Integrated City Development Strategy (ICDS) · 2018. 4. 16. · Overview of ICDS ... An ICDS identifies the prioritized actions, implementation strategies and resources needed to

p

Integrated City

Development

Strategy (ICDS) A Spatial Framework

May 2017

Government of Punjab Pakistan

Disclaimer A publication of Urban Sector Planning and Management Services Unit (Private) Limited, the opinion expressed in the document are solely those of the authors and publishing them does not in any way constitute endorsement of the opinion by the USPMSU.

Review Team Sarah Aslam, Specialist Secretary Local Government & Community Department, GoP Dr. Nasir Javed, CEO The Urban Unit Aslam Rao, Program Director Punjab Intermediate Cities Improvement Investment Program Syeda Sanie Zahra, Sr. Specialist Urban planning, The Urban Unit Technical Team Rob Story, International Consultant, Urban Planning Abid Hussainy, Sr. Specialist Strategic Management, The Urban Unit Design & Layout Wajiha Iqbal, Research Associate Communication, The Urban Unit Printed in Pakistan Copyright © Urban Sector Planning and Management Services Unit (Private) Limited. All rights reserved. For a full list of publications please contact The Urban Unit 503, Shaheen Complex, Edgerton Road Lahore Ph: 042-99205316-22t Fax: 042-99205323 Email: [email protected] www.urbanunit.gov.pk & pcgip.urbanunit.gov.pk/

mailto:[email protected]

http://www.urbanunit.gov.pk/

Message from the Chairman Planning & Development Board, Punjab

Our vision is to make Punjab a secure, economically vibrant, knowledge-based and progressive province. The Punjab Growth Strategy 2018 directs us on the path to realizing this vision, and we are relying on the growing strength of our urban centres to reach there. Implementing an Integrated Cities Development Strategy (ICDS) approach to manage our cities is essential if we wish to achieve the levels of resilience, sustainability and competitiveness.

The basic challenge for Punjab’s economy is to grow, diversify and provide high quality employment to our growing labour force as the key to improving our province’s standard of living. That economic growth must be private sector-led, and as demonstrated throughout the world, will be directly influenced by the strength of our urban centres and the quality of the business environment they provide. The primary focus of the ICDS is to create that environment; facilitate inclusive growth across all sectors of our society; ensure that all stakeholders have the opportunity to contribute to the decisions that affect their future; and manage our human, technical and financial resources in the most effective and efficient way possibly. Only then will our cities and towns become more livable, and serve as the engines of social and economic growth.

Building effective human capital and institutional strength through education and capacity building is central to Punjab’s growth and is strongly emphasized in the ICDS approach. Punjab and Pakistan will only achieve sustained higher living standards by building a strong institutional foundation leading to cities that are resilient, smart sustainable and competitive. I am confident that this document will make a strong contribution in achieving the said goals.

The Chairman Planning & Development Board Government of Punjab

Message from the Secretary Local Government & Community Development Department, Punjab

Increase in population and industrial growth, existence of economic opportunities in cities and lack of effective development control are the causes of haphazard and unplanned urbanization. This is resulting in the invasion of agricultural land, resource depletion due to unfavorable land use patterns, water resource scarcity, and increased demand for land, shelter and infrastructure facilities leading to traffic congestion and urban more frequent disasters. The overall urban quality of life is diminishing. There is a strong need to have a planned design approach and commitment for an optimum use of urban resources. It also calls for proper planning and management and effective policies and procedures for implementation.

We need to define the objectives and priorities of cities in the form of an Integrated City Development Strategy (ICDS) that provides an umbrella for all the development activities to be carried out in a coordinated manner. The goal of the ICDS is to have inclusive development in our cities with participation from all segments of the society and manage the financial, human and technical resources more effectively.

I am sure that by adopting the ICDS framework, cities will be able to develop the urban settings more effectively in order to achieve the goal of inclusiveness and sustainable development.

The Secretary Local Government & Community Development Department Government of Punjab

Table of Contents

1. Introduction to ICDS Framework ....................................................................................... 1

1.1 Introduction ....................................................................................................................... 1 1.2 Definition of an ICDS ........................................................................................................ 1 1.3 Purpose of ICDS Framework ............................................................................................ 1 1.4 Why Do Punjab’s Cities Need ICDS? ............................................................................... 2 1.5 Scope of ICDS Framework ............................................................................................... 3 1.6 Legal Authority of ICDS Framework .................................................................................. 3 1.7 Compliance with ICDS Framework ................................................................................... 3 1.8 Controller (“Home”) of the ICDS Framework ..................................................................... 3 1.9 Amendments in ICDS Framework ..................................................................................... 4

2. Overview of ICDS................................................................................................................ 5

2.1 Policy Framework for ICDS .......................................................................................... 5 2.2 ICDS in a Cascading Planning Context ........................................................................ 6 2.3 Urban Context .............................................................................................................. 7 2.4 Key Concepts ............................................................................................................... 8 2.5 Key Challenges .......................................................................................................... 10 2.6 Key Benefits ............................................................................................................... 11

3. Methodology for Preparing an ICDS ................................................................................ 11

3.1 Overall Approach ....................................................................................................... 11 3.2 Methodology .............................................................................................................. 11

4. The ICDS Document ......................................................................................................... 17

4.1 Content ........................................................................................................................... 17 4.2 Responsible Agencies ..................................................................................................... 17 4.3 Time Horizons ................................................................................................................ 17

5. Conclusion ........................................................................................................................ 18

Annex 1: Sample ICDS Document Outline (Sialkot) ............................................................. 19

Annex 2: Sample ICDS Project Checklist .............................................................................. 20

Abbreviations Term Description

ADB Asian Development Bank ADP Annual Development Programme Cantt Cantonment CC Chamber of Commerce CRVA Climate Risk and Vulnerability Assessment DCO District Coordination Officer DLG Department of Local Government DP&D Department of Planning and Development EDO Executive District Officer EPA Environmental Protection Agency GDP Gross Domestic Product GIS Geographical Information System GoPb Government of Punjab HR Human Resources HQ Head Quarter ICDS Integrated City Development Strategy - a Spatial Plan ICE Information, Communication and Education MC Municipal Corporation/Committee MDG Millennium Development Goals M&E Monitoring and Evaluation NGO Non-Governmental Organization NUA New Urban Agenda ODP Outline Development Plan PEPA Pakistan Environmental Protection Agency PFS Pre-Feasibility Stage PLGO Punjab Local Government Ordinance PSS Punjab Spatial Strategy RUA Rapid Urban Assessment SDG Sustainable Development Goals SME Small and Medium Enterprises SWM Solid Waste Management SWOT Strengths, Weaknesses, Opportunities, Threats Analysis TMA Tehsil Municipal Administration TMO Tehsil Municipal Officer TO Town Officer UC Union Council ULC Urban Local Council UN United Nations UU Urban Sector Planning and Management Services Unit (Private) Limited WB World Bank

Integrated City Development Strategies - A Spatial Framework

Page | 1

1. Introduction to ICDS Framework

1.1 Introduction The Government of Punjab (GoPb) recognizes that the well-being of all cities in the province is essential to social and economic growth. In order to achieve this, Punjab’s cities must have effectively functioning with sustainable and resilient planning, development and management. In support of this GoPb. is introducing and mandating a City Development Strategy - A Spatial Plan (ICDS) Approach. This document - An ICDS Framework, sets out government’s rationale, principles, implementation guidelines and methodologies for the preparation, institutionalization and operationalization of ICDS in Punjab Province. The ICDS will be integrated within the broader Punjab Spatial Strategy (PSS) to ensure full provincial coordination across all levels.

1.2 Definition of an ICDS

Definitions of an ICDS include:

“An action plan for the equitable growth in a city, developed and sustained through public participation to improve the quality of life for all citizens. The goals are a collective city vision and action plan to improve governance and management, increasing investments to expand employment & services, systematic and sustained programmes to reduce poverty. A city is expected to drive and locally own the process. An ICDS is corporate business plan for the

city.”1

“An ICDS is a dynamic exercise involving broad public consensus to guide the design and implementation of a comprehensive municipal development programmes. ICDSs focus on the living city, its human element, its economic activity, and its political realm and dynamism, as the unit of analysis, with the view that the city is a dynamic, integral and driving component of a regional or national, or even international economy.

The ICDS integrates all of a city's actors in a concerted and consensual development proposal. The ICDS develops a common understanding of municipal priorities, constraints & challenges, and constitutes a shared vision of the city's short, medium and long term development objectives. It orders the city's resources, and gives reason & orientation to the use of these resources through a clear and consensual development implementation strategy.

The ICDS is a living and dynamic exercise, paving the way to a better and more prosperous

future envisioned by the city's residents and leaders.”2

1.3 Purpose of ICDS Framework

The main purpose of ICDS Framework is to promote the effective and efficient development of urban centres that are safe, green, inclusive, resilient, livable, sustainable and competitive thereby fulfilling their critical role as the engines of economic and social development for the province, and the nation. An ICDS should sustainably enhance urban performance, measured in terms of: (i) economic growth, linked to improved livelihood opportunities; (ii) poverty prevention and alleviation; and (iii) improved environmental and public health, inclusive of poor

1 Asian Development Bank (ADB), Institutionalizing the CDS 2 World Bank, [email protected]

mailto:[email protected]


Page | 2

and informal urban communities.3

More specifically, ICDS Framework is intended to:

Encourage a consistent approach and a common methodology for development of short, medium and long-term urban strategies.

Provide common planning and development principles in line with national, provincial & global development policies and best practices.

Provide a methodology for local governments to undertake ICDS preparation.

Provide a methodology for prioritizing specific urban development investments in a comprehensive and integrated manner.

Provide a methodology for establishing mutually beneficial linkages between individual urban centres & District, Provincial, National and International development.

Provide a clear vision & development guidelines to support informed decision making by local government, service agencies, private sector, community organizations and residents.

Result in urban areas that are green, safe, livable, resilient, sustainable and competitive.

1.4 Why Do Punjab’s Cities Need ICDS?

Punjab’s cities are recognized in Punjab Urban Sector Development Plan 2018 as “Engines of Growth”, the key to future social and economic development, and they must be equipped with the elements needed to perform that role. Punjab’s cities currently lack a number of those elements. These cities are characterized by ad-hoc, unsustainable development resulting from inadequate institutional capacity and lack of coordinated planning, municipal management and development control. Consequently, cities are failing their citizens, losing competitiveness, and are ill-prepared enough to deal resiliently with climate change and economic shocks. Punjab’s cities and their senior decision- makers need a holistic, vision and demand-driven framework to replace ad-hoc development, guide sustainable and resilient future growth. City decision-makers also need the tools to link their own city’s development with that of their hinterlands, district, province and beyond in a mutually supportive network of urban clusters and city systems. The adoption of ICDS approach for future urban planning and development fills those gaps and provides city decision-makers, led by the mayors, with the ability to address these deficiencies beginning with establishing a future vision.

An ICDS identifies the prioritized actions, implementation strategies and resources needed to achieve that vision. An ICDS eliminates the ad-hoc approach and demonstrates to potential investors that the city is organized and ready for business, an important component of creating a conducive business environment.

Additionally, ICDS methodology is based on comprehensive stakeholder participation, which strengthens transparency and accountability, thereby more closely matching residents’ priorities with investments and increasing the sense of local ownership of development initiatives.

3 Guide to CDS, citiesalliance.org


Page | 3

1.5 Scope of ICDS Framework

The ICDS Framework will initially be notified for the five (5) cities namely Sahiwal, Sialkot, Sargodha, Bhawalpur & Rahim Yar Khan, and will be subsequently extended to apply to all scheduled cities/urban centres included in ICDS Framework Rules.

1.6 Legal Authority of ICDS Framework

ICDS is not mentioned in the powers and functions of local governments in Punjab, either in the PLGO 2001 or the PLGA 2013. In order to provide legal authority for ICDS, an amendment by way of addition to the powers and functions of local governments will be required. It is proposed that the words “Integrated City Development Strategy” be added to the powers and functions of Town Municipal Corporations under Section 87(1) of the PLGA 2013.

Along with this addition to the legal powers and functions of local governments, the Local Government and Community Development Department (LG&CDD) may formulate and notify an Integrated Cities Development Strategy Framework Rules (the “ICDS Framework Rules”) under powers to make rules conferred by the Section 144 PLGA. The ICDS Framework Rules will set out the process by which local governments may prepare, notify and implement an ICDS for the local area (the area of jurisdiction of the local government). The Rules will be accompanied by a schedule listing the local governments to which the Rules will apply. The Schedule will be the mechanism whereby the Government of Punjab, through the LG&CDD, may add and include further local governments to the ICDS Framework.

For cities included under the PICIIP, notification will be completed under PICIIP’s mandate.

1.7 Compliance with ICDS Framework

In order to ensure consistency and uniformity in the application of ICDS procedures, compliance with the ICDS Framework is mandatory. The ICDS Framework will be reviewed on an as needed basis and modified accordingly to reflect changes in the Government policies, requirements of cities in their operating conditions or global advancement in urban development best practices. Any amendment or update of the ICDS Framework must be processed in accordance with amendment procedures described in a forthcoming section of this chapter.

1.8 Controller (“Home”) of the ICDS Framework

The ICDS Framework is housed at 3 levels as illustrated in Figure 1-1. The Secretary of Local Government (LG), as the controller, will be the Policy Home for the Framework to ensure safe custody, and management of legal requirements for notification, maintenance, distribution, implementation and revision. The Secretary of Planning & Development (P&DD), shall be the Implementation Home of the Framework providing the resource support to individual urban entities for all aspects of preparing and operationalizing city-specific ICDSs in accordance with the Framework’s requirements. Individual cities will be the Operational Home of the Framework responsible for actually preparing, implementing and managing the process.


Page | 4

1.9 Amendments in ICDS Framework

Any amendment in ICDS Framework may be affected by way of an amendment notified by the LG&CDD in the ICDS Framework Rules. Also, apart from an amendment in the framework by which a local government may formulate and implement an ICDS, the Government of Punjab has the flexibility to include local governments in the Schedule to ICDS Framework Rules. Such amendments may be moved by way of representation (by users or local governments) to the LG&CDD or by the Government of Punjab through the LG&CDD.

Figure 1-1: ICDS Framework “Home”


Page | 5

2. Overview of ICDS

2.1 Policy Framework for ICDS The ICDS Framework is prepared within the context of a number of over-arching policies including:

a. National Development Strategy - Vision 2025 This over-arching strategy guiding Pakistan’s development to 2025 is built on 7 pillars directly applicable to urban development:

Developing social and human capital and empowering women Sustained, indigenous and inclusive growth Governance, Democratic governance, institutional reforms and modernization of the public

sector Security: Energy, water and food security Entrepreneurship, Private Sector and entrepreneurship-led growth Knowledge Economy, Developing a competitive, knowledge economy through value

addition Connectivity, Modernizing transport infrastructure and regional connectivity

b. Punjab Growth Strategy 2018 In order to achieve Punjab’s targeted GDP growth rates, there is a need to focus on the two

key and linked sectors of industrial development and urban development including4

: Improving investment climate with upgraded infrastructure, institutional and governance

reforms, better functioning cities and urban clusters Revival of investment by the private sector Focus on employment-intensive sectors and creation of quality jobs

Focus on export-oriented economic growth

For sustained improvement in living standards, the growth strategy must be:

Led by the private sector

Based on improvements in productivity of resources

Focused on employment intensive job creation

Anchored in better functioning urban clusters Bolstered by better skilled and more employable youth by addressing critical gaps in human

capital

c. Punjab Spatial Strategy

The Punjab Spatial Strategy (PSS) sets out broad guidelines for spatial development at the provincial level within which urban spatial development is one component integrated into protected environmental lands, agricultural lands, economic development zones, infrastructure corridors and others. The ICDS will receive guidance from the PSS and must be consistent with its overall goals and objectives.

4 Punjab Growth Strategy 2018


Page | 6

d. Punjab Urban Sector Development Plan 2018

The Punjab Urban Development Sector Plan 2018 is built on the same understanding of urban areas being people-based, with a need for high levels of coordinated integration to succeed. Furthermore, it is based on the central principle of that “density” and “agglomeration” are key to economic development, higher productivity, social equity and human development. These, in turn, are essential to make Punjab’s cities competitive for investment and development thereby creating the jobs required for Punjab’s growing labor supply.

e. Global Policies

At global level, ICDS Framework aligns with policy directions and urban development principles including those contained in the UN’s Sustainable Development Goals (SDG), UN’s HABITAT III New Urban Agenda (NUA), the Asian Development Bank’s Urban Operations Plan 2012-2020, and Cities Alliance’s Guide to City Development Strategies.

2.2 ICDS in a Cascading Planning Context

An ICDS forms part of a cascading series of plans that are fully integrated obtaining guidance from higher level plans and informing lower level plans. Planning goals, concepts, principles and the resulting development initiatives must be linked, consistent and mutually supportive across all levels.

Figure 2-1 Summarizes the Cascading Planning Hierarchy in Punjab Province.

Figure 2-1: Cascaded Planning


Page | 7

2.3 Urban Context

Punjab’s future economic and social growth is highly dependent on the strength of its urban centres. Punjab will achieve an urbanization rate of approximately 50 % by 20305, and is one of Asia’s most rapidly urbanizing regions. In order to meet the needs of the urban population and fulfill cities’ roles in the economy, we require a carefully managed use of financial and human resources. Punjab’s urban centres have significant shortages of both and lack the instruments necessary to most effectively use what they do have and attract more. Social and economic growth hinge on job creation. Job creation requires private sector investment, and attracting that requires a conducive business environment making cities competitive in the regional and global context. To create jobs, raise productivity, and increase incomes that are the indicators of a competitive city6, Punjab’s cities must put in place a number of elements: a. Efficient, effective and transparent governance including approval processes b. Competent city management c. A well-functioning land market d. Adequate infrastructure and services including power, transport and water.

e. To sustainably provide these, it requires a city that is:

Compactly planned with effective development control Largely self-financed through appropriate levels of taxation and user- fee collection

f. To attract and maintain that labor force, it needs a city that has: well-functioning and affordable infrastructure and services adequate social amenities - health, education and recreation access to a full range of economic amenities and opportunities affordable housing affordable and efficient transport a pleasant “livable” urban environment Resilient adaptations to climate change and resulting environmental impacts Smart Cities

Providing all of these competitive city needs relies on the capacities, efficiency and integration of institutions through all levels of government.

Punjab’s urban centres are characterized by relatively uncontrolled ad-hoc urban sprawl resulting in inefficient and unsustainable land use, infrastructure needs that are uneconomical and technically challenging, negative environmental impacts, lack of access to social and economic amenities, and overloaded demands on urban services without an adequate tax base to support them. At the same time, cities lack sufficient own-source revenue streams to dedicate adequate funding to development initiatives with an over- reliance on government transfers to simply sustain operating costs. Governments, in turn, suffer similar shortages of urban development and management finance.

Implementable city development plans in all their forms and levels are lacking, and the human, technical and financial resources needed to prepare, implement and manage them are inadequate. In their absence, ad-hoc development and political whim dominate.

At the same time, Punjab has prepared the Punjab Urban Sector Development Plan 2018 which acknowledges all of these shortcomings and sets the framework for addressing the problems. ICDS is an important tool for operationalizing that policy and establishing a consistent and comprehensive approach.

5 Punjab Urban Development Sector Plan 2018 6 IBID


Page | 8

2.4 Key Concepts

ICDS Framework is based on a number of urban and developmental concepts beginning with the understanding that cities are first and foremost gatherings of people who have come together to share resources, innovations, strengths and challenges. People require supporting infrastructure and services that cities must then provide. The result is that cities comprise a complex web of fully integrated and interdependent soft and hard components as illustrated in Figure 2-2.

Figure 2-2: Integrated Urban Components

To address the development needs of these integrated urban components, the ICDS

supports 5 important development themes:7

7 Cities Alliance


Page | 9

a. Livelihood (Jobs, Business Start-ups and Household Income) Employment and household income are at the root of social and economic development and, consequently, urban development. All other efforts are directly or indirectly aimed at increasing household income by improving the enabling employment environment.

b. Environmental Quality, Service Delivery & Energy Efficiency

Environmental management including resilient responses to climate change are no longer options, but must form on integral cross-cutting consideration of all future urban planning and development. Diminishing water resources, changing weather events, urban sprawl with related land loss and increasing mobility impacts must all be taken into consideration when planning urban form and service provision. Incentive structures are required to encourage energy conservation ranging from the development of compact, green urban forms to energy-efficient individual buildings.

c. Spatial Form & Infrastructure

An ICDS addresses urban form and supporting infrastructure from three perspectives:

There is a close relationship between urban form and energy efficiency.

Compactness with optimum land use is generally the key.

There is a close relationship between physical attractiveness and livability of the city with economic development. Amenities must be available to attract the talent and investment needed to move a city forward and keep it competitive.

Land is the key component to urban development and must have appropriate availability, location and tenure.

Advance planning for appropriate land and services is required to avoid the development of informal settlements as rural-urban migration continues. Slums are the result of a failure of cities to provide appropriate settlement options in advance to absorb the inward flow of a full spectrum of socio-economic classes.

Environmental, social and economic resilience and sustainability will be enhanced by following the principle of making maximum and optimum use of existing urban land and infrastructure before expanding outwards to new lands requiring new services.

d. Financial Resources An ICDS stresses the need to mobilize the full range of public, private and community financial, and other, resources. Public resources are limited and are greatly exceeded by potentially available private sector resources if a conducive investment environment is established. As a start, Punjab’s cities must increase their proportion of own-source revenue collection, and reduce dependence on higher-level government transfers. This will create greater local autonomy and local decision-making capabilities & engage residents in a higher level of direct involvement in their city’s development. A combination of increased service tariffs and property tax collection are two key starting points. Innovations through transparent & consistent planning, approval processes, and improved, reliable service delivery are critical to attracting investment either directly or through various forms of public-private partnership. In order to implement these reforms requires adequate local government human resource capacities. The establishment of a proposed Economic Development function within the local government structure will be relying on a conducive and investment fr iendly environment.


Page | 10

e. Governance An effective ICDS programme must incorporate governance at all levels from formal national government down through informal community and individual participation. Formal local government at the city level becomes the focal point, but it cannot operate in isolation including an increasingly important role of a robust full stakeholder participation process. Fundamental to implementing the complete ICDS programme and related governance needs, is the availability of adequate local government human, technical and financial resources and capacities. Knowledge and expertise are required to play key roles including: representing public interest, stimulating urban innovation, and taking responsibility for service delivery through a variety of mechanisms including both directly or indirectly through public-private partnerships in all their possible forms.

The ability to attract and manage financial resources, prepare both operational & developmental budgets, establish & implement own-source and external financial sources is essential.

2.5 Key Challenges

The major challenge facing Punjab’s urban areas, is the increasing gap between service needs and service delivery. Governments have been unable to meet the backlog of demand and keep up with the new demands of rapid urbanization. This is the result of a combination of lack of resources - human, technical and financial - and poor management of those resources and assets that are available. Punjab’s cities need a strategy to manage the accelerating urbanization to make them more livable, resilient and competitive, and fulfil their roles as “engines of growth”.

Cities lack strategic frameworks and direction for economic development and spatial growth. Where plans have been prepared, they are not followed, as they have no legal force, gather limited political support, and lack mechanisms for meaningful stakeholder participation in their preparation and implementation. Many are not implementable for the same reason that these have not been prepared with comprehensive stakeholder participation or based on existing socio-economic realities.

Among the key urban challenges facing Punjab’s urban areas now and in near future are:

Unchecked urban sprawl Inadequate infrastructure

Inadequate regulatory framework and enforcement Inconsistent urban statistics

Limited local governance capacity to enforce laws and regulate the sector - limited development control

Isolated planning standards Limited professional knowledge of urban service financing keeping costs high and qualities

low Excessive public land ownership

Weak property rights Counterproductive urban planning policies and regulations Costly subdivision and construction regulations Rent controls

Distortive taxation mechanisms Absence of well-functioning urban land and housing markets


Page | 11

2.6 Key Benefits

Key benefits to be derived from the implementation of ICDS Framework include:

Taking a holistic, integrated & participation-based approach to urban development clearly prioritizing programmes and investments over the short, medium and long-term in place of the currently predominant ad-hoc series of isolated projects.

Bases urban development on an overall vision supportive of local realities & aspirations, integrated with higher-level development goals and policies.

Demonstrates to potential investors that a city is organized with a clear development direction and mechanisms for achieving it in place.

Provides a monitoring and evaluation check-point against which all proposed programmes and investments can be validated for consistency of direction.

3. Methodology for Preparing an ICDS Each individual city is responsible for preparing their own, locally appropriate ICDS. The overall approach and methodology for doing this is presented below.

3.1 Overall Approach

The overall approach to preparing an ICDS is based on a city-based comprehensive and ongoing stakeholder participation process. This must include representatives from the public sector at Provincial, District and Municipal levels; private sector business interests from both formal and informal sectors; community representatives including leaders, CBO members and interested residents; locally active NGOs; service providers including those responsible for health, education, recreation and infrastructure (water, solid waste, sanitation, transport) whether they are public or private; external knowledge contributors that may have an interest in the respective cities with regards to cross-cutting issues such as environmental management, climate change and economic development. Other national and international development agencies should also be included.

3.2 Methodology

Utilizing the highly participatory approach outlined above, a 5-stage methodology for

preparation of an ICDS, including cross-cutting participation, as illustrated in Figure 3-18 will

develop a consistent approach across all cities enabling a sharing of resources and experiences. Consistency will also allow for constructive comparative monitoring and evaluation of results. The 5 stages of ICDS process are presented below including the cross-cutting participation processes key to the inclusiveness of the exercise.9 Prior to commencing individual city ICDSs, a broad province-wide introduction and awareness programmes will be led by the Government of Punjab to ensure all cities are aware of and understand the process.

8 adopted from ADB Institutionalizing the CDS 9 adopted from ADB Institutionalizing the CDS, and Cities Alliance Guide to City Development Strategies


Page | 12

Stage 1: Preparation

This stage establishes a programme for preparing and implementing ICDS. This stage identifies the key stakeholders, drivers and champions of the process, management system, objectives and the work programme. A Rapid Urban Assessment at this stage will also produce a first City Profile providing an overall picture of conditions in the city. Preparation involves several steps:

a. Initiating the Process

The ICDS Framework is a provincially mandated undertaking, and requires the Department of Local Government & City District, or other designated provincial authority, to notify the respective Municipal Corporation or entity to prepare the ICDS under Town Municipal Officer Planning. However, local high-level leadership, ownership and coordination is required from the beginning. If the Mayor or equivalent political figure is not seriously involved in the ICDS process, it has little likelihood of succeeding and should not proceed. The process should be guided by a Key Stakeholders Group, or equivalent body that represents an inclusive cross-section of key interest groups as outlined above. Opportunities for open-access input from town meetings, radio call-in shows, and so on must be provided, however, this collaborative approach to strategy development also requires a small, but representative group to translate a “wish list” into solid strategy.

ICDS Framework includes restructuring of local government to reflect and support the integrated, inclusive principle. However, ICDS is a cross-cutting process, not a specific new position or department. Some new departments will result based on the need to broaden municipal management responsibilities, and definition of these will evolve during ICDS preparation. As such, ICDS needs to start with high-level guidance under a powerful policy and strategy entity, a working committee, attached to the Mayor’s office to manage ICDS

Figure 3-1: The ICDS Process


Page | 13

preparation process, and then oversee the wide spectrum of municipal functions once the ICDS is operationalized. Initial capacity support may be required from the provincial government to undertake the process.

b. Establishing Initial Parameters and Scope

The initiation process also needs to agree on the spatial scale of the analysis, and the breadth of issues to be considered. To be holistic, an initial ICDS should address the full spectrum of urban issues as summarized in Figure 2-2. Geographically, an ICDS, by definition, must address not only the official urban area, but also its surrounding area of influence, and linkages, both physically and economically, to the district, province, country, and in some cases international destinations. An ICDS will lead to a prioritized series of investments and development initiatives, some of which may cross jurisdictional boundaries and, therefore, will require long-term integration and collaboration.

c. Initial Assessment - City Profile

An initial, high-level Rapid Urban Assessment (RUA) should be conducted by a team of experienced professionals including experts in urban planning and land use, sociology, environment, urban economics, municipal finance, governance and management, and infrastructure including water supply, sanitation, drainage, solid waste management and transport. Expertise in stakeholder participation processes is also essential. The RUA will provide an overall picture of the urban area and its context, identify some initial major local urban issues, opportunities and constraints, identify a broad range of likely stakeholders and their capacities to participate, and set the stage for undertaking the detailed ICDS.

Stage 2: Analysis - Where We Are Now

This stage includes detailed baseline data collection on a full cross-section of sectors grouped into themes as discussed below, analyzing the city’s strengths and weaknesses, building consensus and common understanding of the city’s key problems and priorities, and define an over-arching vision for the future of the city.

a. Data Collection

Data collection and analysis will be undertaken by a team of local government officials supported by external specialists, as required, including the following:

Geography: location, topography, natural features, physical linkages

Demographics: population, growth trends, migration patterns, ethnic groups Economic activities and development including regional linkages Urban form and land use Infrastructure and service coverage (transport, water, sanitation, drainage, solid waste

management, power, communications)

Environment: climate, climate change, resources, valued natural and cultural assets, threats and challenges

Social inclusion, amenities and poverty: housing, education, health, poverty reduction programmes, vulnerable groups

Linkages: economic, social and physical at regional, national and international levels including functional clustering

Assessing condition of assets Associated risk, age & attribute of assets Governance and management

City finances and resources


Page | 14

The analyses will also identify gaps, produce forecasts and set targets.

b. Undertaking a SWOT Analysis

Based on the collected data and accompanying stakeholder participation processes, the city’s strengths and weaknesses will be defined along with opportunities and threats to development in a format as suggested in Figure 3-2.

Figure 3-2: SWOT Analysis Format

c. Prepare Development Sector Statements (Themes)

Each of the sectors assessed above should be the subject of a Sector Statement outlining:

A description of the sector

Analysis of changing patterns, trends, including spatial dimensions

Implications of the trends and projections spatially, socially, economically, financially and environmentally

Key problem areas and issues affecting city competitiveness, and

Areas where interventions may be beneficial and/or necessary

Expected results - short, medium and long-term - from those interventions individually and collectively for the city.

All statements should conclude with a focus on changes, issues, opportunities and constraints. Sectors may be grouped into Development Themes such as the following from which development priorities may be selected by individual cities keeping in mind, however, that no sector can development independent of the others:

Local Economic Development

Poverty and social inclusion

Environmental and climate change management

Urban form and Infrastructure

Governance and management

Finance and resources

Compile all of the above findings and analyses into a comprehensive and concise City Situation Analysis - State of the City Report.


Page | 15

Stage 3: Strategy Formulation - Where We Should Go Now

This stage begins with preparation of a vision statement for the future of the city evolving out of the SWOT and other analyses conducted in the previous stage. Then an integrated series of specific development options and action plans are prepared to achieve that vision.

a. Formulating a Vision

The first step in addressing the historic problem of ad hoc development is to establish a long- term “Vision” of where the city would like to be in 10-15-20 years. This becomes the overarching reference point when evaluating proposed development activities.

A vision statement needs to be specific, internally consistent, and realistic but challenging. It should stress what is unique about the city and be short, easy to read and understandable by the general population. A vision is important because it aligns stakeholders’ energies so that the stakeholders work cooperatively and for the same goals. Although a vision should remain in place for a lengthy period of time, the tactics needed to achieve it may need to be modified as conditions change. Successful cities are flexible and adaptive in pursuing their visions, recognizing that traditional, especially rigid, static, or top-down, planning can be harmful. A vision statement must emerge from a broad stakeholder participation process.

b. Expected Results

Achieving the vision is the overall goal, but to reach that point a series of short (Outputs), medium (Outcomes) and long-term (Impacts) developmental results will have to be achieved. To proceed from the analysis to preparation and selection of investment proposals, and to subsequently be able to monitor and evaluate their implementation, an overall Results Matrix should be prepared including: Expected Result, Activities required to achieve the result, inputs required, monitoring indicators, and means of measuring those indicators.

c. Action Plans

The “Vision” is the foundation of the ICDS with a series of prioritized sector-based Action Plans providing the instruments for achieving the vision and the more specific developmental results. Each Action Plan requires an objective, description, activities, tasks and sub-tasks, a budget and an implementation plan which identifies responsible stakeholders, financing mechanisms and an implementation schedule which may include incremental phases based on projected resources and demand. Each Action Plan should be developed with resources and activities identified for each of the three phases of any investment: Plan - Implement - Manage.

d. Prioritization of Investment Selection

Not all development themes nor their supporting Action Plans will have equal priority, and these priorities may change over time. Through a broad participatory process, priority programmes and investments must be identified and ranked based on a combination of priority existing issues, key gaps in city competitiveness and available resources.

e. ICDS Implementation Strategy

The Vision, Action Plans and Implementation Plans combine to form the comprehensive ICDS Implementation Strategy. The strategy identifies linkages and cross-cutting themes between Action Plans that should be coordinated for efficient use of resources and maximum benefits. The Implementation Strategy must also include:

Stakeholders responsible for individual components and overall coordination


Page | 16

Revenue sources: own-source through taxation and user fees, higher-level government transfers, international development agency funding, Public-Private Partnerships (PPP) in their various potential forms including Build-Own-Operate, Build-Own-Transfer, etc.

Ongoing Information, Communication and Education (ICE) programme to keep all stakeholders involved

A Monitoring and Evaluation Programme (M&E)

In summary, a city’s ICDS becomes its Corporate Business Plan.

Stage 4: Implementation, Monitoring & Evaluation

A critical part of the investment cycle of Plan-Implement-Manage is the ability to monitor progress, identify issues, and make adjustments as implementation of ICDS proceeds. Monitoring and Evaluation (M&E) should happen at two levels: ongoing internally by a designate responsible authority, and periodically by an external agency. Setting up an (M&E) programme begins with the establishment of the Results Framework discussed above, complete with measureable performance indicators. The key is that they are measureable, and few in number to facilitate a feasible assessment. Ongoing M&E should first be an ongoing part of the implementing agency’s work, with each decision evaluated on whether or not it is contributing to the achievement of the desired results. In addition, a more formal and comprehensive M&E should be conducted at regular intervals, perhaps tied to budget cycles, by an objective external agency with recommendations used to modify the course of the investment. This also provides an opportunity to re-evaluate the original premises and take into account changing conditions and priorities which are inevitable over time. These recommendations then feed back into the investment cycle.

Participation

Underlying the entire ICDS process, and key to its relevance and effectiveness, is a robust, fully inclusive stakeholder participation process. Establishing this is the first order of business when initiating the process, and must form an integral part of all steps along the way. A comprehensive Information, Communication & Education (ICE) must be established using a variety of mechanisms including all forms of local public media, community workshops, focus groups, community-based organizations, local government and religious leaders all with readily accessible and monitored feedback/input opportunities. Stakeholder inputs form a critical part of programme design and are key to monitoring the results. Programme ownership is established through participation and is key if local changes are to be accepted including such things as increased tariffs or tax regimes.

Project Compliance Checklist

All proposed investment projects or programs within cities shall conform to the guidance of ICDS and shall be confirmed against an ICDS Checklist. A sample ICDS Checklist is presented in Annex 2.


Page | 17

4. The ICDS Document

4.1 Content All of the above must be consolidated into a final ICDS Document which should include:

State of the City Report (Situation Analysis)

Sector Statements

Summary of key issues/problem areas

Findings of the SWOT analysis

Vision statement

Results Matrix

Development strategies by sector and theme

Consolidated ICDS - a Spatial Plan in text and graphics

Action Plans

ICDS Implementation Strategy including Action Plan prioritization

Monitoring, evaluation and feedback mechanisms

Confirmation with Punjab Spatial Strategy Framework

Annex 1 presents ICDS document outline as prepared for Sialkot which may serve as a template for other cities. Cities preparing their own ICDS should refer to the complete notified Sialkot ICDS for further guidance.

4.2 Responsible Agencies The ICDS document will be prepared by ICDS Team and Steering Committee under the guidance of the Mayor and presented to the Mayor for approval. The ICDS Team will include local officials with varying levels of external support depending on local capacity levels. Suggested composition of ICDS Steering Committee:

Mayor - Chairperson

Deputy Commissioner (DC)

Municipal Officer Planning

Municipal Officer Infrastructure and Services

Chief Officer

Municipal Officer Services, Municipal Officer Works

Representative of Department of Local Government

Representative of the Urban Unit

Representative of local Chamber of Commerce

4.3 Time Horizons Sialkot and Sahiwal, with the benefit of prepared ICDSs shall complete their ICDS approval within a period of 6 months from notification, while all other intermediate cities shall initiate preparation of their ICDS within 6 months of being scheduled, and complete approval of their ICDS within 2 years of being scheduled. The guiding Vision Statement may have a time horizon of 10-15 years while the ICDS will have a 10-year time horizon with supporting detailed land use and sector plans having 3-5 year time horizons. These will be supported by annual or rolling (3 year) business plans and budgets. The ICDS is a fluid document with ongoing review required as implementation proceeds. Formal reviews should be conducted every 2 years as part of the Monitoring & Evaluation programmes to ensure the document remains relevant.


Page | 18

5. Conclusion The strength of Punjab’s cities will increasingly be the determinant of the province’s social and economic growth. Local governments, under the leadership of elected officials and key decision makers, need increased capacity and a guiding decision-making framework to fulfill that role and ensure their cities are well managed to fulfil residents’ needs and aspirations by being inclusive, sustainable, resilient and competitive. ICDS process provides the tool and methodology to accomplish this in an organized and prioritized manner making best use of available resources. All of Punjab’s cities are now required to adopt ICDS approach.

Page | 19

Annex 1: Sample ICDS Document Outline (Sialkot)

I. Introduction ..................................................................................................................7 A. Background......................................................................................................................7

B. Goals and Objectives of the Program ..............................................................................7

C. Objectives of an Integrated City Development Strategy (ICDS) ........................................8 D. Policy Context ..................................................................................................................8

E. Approach and Methodology- City Development Concepts and Strategies.....................11

II. Urban Development Principles & Concepts .........................................................12

A. Urban Development Best Practices & Principles ............................................................12

B. Sustainability and Resilience..........................................................................................13

C. Urban Development Form & Processes .........................................................................15 D. Two Elements of Urban Development............................................................................17

E. Urban Development Components ..................................................................................18 F. Urban Development Project Cycle .................................................................................18

Ill. Urban Development and Economic Growth ...........................................................19 A. Punjab's Growth Strategy ..............................................................................................19

B. The Urban Role................................................................................. .............................20 C. Urban Needs to Support Economic Growth....................................................................20

D. The PICIIP Contribution .................................................................................................20

IV. Urban Planning, Institutions & Management.........................................................21 A. Governance ...................................................................................................................21 B. Institutional Development -A Tool to Gain Competitive Advantage ...............................21

C. "Cascaded" Urban Planning............................................................................................25

D. How is ICDS Integrated and Institutionalised? ...............................................................26

E. Proposed ICDS Municipal Management Structure .........................................................27 F. Union Councils and Muhallah Level Governance: ..........................................................28

G. Land Management .........................................................................................................28 H. Participatory Budgeting ..................................................................................................31

I. Participatory Budgeting and ICDS- A Policy Framework...............................................31 J. Sustainability & Urban Revenue Generation ................................................…..............31

V. Sector Concepts & Strategies..................................................................................32 A. Basic Urban Structure ...................................................................................................32

B. Mobility (Transport) Strategy .........................................................................................33 C. Green Public Space Strategy .........................................................................................34

D. Social Development Strategy ........................................................................................35 E. Economic Development Strategy ...................................................................................37

F. Water Supply Strategy ..................................................................................................40

G. Sanitation & Sewerage Strategy ...................................................................................41 H. Drainage Strategy .........................................................................................................42

I. Solid Waste Management Strategy ...............................................................................42 J. Resilience Strategy ........................................................................................................43

K. Expanding the City- New Muhallahs.............................................................................44

VI. Sialkot Urban Development Strategy- Context...................................................45 A. Summary Sialkot SWOT Analysis .................................................................................45

B. Sialkot's Vision ...............................................................................................................46 C. Sialkot - Existing Situation - Summary ...........................................................................46

VII. Sialkot Urban Development Strategy .....................................................................49 A. Physical Development & Growth Options........................................................................49

B. Preferred Development Option and the Strategy ............................................................50

Page | 20

Annex 2: Sample ICDS Project Checklist

This checklist serves as a city validation that a planned initiative is consistent with and makes a positive contribution towards achieving the goals and objectives of the city’s approved Integrated City Development Strategy (ICDS). This is to be completed and attached to each project to be submitted as a PC-I to DDSD/PDWP/CDWP.

City:

Project Name:

Sector:

Description:

Cost: Mode of Financing:

No. of Direct Beneficiaries: No. of Indirect Beneficiaries:

Is the proposed project or programme: Consistent with the city’s Vision?

Yes No Prepared with the participation of:

Public Sector Private Sector NGOs CBOs

Others The ongoing IEC Programme10

Check all that apply and attach attendance sheets.

Consistent with the appropriate Sector Strategy/Plan?

Yes No Punjab Spatial Strategy?

Yes No N/A

Integrated with other sectors?

Yes No N/A Which ones:

Health Education Econ. Devel. Environment Industry

Water Sanitation Transport Smart City Energy

Integrated with other projects? Yes No N/A

Consistent with the related Land Use Plan? Yes No N/A

10 Information, Education and Communication Programme

Page | 21

Consistent with the related UC Plan? Yes No N/A

Consistent with the related Muhallah Plan? Yes No N/A

Contributing to Climate Change resilience?11 Yes No N/A

Describe how:

Contributing to Economic resilience?12 Yes No N/A

How much: None A lot

1 2 3 4 5

Considering lower carbon emission/greener alternatives? Yes No N/A

Subject to an approved EIA/IEE and necessary mitigation? Yes No N/A

Contributing to urban densification/compactness?13 Yes No N/A

Contributing to urban sprawl?14 Yes No N/A

Has confirmed, adequate and on-going source of Operations and Maintenance funding?

Yes No N/A

Subject to a formal, PC-I prepared Monitoring & Evaluation Programme with

identified funding?

Yes No N/A

Municipal Officer Infrastructure Municipal Office Planning

Confirming authority: Chief Officer Date

11 Storms, flooding, drought, temperature change 12 Increasing economic diversity, strengthening markets, creating employment, encouraging investment 13 Making best use of existing developed land and infrastructure/service investments before new ones 14 Encouraging growth beyond existing, formally planned and fully developed urban areas

Documents

Integrated City Development Strategy (ICDS) · 2018. 4. 16. · Overview of ICDS ... An ICDS identifies the prioritized actions, implementation strategies and resources needed to