National Land Records Modernisation Programme

The National Land Records Modernisation Programme (NLRMP) is a flagship initiative of the Government of India aimed at transforming the traditional land records management system into an efficient, transparent, and technology-driven framework. The programme seeks to modernise and digitise land records, ensure secure land ownership, and minimise disputes arising from outdated or inaccurate documentation. It forms a crucial component of India’s governance reforms, promoting efficient land administration and contributing to economic development.

Background and Objectives

Land is one of the most valuable assets in India, both economically and socially. However, the traditional land record system, based largely on manual and paper-based records, has long been plagued by issues such as fragmented ownership data, poor maintenance, and lack of transparency. These shortcomings often lead to land disputes, fraudulent transactions, and legal uncertainties.
To address these challenges, the National Land Records Modernisation Programme was launched in 2008 by the Department of Land Resources (DoLR) under the Ministry of Rural Development. It aimed to integrate land records, cadastral maps, registration data, and survey information into a unified and accessible digital system.
In 2016, NLRMP was subsumed under a broader mission known as the Digital India Land Records Modernization Programme (DILRMP), aligning the initiative with the government’s Digital India vision.
The primary objectives of the NLRMP include:

• Computerisation of all land records and strengthening of record-keeping institutions.
• Integration of textual (ownership and transaction data) and spatial (maps and survey data) information.
• Modernisation of survey and settlement operations to update and rectify land records.
• Establishment of a transparent and efficient land titling system.
• Minimisation of land disputes and reduction of transaction time for land transfers.
• Facilitation of conclusive land ownership and support for e-governance in property-related services.

Components of the Programme

The NLRMP comprises several interrelated components designed to achieve end-to-end computerisation and integration of land records.
1. Computerisation of Land Records (CLR): Digitisation of existing land records, including ownership details, tenancy, crop patterns, and mutation registers, at the tehsil or sub-division level.
2. Digitisation of Cadastral Maps: Scanning, digitising, and geo-referencing old survey maps to align them with updated field data. This ensures accurate representation of plots and ownership boundaries.
3. Survey and Resurvey: Use of modern technologies such as Global Positioning System (GPS), Total Station, and Aerial Photogrammetry to conduct scientific surveys for updating land records and resolving boundary discrepancies.
4. Computerisation of Registration: Integration of the Registration Department and Revenue Department to link property registration with the updated land records database. This ensures automatic mutation and reduces duplication or fraud.
5. Automatic Mutation after Registration: Once a property is registered, ownership details are automatically updated in the land records system without manual intervention.
6. Integration of Land Records Databases: Linking textual data (Record of Rights) with spatial data (maps) to create a unified database accessible to citizens and government departments.
7. Training and Capacity Building: Training of revenue officials, surveyors, and technical personnel to ensure effective use of the modernised system.
8. Citizen Services and Transparency: Provision of online access to land records, maps, and mutation details to promote transparency and reduce corruption. Citizens can verify land titles, pay land revenue, and apply for records digitally.

Institutional Framework

The implementation of the NLRMP is coordinated between the Central Government, State Governments, and Union Territories, as land is a State subject under the Indian Constitution.

• The Department of Land Resources (DoLR) provides technical and financial assistance to States and UTs.
• State Project Management Units (SPMUs) oversee the execution at the state level.
• District and Tehsil-level agencies handle on-ground activities like digitisation, survey, and public interaction.

A National Land Records Modernisation Committee was also constituted to monitor and review progress, recommend best practices, and ensure inter-agency coordination.

Technological Infrastructure

The programme relies heavily on information technology and geographic information systems (GIS). Key technologies include:

• GIS Mapping: For spatial analysis and linking of ownership data to land parcels.
• MIS (Management Information Systems): For tracking progress and maintaining accountability.
• e-Governance Platforms: Integration with Bhoomi (Karnataka), Bhulekh (Uttar Pradesh), Dharani (Telangana), and other state-level initiatives.
• Unique Land Parcel Identification Number (ULPIN): A 14-digit alphanumeric ID for every land parcel, similar to an Aadhaar for land, introduced to ensure uniformity and accuracy nationwide.

Achievements and Progress

Since its inception, the NLRMP has achieved notable progress in several areas:

• Most Indian states have completed computerisation of land records and established online portals for public access.
• Over 90 per cent of cadastral maps in many states have been scanned and digitised.
• Automatic mutation systems have been implemented in various states, linking registration and revenue records.
• The ULPIN system has been rolled out across multiple states, enabling better data integration and reducing land-related disputes.
• Increased transparency and public accessibility have reduced middlemen interference and facilitated faster property transactions.

Challenges in Implementation

Despite significant achievements, the NLRMP has faced a number of operational and structural challenges:

• Data Discrepancies: Inconsistencies between textual and spatial records due to outdated surveys and incomplete integration.
• Technological Gaps: Variations in digital infrastructure and technical capacity across states.
• Institutional Coordination: Limited coordination between revenue, registration, and survey departments.
• Legal Constraints: Absence of a national law establishing conclusive land titling, which affects the legal validity of digital records.
• Human Resource Limitations: Shortage of trained personnel in modern surveying and GIS technologies.
• Public Awareness: Limited awareness among citizens regarding digital land record services and online facilities.

Future Outlook and Way Forward

The future of the National Land Records Modernisation Programme lies in full integration with Digital India and the Gati Shakti National Master Plan, ensuring data interoperability and efficient land management.
Key future strategies include:

• Nationwide implementation of ULPIN to standardise and uniquely identify every land parcel.
• Legal reforms to move from presumptive ownership to conclusive land titling, reducing litigation and promoting investor confidence.
• Integration with urban property databases for holistic land governance covering both rural and urban areas.
• Enhanced use of Artificial Intelligence and satellite imagery for real-time monitoring and dispute resolution.
• Public participation and awareness campaigns to encourage citizens to verify and update land records regularly.