAKSHA aims to modernize urban land records across the country. Key objectives include:

Modernization of Urban Land Records: Digitizing and updating land records using geospatial technology to improve accuracy and accessibility.

Facilitating Urban Planning and Infrastructure Development: Accurate land records will help plan urban growth and allocate resources more effectively.

Enhancing Governance and Transparency: Digital records will reduce land disputes, prevent fraud, and build public trust in the system.

Implementation strategy and technology

The program involves creating high-resolution digital maps through aerial surveys using GNSS (Global Navigation Satellite System) technology. The Survey of India is the technical partner, providing expertise in geospatial mapping and data collection.

For the pilot phase, the central government has allocated ₹193.81 crore, covering aerial and ground surveys, data processing, and setting up State Program Management Units (SPMUs). The pilot is set to be implemented in over 100 cities, with the final list yet to be announced. Cities are being selected to ensure regional balance.

Challenges and the way forward in Jammu & Kashmir

In Jammu & Kashmir, outdated and unreliable land records, coupled with rapid urban expansion over recent decades, present unique challenges. Land disputes, unclear property ownership, and unregulated urban growth are common problems. The NAKSHA program seeks to address these through modern technologies such as drone surveys, 3D mapping, and geospatial data processing.

However, given the region’s complex geographical features and irregular land records, it is crucial to involve experienced officials from the Revenue Department and conduct large-scale workshops and training sessions to ensure effective implementation. Recent SWAMITA and drone surveys highlight the need for tailored approaches that reflect local realities, distinguishing between rightful ownership and encroachments.

Recruitment and capacity building in the Revenue Department are essential. New staff must be equipped with training in modern land record management systems to handle digital databases efficiently.

Benefits of modern land records

Accurate Land Ownership Records: Will reduce disputes and encroachments, making property verification easier for buyers, sellers, and financial institutions.

Improved Urban Planning: Modern records will facilitate better planning for roads, parks, sewage systems, and other infrastructure needs.

Transparency in Real Estate: Digital records will make property transactions more secure, encouraging investments and reducing legal complexities.

Boosting the Economy: Clearer land records will increase confidence among investors and financial institutions, helping boost real estate and infrastructure growth.

Efficient Tax Collection: Accurate records will enable the government to collect property taxes more effectively, improving urban services and governance.

The NAKSHA pilot program represents a significant step toward transforming urban land management in India. By addressing the specific challenges in Jammu & Kashmir, it can ensure more accurate land records, better urban planning, and improved governance. Active collaboration between government departments, regular capacity building, and tailored solutions for local conditions will be essential for the program’s success.

This initiative not only aligns with national programs like Digital India and the Smart Cities Mission but also holds the potential to revolutionize urban development and land governance in the region.

(The author is a senior employee in the Revenue Department. Contact: 9906830807)