New Approach in Urban Planning: Lessons Learnt, Opportunities and Challenges of Participatory Planning. Case of Mbarali District

TP. Dr Victoria Mwakalinga

School of Spatial Planning and Social Sciences (SSPSS)

Ardhi University

The 8^th Annual General Meeting for Town Planners in Tanzania

29^th to 30^th March, 2023

Introduction

• The world is experiencing tremendous demographic, spatial and technological transformation (UN, 2022).
• Currently, 57% (similar to 4.4 billion) of the world population live in urban areas (UNEP, 2022).
• 7 out of 10 people will live in towns and cities by 2050 (World bank, 2021).
• More than half of this growth will take place in low developing countries, where most of the governments invest less in urban planning, infrastructure and service provision due to poverty.

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Introduction …

• By 2030, more than 2 billion of urban residents will live in slum conditions.
• Already, many towns and cities in the LDCs are experiencing considerable negative impacts of informal/ unguided urbanization such as flooding, air pollution, poor housing condition, etc..

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• In Tanzania, about 53% of the settlements are informal. This estimates has decreased from 70% (Kombe, 2016) after the 10 years government programme on planning, surveying and titling of every piece of land in the country by 2023.

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Urban Planning in Tanzania

• The field of urban planning in Tanzania can be traced back to 19^th Century during colonial era, used as a tool of domination and control (spatial and economic segregation).
• The location, size and distribution of major urban centres in Tanzania is almost entirely the product of German and British decisions in the late 19th Century to the first few decades of the 20th.
• Unlike colonial era where the main planning challenge was to ensure spatial and economic segregation, the current planning needs to address multifaceted problems resulting from urbanization, climate change, informality, disease epidemics, etc.
• Urban planning also needs to address global issues such as the 2030 Agenda for Sustainable Development and Sustainable Development Goals which vow to end poverty, achieve gender equality and ensure liveable cities.
• Multi-disciplinary approaches that build on local action and strong partnerships are needed to advance initiatives to make cities and settlements inclusive, safe, resilient and sustainable.
• This commitment aims to ‘leave no-one behind’ highlights the importance and strengthens the significance of citizen involvement in urban development.
• New planning approaches are required to address complex urban development issues, in the context of scarce resources for preparation and implementation of urban plans.

How do Planners Respond to complex urban development issues: Planning Approaches

• Urban Planning is practiced as per regulations, guidelines and policies.
• The legal and policy framework guide planning practices in achieving proper use of land by preventing overcrowding, underutilization, and ensuring efficient functioning of various uses, facilities and services.
• Currently there are two main urban planning approaches used by Planners in Tanzania.
• Top-down or regulatory or technocratic approach
• Bottom-up or discretionary or participatory planning approach.

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Top Down Planning Approach

• This is a planning strategy in which the decision-making process occurs at the highest level (technocrats) and is then communicated downwards through a structured hierarchy.
• The planning objective is formulated and endorsed by high governments, experts, development partners, etc.
• Means for achieving the set objects are also predefined by high level agencies.
• Citizens in this case are consumers of what has been decided for them
• This approach is effective, time saving, and manageable.
• Its success needs sufficient resources from the government or agencies implementing the strategy.

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Participatory Planning Approach

• Public participation is the umbrella term to describe all levels of ‘public’ information, education, relations, involvement and collaboration. (MUDHC 2007).
• The importance of public participation in the urban development processes is acknowledged by contemporary planning theories.
• Recent research in this field, shows that citizen participation can generate trust, credibility and commitment (Van Empel 2018).
• This new planning approach has become one of the well-known tools used to integrate the interests and requirements of all stakeholders who has an interest, a voice and a choice.
• Public participation in urban planning is key for addressing complex urban development issues and creating modern and inclusive cities.

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• In Tanzania, participatory planning was has passed through different stages;
• Stage I: 1961 to 1966 where the government vision was to obtain higher standards of livings by fighting against poverty, diseases and illiteracy (PMO-RALG, 2007b).
• Stage II: 1967-1992. This period led to the introduction of Arusha Declaration which was grounded on the philosophy of social-economic liberalization. The main emphasis was on socialism and self reliance as a means of attaining national development goal.
• Stage III: 1982 local government authorities were reinstated in every party of the country to facilitate the transfer of authority to people. Local governments are given power to involve people in planning and implementation of development programmes�(PMO-RALG, 2008).
• Stage IV: 1998 the government of Tanzania adopted D by D aiming at promoting autonomy and community participation (Mollel, 2010).
• Stage V: 2002 In making sure D by D attain the same, planning participatory approach commonly known as Opportunity and Obstacle to Development (O & OD) was introduced (PMO-RALG, 2009) .This approach intends to strengthen local autonomy by fostering citizens participation through giving power to people to identify and prioritize their needs as well as implementing their development programmes in their localities (Fjeldstad, et al, 2010).

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The Case of Mbarali District Council

• Mbarali is one of the seven Districts in Mbeya Region, located at about 114km from the Regional Headquarter.
• Administratively, the district consists twenty wards, of which ten have been declared as planning areas.
• In the 2022 Census, the district had a total of 300,215 people.
• The district is highly accessible and connected to the cities of Dar es Salaam and Mbeya through TANZAM-HIGHWAY, which also links the district with neighbouring countries of Zambia and Malawi.
• A railway line - TAZARA running from Dar es Salaam to Lusaka Zambia runs in the district.

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• Mbarali district is a home of various ecological systems with national significance such as a very famous wetland called Ihefu, which is the source of Ruaha river contributing about 30% of water in Nyerere hydroelectric dam. Others are the Usangu plain, as well as Ruaha National Park to the north side.
• The district produce 38% share of rice in the country, making it an important national and international market (hub) for rice crop.
• Given its spatial, economic and social qualities, the district continues to attract landholders and developers from different parts of the country.
• This makes the district vibrant, with dramatic spatial transformations and rapid demographic growth. Making it one of the fast growing secondary cities in the country.

Regularization of Informal Settlements in MDC

• Genesis of the project

Started in October, 2019 as Action Based Research funded by TEA through Skills Development Funds

• Implementation modalities

Use fresh graduates from ARU under mentorship from academic staff members.

The project was done in nine small towns.

Some of the meetings held during needs assessment

• How ARU came into regularization project?

Response to the community during needs assessment, who pleaded for title deeds so they can use in accessing loans to improve productivity in rice farming.

Project Coverage

• It covered nine small towns of Ubaruku, Rujewa, Lugelele, Madibira, Mabadaga, Ruiwa, Utengule Usangu, Kongolo and Igurusi

• Centers were consolidated, and grew informally, necessitated regularization
• Their peripheries had scarce development, hence neighbourhood layout schemes were prepared.

Achievement

• Adjudication of 60,100 parcels covering all general land (all earmarked with physical mark on ground)
• Established a comprehensive spatial database for all adjudicated parcels, named as MKEKA by community members (interlinking ownership details, NIDA number, mob phone, plot size, TP number, plot number and beacon numbers (approved surveys), adjudication number (non surveyed plots), land use type in the TP, development status, titling status, payment details (paid for regularization/not), computed cost for titling (statutory fees).
• Preparation of 498 TP Drawings including all parcels adjudicated.
• Mobilization of land for infrastructure and services (roads – all plots are accessible (4m to 60m ROW), water points, education, health, cemeteries and open spaces).

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• Digitalize, geo-reference and link all approved TPs and Surveys
• Designated roads on the TPs prepared provided base for post code project. In Some places, the roads are not yet graded on ground, but the road signs have been erected following how the TPs have designated them.
• Minimization (if not all addressed) of boundary conflicts between landholders immediately after adjudication with physical marks.
• Community members have been using the TPs prepared in transaction of land (they sale or buy as per land use and shape of the plot on the TP). The hamlet and village leaders are well trained on interpretation of the TP drawings, and have been champions on this.
• The TPs and physical marks ground (well known by community members) have been used effectively as tools of development control (to protect areas earmarked for roads and other public utilities)
• Planning the whole general land is critical for addressing informality in the future

Adjudication, negotiation of land use to be designated, confirmation of boundaries and preparation of preliminary maps

MKEKA in a digital and printed forms

Three Concentric Planning Model (3Cs)

• This model was adopted after analysis of the spatial structure / form of the small towns under the project
• All accessible and serviced
• Accommodative
• Compensation funds set aside
• Opening up/ grading roads
• Participatory planning cum top down (hybrid / bidirectional approach was used

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The Adopted Planning Process under Hybrid Approach

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1. Needs assessment – to gather community opinion (expectations, financing modalities, etc)
2. Establish mutual collaboration with the Planning Authority and the ACL office
3. Mobilization of resources and team composition
4. Data search (spatial and non spatial; approved TPs, surveys, plots with title deeds, plots with conflicts, etc)
5. Preparation of preliminary/base maps; work plans; budget
6. Create Community awareness and training to understand and own the process and outputs.

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7. Establishing institutional set up for implementation of the project – as per regularization guidelines. Hamlet leaders were also added to fit in the context.
8. Agree on financing modalities and financial management systems
9. Build capacity to ward, mtaa/village, hamlet leaders and regularization committee on continues basis
10. Establish survey control network (11 were established on Tarif 11)
11. Boundary adjudication and placement of pins to mark boundaries
12. Prepare the list of land holders in the planning areas and compile socio economic data
13. Public display of the adjudication map and boundary confirmation
14. Update base maps at workable scale (resulting from adjudication)
15. Prepare existing land use maps (use type, buildings, access system, infrastructure network, etc)

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16. Prepare existing land rights map (showing plots with approved survey and title deeds).
17. Prepare ecological map (natural drainage, irrigation channels and topographically sensitive / hazard areas)
18. Prepare physical infrastructure map (water supply system, water points (kiosk / wells / stand pipes),
19. Prepare infrastructure deficit / requirements map (identify plots lacking access, catchment and threshold analysis to reveal distance to various infrastructure and services
20. Prepare infrastructure proposition maps as per planning standards which will provide guidance during meetings with land holders on mobilization of land for roads and services.
21. Prepare the map which include mobilized infrastructure and services (update the deficit map) after agreeing with landholders

22. Prepare a detailed layouts
23. Public display at village levels
24. Present and discuss the plan with the community and seek their joint approval
25. Finalize the plan based on the comments from public hearing meetings
26. Follow the approval process for TP drawings
27. Public display of approved TPs at village levels

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Opportunities

• Support of the MLHHSD
• Community willingness to engage in the project
• Citizens awareness on financing planning projects
• Secondary cities can be early intervened, chances to address informality and build future cities of our wishes are still high
• Need for title deeds in the secondary cities is very high, majority want to secure loans for agriculture, mining, livestock keeping, etc
• The new planning guidelines for emerging towns
• Academic institutions sufficient resources and innovations
• Private sector reduce capacity gap
• Possibility to secure land for roads and other infrastructure in secondary cities
• Potential revenue, which has not been well tapped.

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Challenges

• Participatory planning is lengthy process, costly and needs large and diversified team
• Some potential stakeholders need to be paid to participate
• Contribution of funds are haphazard in terms of time and locations, affect project performance
• Some residents still think planning is voluntary, while the MLHHSD guideline insist on systematic planning (all are included)
• Financing still remains a stumbling block to success of participatory planning
• Availability of baseline data (uncoordinated, unavailable, not digital, etc)
• Hesitation of other sectors in engaging with the planning team
• Some interests of the community are not aligned with standards / laws

Lessons Learnt

• Multidisciplinary team is a key to success (planners, surveyors, land officers, community development, environmental engineers, economics, accounts and procurement)
• Social, environmental and economic safeguards are critical features for modern urban planning
• Public display and hearing is a secret for consensus, project ownership and willingness to pay)
• Complaints register worked very well in building trust to landholders
• Full engagement of LGA and ACL was very useful
• Members of regularization committee can be excellent land rangers
• Participatory placed physical mark on grounds are excellent tool for safeguarding infrastructure designated on the TPs.

Conclusion

• Participatory planning is a critical approach for creating sense of ownership and sustainability of urban planning projects.
• It works well in resource constraint environment, since people can support realization of the project goals financially or in kind.
• However, its success needs guidelines which enquire every one in the planning area to participate in the process and commit to the agreement made during the meeting.
• In implementation of planning projects in a participatory manner does not mean bridging the standards and quality of plans.
• This is why, in this case it was found necessary to adopt a hybrid planning approach which at some points uses top down approach (stick and carrot style)

Thank you