Urbanization & Municipal Development in Mozambique: Urban Land Management and Low Income Housing Study 31/07/2008

Urbanization and municipal development in Mozambique

Urbanization and Urbanization and municipal municipal

development in development in MozambiqueMozambique

Urban Land Urban Land Management and Low Management and Low Income Housing StudyIncome Housing Study

forforWorld Bank & World Bank &

Development Planning UnitDevelopment Planning Unit

byby

Development WorkshopDevelopment Workshop& Forjaz Associate Architects& Forjaz Associate Architects

Maputo – January – February 2008Maputo – January – February 2008


Overall Programme ObjectivesOverall Programme Objectives to document and analyze the situation in Municipalities in to document and analyze the situation in Municipalities in

Mozambique, Mozambique, draw lessons from past and present interventions, draw lessons from past and present interventions, identify the challenges and strategic options for policy-making, identify the challenges and strategic options for policy-making, identify specific support for municipal authorities to improve identify specific support for municipal authorities to improve

institutional development, municipal finance and service delivery.institutional development, municipal finance and service delivery.

Objectives of StudyObjectives of Study


Specific Study ObjectiveSpecific Study Objective focus on urban land, housing and building, within the above framework. focus on urban land, housing and building, within the above framework. diagnosis of the current conditions and the experiences to date of urban diagnosis of the current conditions and the experiences to date of urban

land, housing and building issuesland, housing and building issues how do the urban poor access land for housing and economic activitieshow do the urban poor access land for housing and economic activities Identify bottlenecks in access to landIdentify bottlenecks in access to land policies and implementation of policies linked to these issuespolicies and implementation of policies linked to these issues identify examples of good projects and servicesidentify examples of good projects and services models of improved land management, and support to low-income models of improved land management, and support to low-income

housinghousing how have responsibilities been transferred to Municipalities in this areahow have responsibilities been transferred to Municipalities in this area how capacity has been built for these responsibilities. how capacity has been built for these responsibilities.

Urban Land and Housing ComponentUrban Land and Housing Component


Report FrameworkReport Framework

11 Introduction and objectivesIntroduction and objectives- rapid growth of Mozambique’s urban population- rapid growth of Mozambique’s urban population- two different contexts: urban and peri-urban- two different contexts: urban and peri-urban- ten years of Municipalities- ten years of Municipalities- why this study - why this study

22 Study methodsStudy methods- outline of literature available- outline of literature available- interviews- interviews- field visit- field visit

33 How urban poor access land and housingHow urban poor access land and housing- results of studies on access mechanisms- results of studies on access mechanisms- legal framework- legal framework- land markets- land markets- building- building

44 How 10 years of Municipalities have impacted on access to land and housing by urban How 10 years of Municipalities have impacted on access to land and housing by urban poorpoor

- responsibilities of Municipalities for land and housing- responsibilities of Municipalities for land and housing- what Municipalities inherited - what Municipalities inherited - changes instituted by Municipalities- changes instituted by Municipalities

55 Innovations and pilot projectsInnovations and pilot projects- cadastre systems- cadastre systems- land access- land access- urban physical planning- urban physical planning- housing- housing

66 Scaling-up and sustainability of innovations and pilot projects Scaling-up and sustainability of innovations and pilot projects - barriers to scaling-up and sustainability- barriers to scaling-up and sustainability- incorporating good practice into legal and institutional framework- incorporating good practice into legal and institutional framework- spreading good practice in Municipalities- spreading good practice in Municipalities- capacity building - capacity building

77 Conclusions and recommendationsConclusions and recommendations


Urban ChallengesUrban Challenges 40% of the population of Mozambique lives in 40% of the population of Mozambique lives in

urban areas (7.6 million people) urban areas (7.6 million people) With an urban growth rate is 3.5% to 4.0%With an urban growth rate is 3.5% to 4.0% it it

wiwill be 50% in 10 years.ll be 50% in 10 years. majority of this population lives in informal, majority of this population lives in informal,

peri-urban areas of the cities.peri-urban areas of the cities. 33 Municipalities are a third of the population 33 Municipalities are a third of the population

of the country but they get only 0.8% of state of the country but they get only 0.8% of state budget (ie half as much per head as rural budget (ie half as much per head as rural Districts)Districts)

FindingsFindings


Urban development policy not explicitUrban development policy not explicit In the two PRSPs there was very little about urban issues. There isn’t In the two PRSPs there was very little about urban issues. There isn’t

a vision of how urban and peri-urban areas and issues affect a vision of how urban and peri-urban areas and issues affect poverty, how tackling these issues can be linked to poverty poverty, how tackling these issues can be linked to poverty reduction.reduction.

There is confusion between de-centralisation and de-concentration There is confusion between de-centralisation and de-concentration policies causing friction in some cases between Municipalities and policies causing friction in some cases between Municipalities and DistrictsDistricts

There are tensions between elected and appointed authorities.There are tensions between elected and appointed authorities. The two systems can be made compatible though this would require The two systems can be made compatible though this would require

a concerted effort a concerted effort Cities Without Slums (UN-Habitat) produced a strategy document Cities Without Slums (UN-Habitat) produced a strategy document

that if approved by Council of Ministers may provide policy that if approved by Council of Ministers may provide policy framework for peri-urban development. framework for peri-urban development.

FindingsFindings


Insufficient CoordinationInsufficient Coordination Despite decentralisation, decision making is centralisedDespite decentralisation, decision making is centralised through lines of through lines of

dependency various different Ministries & programmes.dependency various different Ministries & programmes. There are now 4 programmes in 4 ministries.There are now 4 programmes in 4 ministries. MAE: the Direction on Municipalities is weak, few resources and further weakened MAE: the Direction on Municipalities is weak, few resources and further weakened

by creating a by creating a Ministério de Função Pública. Ministério de Função Pública. Two Directorates in MAE which touch on decentralisation (Municipalities) and de-Two Directorates in MAE which touch on decentralisation (Municipalities) and de-

concentration (Districts)concentration (Districts) Districts now look more towards the MPD (Ministry of Planning and Development). Districts now look more towards the MPD (Ministry of Planning and Development). The 128 Districts are under the PPFD: this programme involves UNDP (in the The 128 Districts are under the PPFD: this programme involves UNDP (in the

north), the World Bank (in the centre) and others. north), the World Bank (in the centre) and others. The European donors tend to support programmes in the 33 elected Municipalities.The European donors tend to support programmes in the 33 elected Municipalities. Weak coordination by GoM results in donors often taking the lead on coordination.Weak coordination by GoM results in donors often taking the lead on coordination.

FindingsFindings


Municipal Intervention MatrixMunicipal Intervention Matrix


Participation and Development PartnershipsParticipation and Development Partnerships There was genuine enthusiasm for the decentralisation process in the There was genuine enthusiasm for the decentralisation process in the

mid-1990s, and there was central government commitment. mid-1990s, and there was central government commitment. The first World Bank programme appears to have successfully The first World Bank programme appears to have successfully

developed models and legislation. developed models and legislation. Informants suggest the momentum has reduced and programmes Informants suggest the momentum has reduced and programmes

have become less effective.have become less effective. The independent civil-society groupings of members in Assemblies in The independent civil-society groupings of members in Assemblies in

Municipalities seem to have lost their early momentum.Municipalities seem to have lost their early momentum. Low participation in municipal elections (15% in first, 28% in second)Low participation in municipal elections (15% in first, 28% in second) Party-list voting system in Municipal elections (rather than Party-list voting system in Municipal elections (rather than

constituency basis) means that constituency basis) means that residents of slums do not have residents of slums do not have representatives with voices in the assemblies and have little representatives with voices in the assemblies and have little leverage or influence on decision making.leverage or influence on decision making.

FindingsFindings


LandLand The formal process of obtaining land accounts for only a small proportion of The formal process of obtaining land accounts for only a small proportion of

land plots occupied. land plots occupied. Formal titling is highly complex, time consuming and expensive.Formal titling is highly complex, time consuming and expensive. Land in urban areas is accessed by:Land in urban areas is accessed by:

customary mechanisms, customary mechanisms, spontaneous occupation and by a spontaneous occupation and by a growing market in land (the law does not recognise the land market)growing market in land (the law does not recognise the land market)

The 1997 Land Law was followed quite quickly by a Regulation for land in The 1997 Land Law was followed quite quickly by a Regulation for land in rural areas. rural areas.

10 years past before a Regulation for Urban Areas was published.10 years past before a Regulation for Urban Areas was published. Urban Land Regulation said to be developed with less consultationUrban Land Regulation said to be developed with less consultation Urban Land Regulation weakens informal occupants tenure rights.Urban Land Regulation weakens informal occupants tenure rights. Only recognises areas with an urban plan. Informal areas are thus likely to Only recognises areas with an urban plan. Informal areas are thus likely to

be unrecognised.be unrecognised.

FindingsFindings


Land CadastreLand Cadastre Cadastres are out of date and the Cadastres are out of date and the

system for registering land is system for registering land is cumbersome. cumbersome.

In most Municipalities there is no In most Municipalities there is no clear visual record of what land has clear visual record of what land has been allocated. been allocated.

When they exist, cadastres are When they exist, cadastres are almost never made public and almost never made public and promote non-transparent practice promote non-transparent practice and lead to corruption.and lead to corruption.

There are vested interests in There are vested interests in maintaining opaque, complicated maintaining opaque, complicated cadastres and land allocation cadastres and land allocation systems. systems.

FindingsFindings


Physical PlanningPhysical Planning The question of urban planning spans the areas of competence of various The question of urban planning spans the areas of competence of various

Ministries (MEA, Ministry of Agriculture, MICOA, MOPH). There is no real Ministries (MEA, Ministry of Agriculture, MICOA, MOPH). There is no real champion for slum upgrading.champion for slum upgrading.

Urban planning is needed when there are environmental constraints Urban planning is needed when there are environmental constraints (flooding, erosion) and pressures from new economic development (tourism (flooding, erosion) and pressures from new economic development (tourism in several coastal municipalities).in several coastal municipalities).

Expensive structure plans have been produced using outside consultants yet Expensive structure plans have been produced using outside consultants yet the results have not been implemented in some municipalities (Nampula)the results have not been implemented in some municipalities (Nampula)

The capacity rarely exists in Municipalities to do planning systematically. The capacity rarely exists in Municipalities to do planning systematically. When plans have been produced, decisions are often taken that contradict When plans have been produced, decisions are often taken that contradict

structure plans. structure plans. There is a lack of capacity, or willingness, to enforce what is on structure There is a lack of capacity, or willingness, to enforce what is on structure

plans, to create a “spatial discipline”. plans, to create a “spatial discipline”.

FindingsFindings


Housing – the growth of slumsHousing – the growth of slums Three-quarters of urban habitation is inadequate.Three-quarters of urban habitation is inadequate.

Inadequate access to basic services Inadequate access to basic services Sites on marginal land susceptible to environmental problems Sites on marginal land susceptible to environmental problems

(flooding, erosion)(flooding, erosion) Almost all housing in these areas has been built by the Almost all housing in these areas has been built by the

people living in it. Formally-built housing is a very small people living in it. Formally-built housing is a very small proportion of housing stock proportion of housing stock

Formal land acquisition processes are being ignored leading Formal land acquisition processes are being ignored leading to large-scale informal settlements.to large-scale informal settlements.

FindingsFindings


Housing CostsHousing Costs State supported housing through the State supported housing through the

Housing Credit Fund FFH is very few Housing Credit Fund FFH is very few and is likely to benefit middle-income and is likely to benefit middle-income families or state functionaries.families or state functionaries.

Building construction costs are higher Building construction costs are higher as traditional caniço is becoming as traditional caniço is becoming inaccessible (in the south) and the inaccessible (in the south) and the demand for bricks and cement is demand for bricks and cement is increasing.increasing.

FindingsFindings

Cement & Brick

Wood & Zinc

Adobe

Caniço

Stick and Render


Identify Good PracticesIdentify Good Practices Since the early years of Independence there have been Since the early years of Independence there have been

some good examples of pilot projects of urban some good examples of pilot projects of urban upgrading that can provide models for improved urban upgrading that can provide models for improved urban planning. (Maxequenne upgrading in Maputo 1979 and planning. (Maxequenne upgrading in Maputo 1979 and Nacala throughout the 1980s and 1990s).Nacala throughout the 1980s and 1990s).

The last 10 years of Municipalization has produced to a The last 10 years of Municipalization has produced to a number of successful pilot projects. number of successful pilot projects.

Good practices need to be recorded and publicised.Good practices need to be recorded and publicised. Lessons need to be synthesised and transformed into Lessons need to be synthesised and transformed into

training and didactic manuals and guidelines.training and didactic manuals and guidelines.

RecommendationsRecommendations


Low-Cost Mapping and Low-Cost Mapping and Cadastre BuildingCadastre Building There have been attempts at There have been attempts at

improving and simplifying improving and simplifying cadastre systems (Beirra, cadastre systems (Beirra, Dondo) Dondo)

recent technology recent technology improvements make low-cost improvements make low-cost “good enough” mapping “good enough” mapping possible using satellite possible using satellite imagery.imagery.




Improve tenure security Improve tenure security through land delineation and through land delineation and titlingtitling A cadastre can improve tenure A cadastre can improve tenure

security and eventually provide security and eventually provide a basis for municipal financial a basis for municipal financial sustainability through building a sustainability through building a tax-base.tax-base.


Scaling-up and ReplicationScaling-up and Replication While innovative pilot and demonstration While innovative pilot and demonstration

projects should continue and expand it is projects should continue and expand it is time to move beyond pilots and scale-up and time to move beyond pilots and scale-up and replicate good-practices.replicate good-practices.

Slum “requalificação” and “reordenamento” Slum “requalificação” and “reordenamento” of informal settlements and participatory of informal settlements and participatory planning have become part of a planners’ planning have become part of a planners’ tools and need to be recognized as normal tools and need to be recognized as normal planning practice.planning practice.

Legislation, should incorporate these Legislation, should incorporate these practices into urban regulations and practices into urban regulations and municipal bye-laws (posturas).municipal bye-laws (posturas).



Institutional MainstreamingInstitutional Mainstreaming While there is no central government institution focused solely on While there is no central government institution focused solely on

these decentralisation a sector-wide strategy needs to be promoted.these decentralisation a sector-wide strategy needs to be promoted. Adequate budget support needs to be mobilised in cooperation Adequate budget support needs to be mobilised in cooperation

between donors and Government.between donors and Government. Key actors and decision makers including Mayors and elected Key actors and decision makers including Mayors and elected

municipal assembly members and their staffs need information and municipal assembly members and their staffs need information and training through:training through:

exchange visit experiencesexchange visit experiences short coursesshort courses developing training materialdeveloping training material Understanding applicable legislation and its implementation Understanding applicable legislation and its implementation Dispute resolution and mitigationDispute resolution and mitigation



Professional Expertise PoolsProfessional Expertise Pools Technical support structure for physical Technical support structure for physical

planning, mapping and legal issues planning, mapping and legal issues should be developed on a regional basis. should be developed on a regional basis.

Professional roster or pool of qualified Professional roster or pool of qualified national professionals should be national professionals should be established in each region of the established in each region of the country.country.

Intermediate level planning technicians Intermediate level planning technicians should be trained to serve in each of the should be trained to serve in each of the municipal administrations to manage municipal administrations to manage local cadastres and implement local cadastres and implement municipal structure plans.municipal structure plans.

RecomendationsRecomendations

1 Cabo Delgado 2 Gaza 3 Inhambane 4 Manica 5 Maputo City 6 Maputo 7 Nampula 8 Niassa 9 Sofala10 Tete11 Zambezia

http://en.wikipedia.org/wiki/Image:Mozambique_Provinces_numbered_300px.png


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Urbanization & Municipal Development in Mozambique: Urban Land Management and Low Income Housing Study 31/07/2008