NATIONAL REPORT MADAGASCAR TO THE PARTICIPATION OF MADAGASCAR TO THE CONFERENCE HABITAT III HABITAT III

May 2015

Word from the State Minister

The fourth Republic is starting in Madagascar, with the willingness to go into a new development’s direction. Through the vision ‘Madagascar a modern and a prosperous nation”, the country is now ready to take on any opportunities available in many sectors.

Therefore, and contrary to the past, the National Development Plan does consider the urban sector, to be one pillar of the economics’ growth of the country, so as to promote inclusive and sustainable development.

Dealing with this vision, the State Ministry under my responsibility, is working to prepare the founda-

National Urban Forum, the establishment of the National Policy and Strategy for the Urban Develop- ment,tion’s revivaland the of implementation the urban sector. of someMany operationalactivities have project been in carried some Malagasyout recently, cities, as etc.examples the first

Moreover, this National Report is very timely, to have the review achievements, in particular those related on Habitat II’s action plan, from 1996 to 2013. But, this National Report does provide also the issues and the challenges that the country would take on for the next twenty years.

There, for the new post-2015 development agenda, I am launching a formal appeal to the international community, so as to contribute on cities’ development in Madagascar. In particular, I call on the heavy sector. Furthermore, new partners are strongly required, given the important challenges. support from the UN-HABITAT and the technical-financial partners, already working in this urban Finally, I would emphasize the interdependence between rural and urban development. Therefore, I would solicit to promote an integrated programming of the development actions in these two areas, whether at supranational, national and regional level. Acronym list

Institut National de Formation Adminis- ADURRA Agriculture Durable de l’Agglomération INFA d’Antananarivo (Sustanaible Agriculture trative (National Institute of Administra- in the Agglomeration of Antananarivo) tive Training) Institut National des Sciences Techniques ANALOGH Agence Nationale d’Appui au Logement et INSTN à l’Habitat (National Agency of Suppor- Nucléaires (National Institute of Nuclear ting Housing and Habitat) Science and Technology) Institut Supérieur de Technologie (High BNGRC Bureau National de Gestion des Risques IST Institute of Technology)

Politique de développement des JIRAMA Jiro sy Rano Malagasy BVPI et de Catastrophes (National DRM Office) Bassins Versants et Périmètres Irrigués LDRMC Local DRM Council (Irrigation and Watershed Management LP2D Lettre de Politique de la Décentralisation Program) et de la Déconcentration (Policy Letter of CDRMC Communal DRM Council Decentralization) CFSVA Comprehensive Food Security and MAP Madagascar Action Plan Vulnerability Analysis MECIE Mise en Compatibilité des Investisse- CPGU Cellule de Prevention et de Gestion ments avec l’Environnement (Implemen- des Urgences (Disaster Prevention and tation Investment compatible with the Emergency Management Unit) Environment) CRC Convention of the Rights of the Child MEPATE Ministère d’Etat en charge des Projets Présidentiels, de l’Aménagement du CSB Centre de Santé de Base (Basic Health Center) Territoire et de l’Equipement (State Ministry of Presidential Projects, Country CRPD Convention of the Rights of Persons with Planning and Equipment) Disabilities MFB Ministry of Finance and Budget CTD Collectivités Territoriales Décentralisées (Decentralized Territorial Authorities) MID Ministry of Home Affairs and Decentra- lization CUA Commune Urbaine d’Antananarivo (Antananarivo’s Urban Commune) NGO Non-Government Organization National Habitat Committee DCPE Document Cadre Politique Economique NHC (Framework Paper of Economic Policy) OEMC DRM Disaster Risk Management Citizenship)Office de l’Education de Masse et du DRR Disaster Risk Reduction Civisme (Office for Mass Education and OMC Organisme Mixte de Conception (Concep- DSRP Document de Stratégie pour la Réduction tion Joint Agency) de la Pauvreté (Strategy Paper for Poverty Reduction) ONCD EIB European Investment Bank ConcertationOffice National and de Decentralization) Concertation sur la Décentralisation (National Office of EIS Environmental Impact Study ONE ENAM Ecole Nationale d’Administration de Office National de l’Environnement Madagascar (Madagascar National School Organisme Public de Coopération OPCI (National Office of Environment) of Administration) Intercommunale (Public Organisation for EPP Ecole Primaire Publique (Primary Public Intercommunal Cooperation) School) PADR Plan d’Action pour le Développement FAD French Agency for the Development Rural (Action Plan for the Rural Develop- ment) FDI Foreign Direct Investment PAIQ Programme d’Appui aux Initiatives de FDL Fonds Local de Développement (Local Quartiers (Neighborhood’s Initiative Development Fund) Support Program) FIJ Fonds d’Insertion des Jeunes (Fund for PAMU Programme d’Amélioration de la Mobilité Integration of Youth) Urbaine (Urban Mobility Improvement FIZOMA Firaisam-ben’ny Zokiolona eto Madaga- Program) sikara PANAGED Plan d’Action National Genre et Dévelop- FNRE Fonds National des Ressources en Eau pement (National Action Plan of Gender (National Fund for Water Resources) and Development) GDP Gross Domestic Product PANEF Plan d’Actions National sur l’Emploi et la Formation (National Plan on Employment Human Development Report HDR and Training) ILO PARGED Plan d’Action Régional Genre et Dévelop- Institut National de la Décentralisation pement (Regional Action Plan of Gender INDDL International Labour Office et du Développement Local (National and Development) Institute of Decentralization and Local PDU Plan de Déplacement Urbain (Urban Development) Transport Planning) PE Programme Environnemental (Environ- PSU Plan Sommaire d’Urbanisme (Urban mental Program) Summary Plan) PEEJ Programme de Promotion de l’Entre- PUDé Plan d’Urbanisme de Détail (Urban preneuriat Jeunesse (Program of Youth Detailed Plan) Entrepreneurship Promotion) PUDi Plan d’Urbanisme Directeur (Urban PErERDD Politique Nationale de l’Education Master Plan) relative à l’Environnement pour le RGPH Recensement Général de la Population et Développement Durable (National Policy de l’Habitat (General Census on Popula- of Education on Environment for Sustai- tion and Habitat) nable Development) REU Redevances sur les Eaux Usées (Wastewa- Plateforme Nationale de la Société Civile PFNOSCM ter charges) à Madagascar (National Platform of Civil Society in Madagascar) ROM Redevances sur les Ordures Ménagères (Royalities on Household Waste) PIP Public Investment Program SAC Schéma d’Aménagement Communal PLan Local d’Occupation Foncière PLOF (Communal Land Use Scheme) (Reliable local and land tenure plan) SAMVA Service Autonome de Maintenance de Programme National d’Accès à l’Eau PNAEPA la Ville d’Antananarivo (Antananarivo Potable et à l’Assainissement (National Autonomous Municipal Maintenance Program of Safe Water Supply and Service) Sanitation) SFR Sécurisation Foncière Relative (Relative Plan National d’Action pour la Nutrition PNAN Land Tenure Security) (National Action Plan of Nutrition) SIM Syndicat des Industries de Madagascar Politique Nationale de l’Aménagement PNAT (Industries’Union of Madagascar) du Territoire (National Policy of Land Planning) SNAT Schéma National de l’Aménagement du Territoire (National Land Use Planning Plan National de Développement PND Framework) (National Development Plan) SNFI Stratégie Nationale de la Finance Politique Nationale d’Education Relative PNERE Inclusive (National Inclusive Finance à l’Environnement (National Policy on Strategy and Action Plan) Environemental Education) SNGRC Stratégie Nationale de Gestion des Politique Nationale de l’Habitat (National PNH Risques et de Catastrophes (National Policy of Settlement) Strategy on Disaster Risk Management) PNJ Politique Nationale de la Jeunesse SRAT Schéma Régional de l’Aménagement du (National Youth Policy) Territoire (Regional Land Use Planning PNL Politique Nationale de Logement Framework) (National Policy of Housing) STD Service Technique Déconcentré PNPF Politique Nationale de Promotion de la (Decentralized Technical Service) Femme pour un développement intégré TFP Technical-Financial Partner homme-femme (National Policy of the Women’s Empowerment) UHC Urbanism and Housing Code PNSE Programme National de Soutien à UNDP United Nations Development Programme l’Emploi (National Support Program for UNESCO United Nations Organisation for the Employment) Education, Science and Culture PSUP Participatory Slum Upgrading Program UNFPA United Nations Fund for Population PPBVLAC Projet Protection Bassins Versants Lac Activities Alaotra (Lac Alaotra Watershed Protec- UNICEF United Nation Children’s Fund tion Project ) VAT Value Added Tax PPP Public-Private Partnership WASH Water Sanitation Hygiene PREE Programme d’Engagement Environne- mental (Environmental Committment Y-PEER Youth Peer Educators Program) ZAC Zone d’Aménagement Concerté PSNA Politique et Stratégie Nationale de l’Assai- (Concerted Managament Area) nissement (National Policy and Strategy ZPPAUP Zone de Protection des Patrimoines Plan for Sanitation) Architecturaux Urbains et Paysagers PSNDU Politique et Stratégie Nationale de (Protection Zone for Architectural and Développement Urbain (National Policy Landscape Heritage) and Strategy for the Urban Development) PSSA Programme Spécial pour la Sécurité Alimentaire (Special Program for Food Security) Table of Contents

1. INTRODUCTION...... 1 1.1. Presentation of the Country...... 1 1.2. Vision of sustainable urban development...... 2 1.3. Guidelines for the national report...... 2

2. URBAN DEMOGRAPHIC ISSUES AND CHALLENGES...... 3 2.1. Managing rapid urbanization...... 3 2.2. Managing rural and urban linkages...... 3 2.3. Adressing urban youth needs...... 4 2.4. Responding to the needs of the aged and persons with disabilities in urban areas...... 5 2.5. Integrating gender in urban development...... 5 2.6. Experiences and lessons learnt in these areas...... 6 2.7. Futures challenges and issues in these areas...... 7

3. LAND AND URBAN PLANNING ...... 9 3.1. Ensuring sustainable urban planning and design...... 9 3.2. Improving urban land management including addressing urban sprawl. . 9 3.3. Enhancing urban food production...... 10 3.4. Reducing traffic congestion...... 11 3.5. Improving technical capacity to plan and to manage cities...... 12 3.6. Challenges experiences and lessons learnt in these areas...... 13 3.7. Futures challenges and issues in these areas...... 14

4. ENVIRONMENT AND URBANIZATION ...... 16 4.1. Addressing climate change...... 16 4.2. Disaster risk reduction...... 16 4.3. Reducing air pollution...... 17 4.4. Challenges experiences and lessons learnt in these areas...... 17 4.5. Futures challenges and issues in these areas...... 18

5. URBAN GOVERNANCE AND LEGISLATION ...... 19 5.1. Improving urban legislation...... 19 5.2. Decentralization and strengthening of local authorities...... 19 5.3. Improving participation and human rights in urban development. . . . 20 5.4. Enchancing urban safety and security...... 21 5.5. Improving social integration and equity...... 21 5.6. Challenges experiences and lessons learnt in these areas...... 22 5.7. Futures challenges and issues in these areas...... 23

6. URBAN ECONOMY...... 25 6.1. Improving municipal and local finance...... 25 6.2. Strengthening and improving access to housing finance...... 25 6.3. Supporting local economic development...... 26 6.4. Creating decent jobs and livelihoods...... 26 6.5. Integrate urban economy in national development strategy...... 27 6.6. Challenges experiences and lessons learnt in these areas...... 27 6.7. Futures challenges and issues in these areas...... 28 7. HOUSING AND BASIC SERVICES...... 29 7.1. Slum upgrading and prevention...... 29 7.2. Improving access to adequate housing...... 30 7.3. Ensuring sustainable access to safe drinking water ...... 30 7.4. Ensuring sustainable to basic sanitation and drainage...... 31 7.5. Improving access to clean domestic energy...... 32 7.6. Improving access to sustainable transports...... 32 7.7. Challenges experiences and lessons learnt in these areas...... 33 7.8. Futures challenges and issues in these areas...... 33

8. LAND TENURE URBAN...... 36 8.1. Improving security of tenure in laws...... 36 8.2. Facilitating the production of urban land and the efficiency of land market...... 36 8.3. Ensuring integration of land policy into urban policy and housing policy. 37 8.4. Challenges experiences and lessons learnt in these areas...... 37 8.5. Futures challenges and issues in these areas...... 38

9. URBAN INDICATORS...... 39

10. CONCLUSION...... 42

11. ANNEX...... 43

INTRODUCTION 1. INTRODUCTION

with the paragraph 11 of the General Assembly a political crisis. After holding the presiden- Resolution 67/126, the preparatory process of Fortial five election years, in Madagascar December 2013,was paralyzed Madagascar by this National Report has been done with active is starting into a new Republic. Since, the country participation of all relevant stakeholders. has started to a process planning for policies and strategies for its development. And now, Mada- A Preparatory National Committee has been implemented, and started to work on February (PND). 2013. It has been changed legally into the gascar has an official National Development Plan National Habitat Committee in November 2014. By now, the vision for the country is “Madagascar, This National Committee includes stakehol- a modern and prosperous Nation”. This vision ders through central and local governments, expresses the political will to work on all fronts governments’ agencies, civil society, academics to promote that is “strong and inclusive growth institutions and private sectors. The NHC has for an equitable and sustainable development of held several meetings and workshops, to the all territories”. The actions on human settlements National Report’s consultation. The preparatory process included also regional and local consul- that, these actions should be considered as tations, which gathered the stakeholders in all nationalcontribute priorities significantly through to the this National vision. Land Besides Use the regions of Madagascar and some represen- Planning Framework (SNAT), developed in 2008. tative cities. Such consultations have been held in Fianarantsoa and Mahajanga in March 2015. Thus, Madagascar does present its National Report in order to the Third United Nations Conference of Habitat Agenda is held in April 2015. Finally, on Housing and Sustainable Urban Development theAfterward, National a Habitat specific Committed meeting with and the the high Partners level HABITAT III. In response to resolution 24/14 of decision makers in the central government have the UN-HABITAT Governing Council, and in line approved the National Report in May 2015.

1.1. PRESENTATION OF THE COUNTRY

adagascar is located in the southwest of the xxIndian Ocean, between 10° and M27° South latitude, and separated from Africa by the Mozambique Canal. With an area of 590,000 km², Madagascar is a very large island, and measures 1,570 km from north to south, 565 km from east to west.

The country is divided into six Provinces, 22 Regions and 1,549 Communes. Therefore, these Communes are the basic unit of Local Autho- rities called Decentralized Territorial Collecti- vities (CTD). There are two types of municipa- lities: rural and urban, of which there are 72 urban Communes. The Capital Antananarivo is the biggest city in Madagascar and has a special status.

In 2013, Madagascar’s total population is expected around 22 million people. The popu- lation of cities and towns are estimated around 6.9 million people. Since Madagascar’s indepen- dence, the number of cities and urban zones has been increasing so rapidly, to have nowadays 172 cities. A third of the national population lives now in these cities and towns. And the agglomeration of Antananarivo itself concentrates the third of this urban population. 1 there are some differences between urban data Without a clear definition of city in Madagascar, National Report — Madagascar, Habitat III

among some institutions. Most of the time, the criteria used are the administrative status, the dry season, is responsible for air pollution on the number of population and the density. For this citiesgascar. located The bush on highlands. fire, done most of the time in National Report, we should refer to the 172 cities listed on the National Land Use Planning In addition, Madagascar is among the most vulne- Framework (SNAT) issued in 2008, and which has rable country to climate change. It is ranked among the top ten countries which have the could be called as a city is a human settlement highest mortality risk index due to cyclones. Thus, withbeen over finalized 5.000 in people. 2012. According to this SNAT, tropical storms, particularly in coastal regions. Since the 70s, the country went through four poli- Finally,floods occurthe south following area passageis often ofhit cyclones by cyclical and tical crises (in 1972, 1996, 2002 and 2009). Each drought, that is destroying crops, killing livestock crisis has driven to a severe economic recession and causing starvation. that is characterized by an overall decrease of the GDP. At last, Madagascar has very large land. But, there is a serious land tenure problem. This problem Madagascar is also widely known for its excep- does result from several factors such as diversity

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment tional biodiversity, its natural resources, that make of legal systems, complex and high costs proce- real interest of extractive companies. Concerning dures, the poverty, cultural attachment to the land, forest resources, there are heavy pressure and a etc. Therefore, the land reform has been initiated severe overexploitation, as the national annual in 2005, and on the other side, the renewal of the rate of deforestation is about 0,83% from 1990 to land planning in 2006. But these policy reforms 2000, and about 0,5% from 2000 to 2005. One of have given much overcomes to rural than to urban the main causes of deforestation is the charcoal’s areas. In cities and towns, there is a real land production, that is exclusively consumed in urban issue, more than a simple question of land’s secu-

MEPATE areas. Besides that, the slash-and-burn practices, rity. This situation is due to market dynamism, called also “tavy”, are very widespread throughout the increasing of the land cost, and the important the country. Such practice is also considered to futures needs related to urban sprawl. be the main cause of the deforestation in Mada- 1.2. VISION OF SUSTAINABLE URBAN DEVELOPMENT

n this economics’ context, the national deve- Thus, the following national vision has been lopment process should consider necessarily approved that is “to have cities well-planned, Irural as well as urban development. The indus- safe, resilient, inclusive, equitable, sustainable trial zones are primarily located in the hinter- and displaying Malagasy society identity; ensu- lands of the cities. On the other hand, foods cities ring effectively and efficiently urban services, will be supplied from the countryside. With this engine of economic development and structu- scheme, rural areas are sharing the prosperity of ring of the country”. urban centers. 1.3. GUIDELINES FOR THE NATIONAL REPORT

ecause of the Malagasy’s context, it is essen- private sectors for the urban development tial to provide quick and consistent inter- process; Bventions so as to catch up 50 years delay in terms of urbanization. Therefore, the Mala- • Synergy and close links between urban and gasy State recommends that these interventions rural development: Creating of value added, should follow the below guidelines: through the industrial processing of agricul- tural, mining ... and promoting of domestic • Inclusive planning for a coherent urban and foreign trade through the cities (or urban development: Calling for the participation of comparative advantages); all economic sectors and capitalization of exis- ting sector strategies; • Integrated, collaborative, multisectorial approaches with several donors: Calling • Taking actions: Creating of new infrastruc- for strengthening the public investments and tures and structuring urban facilities, in order development aids for the urban revitalization;

family or individual business) and improving • Responsibility of Decentralized Territorial lifeto catalyze skills of theurban private people; investments (like firms, Collectivities, communities and citizens: Considering the urban development to the 2 • Promoting the public-private partnership local level, and calling for citizen participation (3P): Calling for more participation of the in urban development,… URBAN DEMOGRAPHIC ISSUES AND CHALLENGES 2. URBAN DEMOGRAPHIC ISSUES AND CHALLENGES

2.1. MANAGING RAPID URBANIZATION

alagasy urban population is estimated to the other side, the characteristic “sustainable” of have passed 6.900.000 in 2014 if it was urban development seems to be hidden. Maround 2.800.000 people in 1993. By 2036, it is estimated that it will become more than At the national level, the National Policy for Land 17.6 million. Therefore, the urbanization rate has Planning was adopted in 2006. Therewith, activi- increased from 22% in 1993 to 37% in 2012, and ties for improving life skills of slums population should reach 50% in 2036. In 1993, there were have been initiated since 2008 (through Partici- patory Slum Upgrading Program or PSUP) by UN urban Communes), actually there are 172 cities Habitat. They have been implemented in three thatonly includeabout fifty 72 citiesurban (7 Communes. big urban centers This statistics and 45 cities as Antananarivo, Manakara and Mora- show the rapid population growth in urban areas. manga. Moreover, the “Project Lalan-Kely” has

In this context of rapid and uncontrolled urbani- FAD that aims to upgrade and to open up streets in zation, most of cities have many problems: social slumsbeen launched and some in populated 2010. It is areas a project in the financed agglome by- problems, inadequate infrastructure, lack of deve- ration of Antananarivo. lopment services, increasing land pressure in big city, dilapidated condition of streets and sewage systems, health problems due to air pollution and poor hygiene, etc.

As a result, the level of the poverty is higher (66% in 2012) inside the Capital (Antananarivo) than in other cities (42%). This factor has contributed to the slums’ development in large or small cities of Madagascar. In 2013, slum population is esti- mated around 72%.

Across the urban Commune, concrete actions for urban development and for managing the rapid urbanization, have been conducted to joint efforts Despite this dark picture, there are some good of local stakeholders (with major contribution cases of anticipating urbanization due to deve- of NGO, projects and private sectors). Generally, lopment projects and partnership with private sector in some urban Communes. As example of so that multisectorial integration is not enough the positive results, there were the establishment obvious.these actions Besides, aim there to develop is some alack specific of harmoni sector,- of urban plans and some other urban manage- zation and coordination of urban activities. On ment tools.

2.2. MANAGING RURAL AND URBAN LINKAGES

n the 1990s, 80% of the Malagasy population and to improve their income sources, to obtain lives in rural areas. By this statistic, the rural access to land, and to have land tenure security. Isector was considered as the pillar of the economy with 43% of GDP (in 2000). This GDP Thereby, there was the Policy Letter of Rural Development (PADR) in 2004. Its Policy did aim and agro-industry. The agriculture provided 27% three objectives: ofintegrates GDP, 40% agriculture, for exports, livestock, and represented fisheries, theforestry live- lihood for 75% of the population. Consequently, Ensuring food security; all implemented strategies and policies, gave Contributing to the improvement of economic advantage responses to the problems of rural growth; areas. The Government of Madagascar ensured − Reducing poverty and improving life skills in the important place taken by rural sector in the rural areas; − agriculture should have provided the poor to get 3 strategy of fight poverty. Therefore, reviving the National Report — Madagascar, Habitat III

Promoting sustainable management of natural population, despite the fact that the national cove- resources; − Promoting training and information in order in 1999 to 4,76% in 2014). Subsequently, there to improve rural production. rage of rural electrification is still very low (by 1%- − nance sector, through the increase number of MFI Since then, the rural sector has been strongly inhas the been rural an zones. interesting development of microfi supported by many donors through many deve- lopment projects. The most achievements accom- In addition, there is also the promoting of plished of this policy are the promotion of sustai- renewable energy sources. As results of this initia- nable agricultural systems in order to give up to tive, population even located in isolated rural traditional practices. In this sense, there was an areas could develop small solar equipments. On improvement of rice productivity and a vitali- the other side, there is the exponential progres- zation of the rural economy. Howeverice local sion of the communication sector that involves the increase use of mobile phone and money transfer market demand. mobile. Furthermore, rural economic activities production is still insufficient to cover domestic Due to rural development projects, and also to has been initiated near many protected areas. were being diversified: community-based tourism State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment environmental projects, human settlements in rural areas have been preserved and developed. At the end, for Madagascar, concrete actions have - been focused on rural development in order to lerating and stimulating the improvement of life slow down the rural to urban migration. skillsThereby, and the economic rural electrification development has of beenthe accerural

2.3. ADRESSING URBAN YOUTH NEEDS MEPATE oung population accounts for 37,77% of skills have no choice than working in very bad the urban population in 2012. Being faced conditions. Ywith rapid urbanization and with the On the other hand, Madagascar is not at all late youth has been neglected. Despite the existence for technological advances, so that the Malagasy ofGovernment’s the Ministry priorityof Youth inand the Sports, fight as poverty, well as the youth is growing up in a digital world, with access National Youth Policy (PNJ) since 2004, the youth to the technologies, such as young people in deve- loped countries. Therefore, the negative effects of lack of social services and public institutions, social networks are quite valid for the Malagasy whichneeds should are not take satisfied. care of First, development there is aof serious young youth. people, especially those socially disadvantaged. As illustration, in 2012: The following are the main achievements of the implementation of the PNJ: The percentage of urban youth socially disad- vantaged is 51,4%; Establishment of the reproductive health − The percentage of young people with low edu- service for adolescents / life skills, that is cational is 29,4%. − doing systematic awareness-raising activities − through cultural festivities and socio-cultural Overall, the urban youth have employability events ; Implementing of the Program for Youth Entre- - preneurship Promotion (PEEJ), for the esta- difficulties. First of all, the graduated young are − blishment of the Fund for Integration of Youth always taking jobs not meeting their qualifica (FIJ) with the CONFEJES (French Speaking tions. Besides, those with less qualifications and Ministers of Youth and Sports Conference); Creation and operationalization of the Youth Council with actually 100 communal councils ; − Creation of 44 youth centers and about twenty youth information kiosks based at Fokontany − Implementation of the “Youth Friend Ser- vices”in five Regions;network in eight (8) sites whose main − objective is to harmonize and to coordinate the activities of various stakeholders working

4 Implementation of the Project “Tanora Garan- teen”,in specific supported services by in UNFPA, a young to fieldstrengthen ; the − URBAN DEMOGRAPHIC ISSUES AND CHALLENGES

capacity of youth in decision-making, and to There are already over 100 clubs throughout become real development actors; Madagascar. Establishment of the club Youth Peer Educa- tors (Y-PEER), with the support of UNICEF. − 2.4. RESPONDING TO THE NEEDS OF THE AGED AND PERSONS WITH DISABILITIES IN URBAN AREAS

n 2012, older people is estimated around At last, the cities in Madagascar don’t have any 2,70% of the Malagasy population. This cate- public hospice. Igory is called in Malagasy “Ray aman-dreny”, that means “father and mother”. In Malagasy Although, there are some improvements such culture, the lack of respect for the “Ray aman- as the decentralization of the pension’s payroll dreny” is considered as a grave shame. In 2008 service, the development of the partnerships has been the adoption of the law on protection of between these payments agencies and the micro- the rights of the elderly. Nevertheless, there is still absence of the Decree’s application so that the law could not be enforced. Consequently, there is no Regardingfinance institutions. people with disabilities, the global esti- obligation for the carriers and for pharmaceutical mate for disabilities is by 7,5% in 2007. Legally, institutions to agree the green card presented by the law on the protection of the persons with older people. disabilities was promulgated in 1998. And Mada-

Speaking up for their rights of the aged, it has Rights of the Persons with Disabilities (CRPD). been established the national structure called Thisgascar text ratified provides in 2006some themeasures Convention educational of the “Firaisam-ben’ny Zokiolona eto Madagasikara” access and quality for children with disabilities. or FIZOMA, that is the active senior citizens in Madagascar. Beyond their advocacy, the associa- tion aims to revise the Code for Social Provident. Nevertheless, in practice, the non-governmental In the other side, the organization provides aids organizations take on more the application and support to its members to stay active longer. of these national and international laws, than the public and private sector. For example, the “Association of Women with Disabilities” does actively speak up for their involvement in deci- sion-making and for holding leadership positions in the country.

About spatial planning, it is noted that transport and mobility of persons with disabilities are being now considered in the planning of the cities. There are six big cities through Madagascar, which have established the “Charter of Inclusive and Acces- sible City”, that are Antananarivo, Antsiranana, Toamasina, Toliara, Mahajanga and Antsirabe.

2.5. INTEGRATING GENDER IN URBAN DEVELOPMENT

n Madagascar, women and girls are just over women and men. These commitments have been half of the population. The Malagasy Consti- realized through the establishment and the achie- Itution provides women with the same rights vements of the National Policy for the Women’s as men. However, women have often limited Empowerment (PNPF). This policy’s objectives access to some development’s opportunities and have been translated into actions through the National Action Plan for Gender and Develop- signed the United Nations Millennium Declara- ment or PANAGED for the period 2004 – 2008. some benefits. In 2000, Madagascar adopted and This action’s plan has expressed the consolidation to “promote gender equality and the women’s of six regional action plans (PARGED) and based tion. So as the Government reaffirms willingness on the results of the situational study of women poverty, hunger, disease, and to promote the in Madagascar. The action plan named PANAGED sustainableempowerment”, development. as an effectiveLike many way others to coun fight- includes three programs: (1) the main program is tries, Madagascar is committed to mainstream the gender mainstreaming into institutions and the “gender” in various development activities, to into development programs, (2) improving the 5 to reduce the gender gap and inequality between status of women in social and legal conditions. implement specific policies and programs in order economic efficiency of women, (3) improving the National Report — Madagascar, Habitat III

It is recognized that integrating gender equa- lity is relatively successful in Madagascar. There are interesting achievements of the PANAGED while talking about gender mainstreaming, as far as many Ministries have a gender focal point.. Moreover, there have been many activities done related to women’s economic situation in some Regions. Some legal framework and provisions have been also made so as to improve the legisla- tion on women.

Concerning the representation of women in social and institutional systems and in management position, the occupancy rate for women minister women mayors and women Chief of Fokontany in and parliamentary is now 20%. The percentage of urban areas are still below this rate.

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment 2.6. EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

egarding the management of the rural and dered, in institutional and legal terms. More, older urban linkages, it is clear that the PADR people’s rights are not fully respected. That means: Ractions have been operated in remote rural late payment of retirees’ pension, non-payment areas far from cities. The progress done to balance or late payment of medical expenses, etc. urban and rural disparity is quite modest. There- fore, there is a disturbing and an uncontrolled For the needs of persons with disabilities, the

MEPATE urbanization of suburban areas. Moreover, the application of the charter of inclusive and equi- economy and the panorama of suburban muni- table cities experiences some economic problems. cipalities show unsightly contrasts. Otherwise, The Charter is not compulsory. It is specially agronomic practices in suburban areas promote binding for the Public Administration to apply the use of pesticides and chemical fertilizers, so as to affect the immediate urban environ- ment. At last, there is an urban trend for green Charterthe technical is not guidelines enough, either because to ofthe its public, insufficient or to products consumption that should be considered localfinancial authorities resources. or to Finally, the private the promotion sector. of the as a market opportunity for farmers in urban and suburban areas. Despite progresses in protecting women’s rights and in promoting gender equality, many things There are multiple problems of youth: delin- remain to be done. In some Regions, women enjoy quency, substance use, alcohol consumption, less freedom, and many of them are still suffering sexual violence, theft and wandering. On the domestic violence. Then, there are still discrimi- other hand, young people participation in public natory practices against women. For example, the decision making is still poor. In that way, young age for marriage is 14 years for girls with consent of at least one parent, and 17 for boys. Another example is the following discriminatory provi- people often find themselves marginalized, and sion: “a woman could not contract a new union before the expiration of 190 days from the disso- lution of the previous marriage”.

Concerning the equal rights to property ownership, the rule is the half division of marital property. However, many men and women ignore this law so that they are applying the traditional share that is only the one –third for women and girls.

this leads to the feeling of being isolated, excluded and vulnerable. In view of this, some politicians called out the young people to try to change the regime.

Regarding the aged, it is clear that the considera- 6 tion of older people needs have not been consi- URBAN DEMOGRAPHIC ISSUES AND CHALLENGES 2.7. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

he high population growth and the low year. Cities are also affected by idleness, youth’s participation of youth in entrepreneu- problems of employment and of employability, Trially-related activities are the future that lead to delinquent and violent behavior. For challenges in these areas. Indeed, urban popu- building inclusive cities, the future challenges lation is growing faster than rural population, for Madagascar are the following and listed with with a population growth rate of 4% to 5% per priority order:

Challenge 1 : Developing the job creation potential of entrepreneurial activity among young people

For this challenge, the following actions should be undertaken: Creating jobs for young people with low or Supporting youth exchanges through the Youth House, the National Symposium, − local policy for young people in order to learn − Consultation Circle, National Observatory of andno qualifications: to acquire more Establishing competency a national and to perand- Employment and Training; fect. In that way, it is important to strengthen Building students residents and homes for the public-private partnership; young workers. − Challenge 2 : Regulating rural to urban migration adopting the principle of land development The challenge in this context is to frame the orga- before the land ownership ; nized migration initiatives by a strategic and legal − promoting installation and ownership condi- framework. This results in: tions for young migrants (to facilitate social − integration between local population).

Challenge 3 : Improving the poor’s life conditions in urban areas

Therefore, the country is committed to: develop and implement the national social facilitate the access of labor market opportu- protection policy; nities for vulnerable social groups by enhan- − give priority to education and professional − cing their employability; training to disadvantaged people, by increa- improve access of basic urban services and − sing their knowledge and expertise, so as to ensure economic development supports for increase their productivity; − the most vulnerable populations; promote employment and incomes genera- reduce violence in sensitive urban areas. ting activities ; − − Challenge 4 : Implementing and putting into national scale the “Charter of accessible cities”

For this challenge, it is important for Madagascar to: Adopt additive standards on people with apply these standards for all public project; disabilities accessibility to urban facilities ensure the State’s continuity for the full appli- − and generalize this experience at the national − cation of standards. level; − Challenge 5 : Improving access to quality health services, including reproductive health This challenge is: To provide health services to the whole popu- To promote the community health in health lation; development; − To improve the control of transmissible − To make standards to the health technical diseases; platforms and to the public health infrastruc- − − ture. 7 National Report — Madagascar, Habitat III 3. LAND AND URBAN PLANNING

3.1. ENSURING SUSTAINABLE URBAN PLANNING AND DESIGN

ince 2006, the National Policy of Land Plan- 16% of Malagasy cities did have urban planning ning (PNAT) has been set out. This policy such as PUDi, PSU, SAC and PUDé in 2006. This Simposes the development of every territory’s percentage has increased into 20% in 2013. planning tools. Therefore, there have been deve- loped between 2007 and 2013 the National Land In Madagascar, there are only three agglomera- Use Planning Framework (SNAT) (time horizon tions having the PUDi, which are the Antanana- 10 years), eight (8) Regional Land Use Planning rivo’s agglomeration in 2006, the Moramanga’s Framework (SRAT) and three (3) other regional agglomeration in 2008, and the Fort Dauphin’s agglomeration in 2012. Their agglomeration plan step in SRAT process is to develop the regional relies on the grouping of the concerned munici- atlas.atlases. It has to been mentioned that the first palities within an intercommunal structure called

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment the Public Organization of Intercommunal Coope- These projects do contribute to national planning ration (OPCI). For this purpose, there have been grid through planning documents at all levels, ie established some intercommunal structures due at national and regional level, so as to complete to this agglomeration concept. the urban plans. Since 1999, legal frameworks for the intercom- The SNAT and SRAT take into consideration the munality have been set up. Despite some shortco- urban sector as one key element of country plan-

MEPATE ning. These schemes include the urban diagnostic, Malagasy Constitution (both in 2007 and in 2010) the urban design framework at national and andmings, in thesethe latest frameworks legislation have focused been affirmed on Decentra in the- regional level, the setting up the urban data, and lization in 2014. In accordance with Article 14 of the guidelines for planning and development of the Decree of 1999, the OPCI’s competences and cities. Referring to the SNAT, urban centers are abilities are the following areas: urban planning topics, elaborating of planning document, housing general guidelines have been essential to urban and human settlements policies, roads, sewerage planning.specified as growth spaces. Furthermore, these network, waste management, etc.

In addition, the Urbanism and Housing Code in Madagascar has made its best efforts to preserve 1963 provides three types of urban plans, so as to its urban heritage. Besides the registration and be the urban planning tool in Madagascar. There are the Urban Master Plan (PUDi), the Urban world heritage, the PUDi ensures the planning Summary Plan (PSU) and the Urban Detailed Plan andclassification the regulation to national of the heritage heritage areas and in UNESCO urban (PUDé). Capital of Antananarivo, the Protection Zone for About thirty big and secondary cities have Architecturalcenters. Exceptionally, and Landscape it has Heritage been build (ZPPAUP). in the produced these planning documents between These zones are subject to laws and regulations, 2004 and 2008. Since 2009, it has been completed restoration actions, and in some way to develop- ment. Generally, the Malagasy urban heritage is the Communal Land Use Scheme (SAC). In all, being valued by tourism. by the simplified method for local plan through 3.2. IMPROVING URBAN LAND MANAGEMENT INCLUDING ADDRESSING URBAN SPRAWL

nstitutionally, urban management involves from a wide range of capacity building-programs. three entities: (1) the Ministry of Decentraliza- This scheme is governed by the Decentralization I Law and the Urbanism and Housing Code. of Land Planning, (3) and the Municipality. With thistion institutional and Home scheme,Affairs (MIDE), (i) the (2)Commune the Ministry as a The Communes are not working in the same way because of their different administrative status. management. Then, it is being supported by the The Commune is administrated by the Mayor and decentralizedbasic Community services is the offirst Land responsible Planning. of There urban- the Communal Council. The latest mayor’s elec- fore, the Commune has to be subject to the lega- lity control of the Ministry of Decentralization and rural Commune should had a technical service, 8 tion has been held in 2007. The first category of

Home Affairs. Moreover, Communes do benefit LAND AND URBAN PLANNING

while there should be a Direction of Urbanism for areas percentage is about 4%. Nevertheless, the urban areas inside regional metropolis, are to be wider such as in Toamasina with 31% or urban Aboutthe first management category of urban of urban Commune. areas, the most areas, Moramanga 28%, Mahajanga 27% and important tool to be used is the urban plan. Fianarantsoa 17%. Otherwise, the cities that do not have such urban plan should be managed ever with inappropriate and outdated documents, or daily and simply managed.

Generally, in Madagascar, rising or growing towns have been built from political and economic situa- tion, rather than from a territorial planning prac- tice. So, many cities were formed in this way such as: relay towns which have been villages before like Moramanga, port towns like Toamasina, industrial towns as Antsirabe, cross roads towns and commercial towns like Analavory. There are also administrative cities, where have been built up some infrastructures and created some Now, the use of urban land still allows some services, so as to manage the territory. usually very restricted: Nevertheless, the main factor contributing to interesting optimization. City vertical profile is Malagasy cities growth is the road and its condi- - tions. Therefore, there are linear cities like ting those constructions derogated by Depart- Andapa, concentric zone such as Ambovombe − mentOnly to of 4 the and Ministry 6 levels of in Land the city Planning; center, excep and glove cities such as Ihosy. Otherwise, there to 4 levels in immediate suburbs; has been a preconceived plan for more than half and to 2 and 3 levels on the peripheries. of Malagasy cities, but their sprawl did not follow − the plan. −Somehow, urban plan for Malagasy cities have optimized the urban horizontal sprawl, so as to Only 2% of areas in the 172 cities in Madagascar are urbanized. For urban Communes, this urban give flexibility to urban densification in the future. 3.3. ENHANCING URBAN FOOD PRODUCTION

n 2004, the Policy Letter of Rural Development consumption and 29% to be sold. Rice regional Iof this Policy talk about the improving food of sales and 10% of total product. The import was securityhas been and adopted.the increased Two rural of the production. five objectives This estimatedtrade flow aboutrepresented 285,000 only tons. 180.000 tons, so 34% policy strengthens the principle that there is a close relationship between producing rural zone Food insecurity became more severe over the and transforming and consuming cities of rural years. In 2010, over 35% of people in Madagascar products. In addition, Madagascar also has the were food insecure against 25% in 2005 (CFSVA 2010). In 2012, this rate increased to 65%. That‘s sugar. the reason why the National Action Plan for Nutri- public policy on specific sectors such as rice and tion (PNAN) 2012-2015 has been established. Many programs and projects have been imple- This plan aims (1) to reduce food insecurity rate mented in response to these policies. These from 65% to 43%, (2) and to keep the rate of food - insecurity in rural areas less than 30%. tion, the watershed protection, the development ofprojects irrigated are aboutareas, thethe systempromoting of rice agro intensifica ecologic technology, the rehabilitation and construction of irrigation networks, the promoting of agricultural machinery, the support to rural small business and rural young entrepreneurs, Chambers of Agri-

there are the following programs and projects: BVPI,culture PPBVLAC, and Rural PRBM, Organizations, RPA, GSDM, etc. PSSA,... As examples

In 1999, rice cultivated-area is estimated around 1.450.000 ha, giving a global rice production 9 around 2.800.000 tons, of which 62% for national National Report — Madagascar, Habitat III

Regarding the urban and suburban agricul- urban population, due to short distance from production to city markets, and on the other hand dynamism of these activities, due to consump- due to range of prices. However, some cities face tionture, increases. cities have It contributedhas been implemented significantly for to the supply problems, because of their isolation of agglomeration of Antananarivo the ADURAA Project or Sustainability of Urban Agriculture Analysis Project, whose results proved the production zones, or the exploding demand due primary importance of food based in urban and Atto existencelast, the ofurban important plan recognizes projects in the city.multiple suburban agriculture. In the city of Antananarivo, functions of urban agriculture, that are its price 15% to 25% of rice consumed, and more than stabilization during the lean period, its economic 90% of vegetables are mainly cultivated near the - city. mental function and its social and territorial func- tion.function, As evidence,its protection the againsturban planfloods, does its environ reserve There have been developed around the cities particular areas to agricultural activities, but the some zones where are produced vegetables for urban consumption. So, fresh vegetables and livestock products have become available to the inapplicability of such plan does explain the rice field backfilling and urbanization. State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment 3.4. REDUCING TRAFFIC CONGESTION

he National Transport Plan developed in In addition to this, strong measures have been 2004 contin

MEPATE plan sets out actions to improve intercity connec- tion of traffic in Madagascar. At national level, this Sincestations, 2009, whether the forImproving city taxis Program or for freight. to Urban city network in Madagascar. Locally, the Urban Mobility has been implemented in Antananarivo Transporttion that is Plan really (PDU) significant provides given solutions the outline to intra- of urban link’s questions. that the program will include two phases: (1) the with the support of Ile de France. It is expected The agglomeration of Antananarivo has deve- relying on pilot project of urban transport in loped its Urban Transport Plan (PDU) in 2004, shortfirst phase term, aims(2) and to upgradethe second the step existing will concernsystem, then it has been completed by study about the medium and long terms through structuring - project and accompanying policies for integrated mented the Improving Program to Urban Mobi- transport system, in the agglomeration of Anta- litydebottlenecking (PAMU), supported of traffic. by It Ile has de also France been Region. imple nanarivo. For other cities, the PUDi does set out actions on infrastructural aspect of the urban mobility and - transport. ofThe two first transportphase has beenlines completed(as pilot), with training restruc of carriers,turing and and fitting some out of accompanying breakpoints and measures. terminus Therefore, the Improving Program to Urban Mobi- lity has helped to establish the profession Charter (good conduct code of urban transport profes-

sion), line and terminus exploitation charges, othersspecifications documents of technicaland proceedings, charges particularly, (technical theand management structural specifications reform of transport of autocars), licenses, and in a numeric database of the Urban Commune of The Urban Transport Plan of Antananarivo, is Antananarivo (CUA). being considered as the most progress on the Regarding the structuring projects, the rehabili- results, it could serve as model for the other cities organization of traffic urban. Despite mixed made in some great cities with the funding of TFP actions on several aspects, whose achievements andtation the and private extension public of partnership. some streets New have boule been- couldin Madagascar. be registered This as transport good results plan forhas Antanana specified- vards have been also built. rivo’s agglomeration. Lack of funds, the achie- vements are not complete, and have been about

and intersections layout, clearing and enlarging In addition, organizational traffic measures have- 10 sidewalks,reorganization pedestrian of traffic crossing in center design, city, creating streets cers.been taken in big cities through traffic lights, but speed breaker, etc. they have been substituted by traffic police offi LAND AND URBAN PLANNING 3.5. IMPROVING TECHNICAL CAPACITY TO PLAN AND TO MANAGE CITIES

o improve municipal management, several The numbers of municipalities who have met guides for mayors and for technical and T between 2009 and 2013. These legal responsibi- litiestheir legalinclude obligations the development have significantly of administrative increased In 2005,financial the “Mayor’s services handbook” have been came developed. out by the account, and the elaboration of primitive budget Ministry of Decentralization and Country Plan- (Commune’s number with administrative budget ning, in partnership with UNDP. This guide was from 72 to-1251, Communes with administrative distributed to 1.549 Communes in Madagascar. account from 632 to 1084). In 2007, two others guides have been developed with German Cooperation that are “General guide Besides, the National Institute of Decentralization for property taxation and revival of tax software”, and Local Development (INDDL) has been created and “Guide for property taxation census and reco- in 2011. Its mission is to provide initial and conti- very”. In 2008, theses guides have been improved nuing training, research and the promotion of for Rural Communes, 2nd category. decentralization and development local.

Then, there have been achieved actions on sensiti- In 2012, INDDL have recorded a series of achie- zation, information and training of Municipalities, vements related - directly or indirectly- on the Districts and Regions on territorial planning and management of cities, such as training of Munici- city planning in 2008, in 2010 and in 2013. The pality agents in Sambaina Manjakandriana, trai- series of training concerned territorial planning, ning of INDDL’s trainers, training of CAC agents urban planning, planning procedures, city mana- in Maevatanana- Mahajanga, Commune’s assess- gement and urban project management. ments in Sambaina, Ankazobe, Soavinandriana, Analavory, promoting courses of DDR (territorial Regarding the implementation of the Policy Letter intelligence, decentralization, project), initial trai- of Decentralization (LP2D), the Local Develop- ment Fund (FDL) has been established in 2009. agents on urban transport. ning of officers land offices, and training of CUA local and intercommunal initiatives (ii) improving These two establishments are working primarily performanceThe FDL is a of national communal mechanism staff and employees. (i) financing It for improving the technical capacity of communal contributes to improve the municipal team skills and regional staff. But their training programs are in all the Communes of Madagascar. also strengthened by some contribution of several Ministries (such as Ministry of Planning, Ministry In 2013, National Institute for Administrative of Water, Ministry of Finance and Budget), and

Treasurers Accountant of Communes, 958 tech- SAHA Program. Training (INFA) have certified, 1,611 Secretaries technical-financial partners like AFD, GIZ and members of municipal councils on communal management.nical officers, 1.500 mayors on management and

11 National Report — Madagascar, Habitat III 3.6. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

he coverage of Malagasy cities in urban for rapid urbanization and are reluctant to insti- planning documents is still low. It is the tutional reform caused by urban sprawl. Tsame situation while talking about applica- tion of these urban plans. The incomplete decen- In terms of urban management, urban plans are - cial capacity of Communes to take in charge their gap between the local reality, the urban plan and planningtralization study, explains and tothis implement low technical all urban and finanplans. thesoon planning outdated regulations, in the context. so that Therefore, building there permits is a This weak enforcement of urban plan manifests by more and more populated areas, and the proli- feration of illegal land uses and illegal construc- Then,issuance the experiences preservation also of urbanmany problems.heritage faces to tions. One household occupied 26m² in 2010, lack of funding needed for its restoration. so a decrease of 3m² compared to 2005. 60% of households live in a single room, 29% have two

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment rooms while 13% three rooms. congestion, the mononuclear urban model preventsRegarding the the development traffic management of economic and centersthe urban in Furthermore, the decentralization of adminis- suburbs of big cities. Because of this model, inco- trative services of Country Planning is ineffec- tive, whereas they should play an important role In addition, rapid growth of vehicles (5% per by supporting the Communes to apply and to year)ming andgives outgoing rise to oversaturated flows increase road. in rush Moreover, hours. manage the urban plans. In 2013, there are only there are the poor public transport management 8 regional services of the Ministry of Country and the lack of coordination between urban and MEPATE

Planning on the 22 Regions, that is to say 36% of suburban transports. Furthermore, regulatory framework for urban and suburban transports is and Sainte Marie, given that they are island with a still outdated and incomplete. particularcoverage rate. status, Exceptionally, there has been for citiesset up of the Nosy “local Be delegation of Country planning”. occur because of a diversity of transport’s modes. The implementation of commitments on Country TheAt last, proliferation use conflict of of soft road and space traditional and price transport conflict

institutional problems which the most important these transport’s modes are working with infor- areplanning organizational and on urban transformation planning has andexperienced lack of increase the traffic congestion, especially when stability of communal staff, passivity and failure in taking responsibility, inadequate collabora- mality and traffic laws violation. Therefore, risks tion between central services and decentralized andcoming indiscipline from road of trafficdrivers accidents mostly bus are drivers, very high, but services. due to speed exceeding, technical failure vehicle- port’s modes. Institutionally, the city’s scale change deals also because of no specific area for each trans with cooperation problem between concerned Communes. Problems on operationalization of the OPCI reside on structure’s operation, compe- 12 tences distribution not clear between OPCI and Communes on the suburbs are poorly prepared Communes, and bad influence report over them. LAND AND URBAN PLANNING 3.7. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

bout this area, the biggest challenge in the Thus, Madagascar is committed to meet the - following challenges, in priority: Aning documents of all cities in Madagascar (urbannext plan 20 and years development is to ensure scheme), coverage to of applyplan them by local authorities, regional and central services.

Challenge 1 : Developing and improving skills and competences of Communes and Fokontany

Therefore,− the following challenges have been identified:− Implementing the continuing training by supporting academic institutions to programs for elected and local respon- theStrengthening specialization the specialistsof young inpeople this field in sible; these disciplines, and increasing profes- −

sional exchanges; Establishing pluridisciplinary territorial Challenge 2 : Ensuring the availability of planningofficials. documents for cities over 5,000 people

For this, the country intends to:

− Apply the renewal of urban planning − Systematize the use of reliable local land according to the function and the dyna- tenure plan (PLOF) for any urban plan- mism of cities. There are : strategy and ning;

and agglomerations; Urban plan for the − - regionalflexible urban tools centers, for metropolitan the SAC for areaslocal clear urban model in any urban plans. urban centers and elaborating systemati- Promote the densification and poly-nu cally PUDé for any city category;

Challenge 3 : Ensuring the compliance and the implementation of urban planning documents approved

These are:

− Using planning documents approved as − Developing monitoring and evaluation reference for all urban actors; tools for territorial planning.

− Popularizing the planning documents and ensuring management transparency;

Challenge 4 : Boosting and performing planning and developing operations in all cities

Therefore, it is important to:

− strengthen the operational projects − anticipate the public operation of infra- related to urban restructuring and/or structures and urban basic facilities in urban renewal ;

extension zones of city.

13 National Report — Madagascar, Habitat III Challenge 5 : Ensuring integrated urban traffic management and urban congestion

To do this, Madagascar will:

− reduce congestion near the cities − do heavy investments for urban mobility entrance by different solutions; in the big cities and agglomerations;

− do some light investments with imme- − Strengthen legal and operational frame-

- tionsdiate, reorganizing and significant public effects transport that ; are works for urban traffic. widening existing roads, improving junc Challenge 6 : Promoting and frame the private sector interventions in urban development

The country is committed to:

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment develop partnership with private sector, by - pushing it to contribute in urban investments; ment Project (PIP) and involve small and − set up the Territorial Planning Committees; − increase the beneficiaries of Public Invest intensify the partnership between private develop effective tools and instruments for medium businesses in execution of these PIP; − promoting public-private partnership (legal actors in promoting social dialogue and the − and commercial instruments, etc.); − full participation of civil society.

MEPATE Challenge 7 : Ensuring the unifying role of Country Planning Department for the effectiveness of sectorial actions in urban areas For this, Madagascar plans to: strengthen the cooperation between Com- communal mechanism in the big cities and munes, Fokontany and Regional Services of agglomerations; − Country Planning in the 22 regions; Promote the establishment of urban develop- revising the legal framework on intercommu- ment agency for the big agglomerations. nality according to the development impe- − − ratives and develop or revitalize this inter-

14 ENVIRONMENT AND URBANIZATION 4. ENVIRONMENT AND URBANIZATION

4.1. ADDRESSING CLIMATE CHANGE

or ten years, environmental protection has The new Policy will set the environmental guide- become a major concern of the Government. lines for the population education. It will also set FFrom this situation, environmental educa- all principles to be respected for the implementa- tion and information have held an important tion of environmental education, and all instruc- place so as to solve the problem regarding forest tions in which national and regional programs degradation in Madagascar. The National Policy and actions plans should be drawn. It will evolve

established in 2002. This Policy aims to develop environmentalon Environmental awareness Education of (PNERE)every citizen, has been in Besidesprogressively that, therewith consolidatedare many reforestation experiences. initia - - tives by governmental and non-governmental tive has led to environmental mainstreaming, organizations, in urban and suburban areas. The evenorder theto get environmental knowledge and education skills. This in firsteducation initia national reforestation program, named “one tree programs in 2008. It is combined with the educa- – one child» is being undertaken through the tional system change from primary to university active participation of the education system from level. Actually, this Policy is under review, is being primary school level. This program aims to plant updated and becomes lately the National Policy 6.000.000 trees every year that are the number - of children in schools. Note that the reforest areas are most of the time located over the urban ison workingEducation for related the construction to Environment of responsible for Sustai centers. citizen,nable Development solidary, able (PErEDD). to act individually This new Policy and collectively for a healthy environment, and for the sustainable development of the Nation.

4.2. DISASTER RISK REDUCTION

he National Strategy on Disaster Risk Mana- Risk assessment is essential in managing and in gement (SNGRC) has been established in reducing risks. About that, progresses have been T2003 through the Law N° 2003-010 of 05 made in Madagascar, in order to better control September 2003 about the National Policy on and to adapt to climate change impacts. First of Disaster Risk Management. For its implementa- all, the Meteorology General Department has developed the climate data model projection in - tionaltion, the mechanisms National Strategyfor disaster includes risk management, six strategic sectorial actors and stakeholders so as to become (2)axes long-term that are: capacity (1) operationalizing building for theDRM institu at all aware2055. Theseof climate data changehave been issues, used consequently extensively byto levels, (3) developing a complete information take adaptive climate change measures.

reducing global risks and vulnerability, and (6) Also, risk and vulnerability atlases have been establishingsystem, (4) developing regional and financial international mechanisms, collabora (5)- developed for the most vulnerable regions to tion. As seen, the Disaster Risk Reduction (DRR) climate change in Madagascar that are SOFIA, is been considered as a component of the Disaster SAVA, Vatovavy Fitovinany and Atsimo Andre- Risk Management. fana. These risks’ atlases have met the needs to: (1) to understand all types or risks due to climate For the strategy’s implementation, many struc- hazards (frequency, intensity, climate change tures have been established, such as Disaster and scenario), and (2) to analyze vulnerability of each Risk Management Committees (from National area affected by climate change impacts (educa- Committee to local Committee in the Fokon- tion, health, agriculture, transport and human settlements)

(CPGU).tany), the National DRM Office (BNGRC), and the Disaster Prevention and Emergency Managament Being a decentralized structure, the Communal Committee of DRM is award to deliver aids for disaster victims and to coordinates responses to 15 disaster (at levels of Communes and Fokontany). National Report — Madagascar, Habitat III 4.3. REDUCING AIR POLLUTION

environment and does complain whether there is industry contributes only 15% of GDP. The real pollution. IIndustryn fifty years Union of industrialization of Madagascar (SIM)in Madagascar, has only about a hundred members in 2014. Thus, the greenhouse gas emission is still low, around 0.2 shown the alarming air pollution level in Anta- In a scientific study by INSTN in 2003, it was tons per capita per year. But this situation does nanarivo. The Capital was declared a “PM10-sa-

not prevent the Malagasy State to take measures turated zone”, since PM10 average concentration so as to reduce and to manage the industrial is higher above acceptable values (150 µg.m-3). pollution. Therefore, legislation and laws have This high pollution is due to leaded fuel, before been put in place for managing air pollution. This law about management policy of industrial unleaded was in 2003). pollution came into force in 2000, and has been the arrival of unleaded petrol (the first launch of Since the introduction of the unleaded petrol, Implementation Investment Compatible with strengthened by the MECIE Decree (Decree about- from 27% (in 2006) to 90% (in 2012) in Anta- there was a significant decrease of air pollution State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment nanarivo and its outskirts. the Environment). This decree requires Envi privateronmental investments. Impact Study Therefore, (EIS) or there environmental should be Besides that, plastic bags are the cause of the commitment programs (PREE) for any public and major environmental concerns. In Malagasy environmental impact assessments. From these cities, plastic bags are invading lives, household elaborated specifications that are parts of these- wastes and public place. They are considered as

thespecifications, industrial industrialpollutions pollutionsare still manageable could be miti in life cycle (plastic bags take over than hundred

MEPATE gated (especially those of large firms). Generally, significant source of pollution throughout their - problem, the Government has enacted in 2014 the Madagascar. The National Office of Environment Lawyears prohibiting to decompose the use in landfills).of plastic Awarebags. This of thisact local(ONE)and population the Ministry is watching of Industry carefully are their monito living comes into force on 2015. ring specifications compliance. On the other side, 4.4. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

producing harmful emissions. Air quality remains to ecology and to environment, such as an important issue for public health. Uforestrbanization resources is causing in most significant large cities damage in Madagascar. Regarding natural environment‘s At last, urban Communes did not establish or was not be able to dynamize neither to opera- a major obstacle for reforestation. Then, monito- - ringpreservation, of young insufficientplantations budgetaryis lacking, resourcestherefore isit cial resources and weak operational capacity do tionalize their DRM Committee. Lack of finan rate since decades. This situation results from is hard to measure exactly reforestation success Theseexplain DRR this lethargy.Committees There (communal is no allocated as well budget as localspecifically committee) for the are DRR more decentralized and fully engaged structure. only Onlimitation the other of human side, andgreen financial spaces resources. are disappea- where there are development projects supported ring in cities. The Capital has only 3 Ha of public gardens with a total area of 83 km². But, the real problem for the Municipality is how to maintain by technical and financial partners. the sustainable gardens and the green spaces due to incivility of the population and to the low muni- cipality budget.

enforce the law about the industrial pollution’s managementFurthermore, and municipal control. officersThere are do only not a really few cases of closure polluting factories either tempo- rary or permanent. Most complaints are closed after paying for money penalty and pollution clea- rance.

16 -

About air pollution, the old vehicle fleet, espe cially old vehicles for transport and old taxis are ENVIRONMENT AND URBANIZATION 4.5. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

he below observation led to the following Tchallenges (in the priority order) :

Challenge 1 : Ensuring the implementation of the strategy on adaptation to climate change and on reducing risk

For this, Madagascar would launch challenges:

or for urban sprawl control (disaggregated - urban data); − munalTo revise and its local national committees, DRR strategy, and onspecifically (2) pro- To strengthen urban development operations; on : (1) extending the powers of DRM com To design and to implement a monitoring in cities ; − viding responses to all specific risks existing system of building and construction standards To set up a permanent consultation structure − for resilient infrastructures ; within the Commune, (1) for the database − creation and for (2) DRM project sustainabi- lity ; − relatedTo improve services. management of fire services, To ensure the effectiveness of the contingency through increasing fire hydrants and other plan and to consider hazards other than − To use new technologies for risk assessments andcyclones for andmonitoring floods; urbanization dynamics − Challenge 2 : Ensuring industrial pollution and air pollution reduction

That is:

To manage the industrial pollution through ment model for these wastes types), and to do (1) dialogue and cooperation of all stakehol- environmental audit for industries. − ders, (2) through effective implementation of To check the age of the vehicles, through rigo- sanctions, and (3) through wide communica- tion campaign; − To manage industrial and hospital wastes rous verification during the technical controls - − Challenge(building specific 3 : Increasing landfills and production waste manage and use of home renewable energy The following actions should be taken:

To implement the energy transition plan in To recycle wastes so as to produce energy short and medium term; with the JIRAMA’s cooperation − −

Challenge 4 : Promoting green and ecological− cities (eco-cities)

This challenge aims:

- To promote horticultural activities in the dings ; suburbs ; − To increase encourage urban energy green efficiency space and in to new continue buil − To prevent erosion by building infrastructures reforesting in the suburbs ; and by using soft measures. − −

17 National Report — Madagascar, Habitat III 5. URBAN GOVERNANCE AND LEGISLATION

5.1. IMPROVING URBAN LEGISLATION

he Malagasy urban governance legislation tion (building permit, subdivision permit, and consists of all Laws, Decrees, Ordinances,… demolition permit), and for urban development. Trelated on decentralization, urbanism and However, it also contains technical requirements housing. Especially, the Urbanism and Housing which are be used as planning regulations at the Code was adopted in 1963 and there is only partial national level. revision up to now. It has been supposed that the Code of 1963 would be a collection of two decrees Locally, the urban plan includes a set of regula- (on 1960 and on 1962), but paradoxically, it made tions that are matched with the land-use planning

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment of the city. Therefore, these planning regulations the reason why the Ministry of Country Planning are providing details so as to complete the Urba- decidedsignificant in changes2005 to oncompletely urban legislation. revise this That Code. is nism Code for cities which have it. Generally, these The draft law is now is ready for adoption. documents are the working tools of each technical services (of the Ministry of Country Planning and The Urbanism and Housing Code is the main of the Commune) while delivering all permits. framework for all actions in cities. It involves In 2010, the Ministry of Country Planning had

MEPATE revised through two Decrees, measures about subdivision, partition and contravention on urbanism and building. These decrees have been adopted, because of the proliferation of illegal constructions in Malagasy cities, the powerless of local authorities given to inadequate procedures, and so as to frame private property transactions.

In 2012, construction standards were revised, integrating climatic parameters, and reduction risk. Therefore, hurricane building codes have been adopted and popularized from ten Regions in Madagascar. Other normative regulations still procedures for urban planning, urban mana- remain in force. gement through different urbanism applica-

5.2. DECENTRALIZATION AND STRENGTHENING OF LOCAL AUTHORITIES

adagascar has adopted the decentrali- the former structuration has been kept such as zation Policy since the early 1990. After Provinces, Regions and Communes. In 2011, Mthe adoption of decentralization Act (on 1994 and on 1995), decentralization organiza- has been adopted, which resulted in the end 72 tional structures have changed several times. urbana new Communes. urban–rural In 2014, Communes three new classification laws were From 1994 to 1998, there were three grades enacted: the organic law on decentralization, of decentralization: Regions, Departments and the law on State representation to decentralized Communes. In 1995, the urban–rural Communes authorities, and the law on powers and resources allocated to decentralized authorities. 45 urban Communes in Madagascar. classification has been changed, and there were During these 20 years, the main gains are the Then, the three grades of decentralization have rightful place of Fokontany, the long-time exis- tence of Communes and their status evolution every 8 years, the Region’s statement, and the Letteralso been of modifiedDecentralization into Provinces, (LP2D) Regions has been and Decentralization law adoption in 2005. adoptedCommunes in from2005. 1998 So from to 2007. 2007 The to first2010, Policy two 18 stages of decentralization have been experienced In conclusion, the Commune is being the anchor that are Region and Commune. Finally, since 2010, point of the urban governance in Madagascar. It URBAN GOVERNANCE AND LEGISLATION

is the one stable territorial collectivity and whose - status is clear. The Commune or the Municipality ration has doubled, thus reaching 31 million USD. is administered by elected mayor. financial assistance as part of decentralized coope- tralized cooperation with European Municipali- Therefore, two indicators measure the quality tiesAbout and twenty Regions. cities Projects would on benefit urban ofdevelopment the decen of decentralization which is really required for have also increased. In 2012, there were three sustainable development in urban areas: key sectors of the decentralized cooperation: the urban development, the water and institutional The percentage of policies and legislation urban issues in whose formulation local and aids of these cooperation. − regional governments participated: 31% in support. They were spending 60% of financial 2006 and 32% in 2013. At last, it is worth to mention achievements of The percentage share of both income and the FDL, the INDDL and the ONCD (National expenditure allocated to local and regional − governments from the national budget : 3% in the country’s progress. There were a thousand 2006 to 5% in 2013. ofOffice subprojects of Concertation implemented and Decentralization)in 1.200 Communes, on 630.000 temporary jobs created, the local Reading these indicators, the decentralization economy revitalization, the implementation of process is not yet fully effective in Madagascar, capacity building program of Communes and especially regarding the budget decentralization. Regions, the implementation of citizen parti- cipation and accountability (200 Communes), In order to overcome this failure, Municipalities the promoting local taxation program (350 Communes), and the establishing service ‘s stan- through private public partnership and through dard program (200 Communes). decentralizedhave made efforts cooperation. to mobilize From financial 2006 resources, to 2012,

5.3. IMPROVING PARTICIPATION AND HUMAN RIGHTS IN URBAN DEVELOPMENT

aws on citizen’s participation have been adopted in 2001 and in 2003. Besides, this Lcitizen’s participation is being effective while developing the urban plan.

First of all, the Urbanism and Housing Code advo- cates the establishment of Municipal Urbanism Commission, which does represent all stakehol- ders in private and public sectors. This is the same process while implementing the urban projects, which required also the establishment of the local committees. The local authorities, such as mayors and Fokontany’s chief, are members of these committees. and secondary school), the establishing citizen program for high school, the awareness campaign Then, public inquiries are current practices for the promotion and defense of human rights especially for projects requiring land expropria- in schools, the organizing cultural events about tion. Therefore, the participatory and inclusive human rights and citizenship, producing docu- approach is essential to urban planning and ments and reports, …. operation in Madagascar. From 2008 to 2011, the OEMC has implemented On the other side, the civil society is very present with UNDP’s support the Project promoting in this area. It is organized and structured, to have the culture and the defense of human rights in the National Platform of Civil Society in Mada- schools. gascar (PFNOSCM). Its participation does extend For protection of human rights, a lot of progress land management. has been made. First, the “education for all” in the fields of governance, of environment and of program has been implemented since 2003. This movement has provided the support of registra- for citizenship (OEMC) has been established in tion fees for primary education, school kits distri- MadagascarFor citizenship, in the2002. Office Among for mass the educationachievements and bution, grants for teachers “hired by parents” (FRAM), introduction of free school meals, grants 19 civic and citizen educational program (at primary schools and schooling in youth prison. of this Office, there are the restructuring of the National Report — Madagascar, Habitat III

For protection of people living with HIV/AIDS, it improving the working conditions for children, through schooling and professional training and AIDS and the protection of the rights people living reintegration. From 2004, the National Program withhas been HIV. adopted The national the law plan on against the fight HIV/AIDS against HIV/ has been implemented. For this purpose, campaigns launched. In 2005, Madagascar is committed to have been conducted to aware of discrimination reformingfor Birth Certificate its legislation registration on protection (EKA) hasof child been- and of stigma of people with AIDS. ren’s rights. Since 2006, the “week for mother and child” has been institutionalized and is being At last, for protection of children’s rights, Mada- celebrated twice a year. Moreover, the protecting actions against sexual exploitation and sexual the Rights of the Child (CDE). Since 2001, Mada- abuse of children have been carried out. gascar ratifiedhas implemented the United the Nations Project Convention that aims onin

5.4. ENCHANCING URBAN SAFETY AND SECURITY

ccording to the Human Development deploying repressive and defensive tactics, while

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment Report (RMDH) 2013, the crime rate judicial system is raising awareness and court Aprovides measure to civic commitment and near population. On the other side, Communes to civic trust. The last years, the average crime and Fokontany are establishing the municipal rate in the world was 6,9% per 100.000 persons. police force and the oversight committees. For Madagascar, this crime rate was 8,1%. The following indicators also express the preven- According to this 2013 Report, the percentage of tive actions and the improvement actions for people who feel safe in their country has peaked urban safety: 82% of Regions have the social secu-

MEPATE at 66% in the world. For Madagascar, this rate is rity plan in 2013 while it was only 14% in 2006. about 53%. In 2013, 47,7% of Communes have the gendar-

Communes which do not have police station is the fear of economic operators and of people, stillmerie’s 10,4%. office. However, the percentage of urban andThe through crisis of the confidence insecurity does rising. manifest Even throughthough, the crime rate is decreasing from 1,39 crime per These last years, there is rise of services performed 1.000 habitants in 2011 to 0,95 crime per 1.000 by private security organizations in the big cities habitants in 2012, and to 0,91 in 2013, there is and agglomerations. resurgence of gags using more and more dange- rous weapons.

Despite the Security Ministry’s efforts, we deplore beenFurthermore, implemented specific in Antananarivo. projects supported There are for by the resurgence of the insecurity manifesting by exampletechnical the and Neighbourhood’s financial partners Initiative and NGOs Support have the increasing of armed robbery, kidnapping, Program (PAIQ), aiming to reintegrating juve- home invasion robbery by gangs, etc. nile offenders into the community, the Volunteer against Violence Project and the Human Security The actions against insecurity are conducted Project. throughout the country. In urban areas, police is

5.5. IMPROVING SOCIAL INTEGRATION AND EQUITY

his section will focus on social integration of on custody, the organization for penal Adminis- prisoners given that the social integration tration, the preparation for successful reintegra- Tof other kinds of people has been treated tion into community life of prisoners. These laws under several previous chapters (women, youth, were made between 2006 to 2008: Decree 2006- elders, poor, and people with disabilities). 015 of 17 January 2006, Decree 2006-901 of 19 December 2006, Decree 2007-021 of 30 July 2007 For the last twenty years, the progresses about and Decree 2008-005 of 25 June 2008. this theme include the creating of the Department in charge of humanization of detention condi- Some foreign NGOs such as Swiss, French, and tions, and of reintegration within the Ministry of American NGOs, are playing very active roles in Justice, and the establishment of the task force the reintegration actions. They cover almost the inside prisons. entire national territory, especially in big cities like Antananarivo, Tulear, Antsirabe and Fort Madagascar has adopted laws against torture and Dauphin. 20 other cruel, inhuman and degrading treatment or punishment, laws about criminal proceedings URBAN GOVERNANCE AND LEGISLATION

At the operational level, there is the implementa- In 2013, Madagascar launched two important tion of detention centers improvement programs. projects with the support of the European Union, These programs have included the increasing of named (1) “quartier d’avenir” or “future neighbo- training workshops, the establishment of an inde- rhood starting to prison into reintegration” which pendent inquiry committee about prison labor, is being implemented by Handicap International, the disinfection of prisons and the social support and (2) “scolarisation des mineurs” or “minors of prisoners. schooling” with the Dignity Foundation.

5.6. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

irst, most of urban legislation is outdated. territorial limits. This situation affects the consis- That is the case of the Urbanism and Housing tency of planning policy of road, of public services, FCode and the building standards. These laws and of transport. the public. The agglomerations of Antananarivo, Toamasina are also scattered, hard to find and inaccessible to and Fort Dauphin, have experienced this problem. Then, the Communes are placed in the middle They do now have an OPCI which does not work of all institutions, , but they do not control the well. Legal frameworks on intercommunality relationship with the Government and with the exist but they are not well-done too. Moreover, Fokontany. Added to this, there is a real lack of there are no measures to promote the intercom- technical services which are supposed to provide munal cooperation. support to these Communes.

For political reasons, the appointment of the special delegation replacing the mayor is a viola- tion to the decentralization principle. Now, most of important cities in Madagascar are adminis- trated by the President of special delegation.

The equivocal status of Fokontany weakens the Commune. The Fokontany is a collective institu- tion which existence is prior to the Commune. Since 2007, the Fokontany’s Chief has been no longer appointed by Mayor, but by the District Manager. Therefore, the Fokontany has become as The low budgetary decentralization is considered a decentralized structure than a territorial subdi- vision of Communes. percentage of resources given to decentralized collectivitiesas the reason from of Communescentral Administration inefficiency is . only The All these inconsistencies have brought mess and 5%. In addition to this, there is the weakness, the confusion that negatively affect the harmonious non-transparent allocation and the unpredictabi- and stable relationship between decentralized institutions. lity of these financial resources. It should also be noted the problematic transition given that in 2003, 98% of national tax revenues into metropolitan governance. In fact, municipal areThen, collected there is by also Central the low Administration. fiscal decentralization, In prac-

changes inside and outside the Communes. But, decentralization process, especially to property theyofficers have are no facing power to demographicand no force andbeyond economic their tice, few resources have been given to the fiscal the property tax, due to lack of land inventory and totax. low There recovery is also rate the (15% insufficient to 30%), exploitation to tax incivi of- lity and to lacking of coordination and of incen- tives.

Thereby, the Municipal expenditures are very limited to operating expenses, consisting in most cases of salary. The majority of investments are not included in the municipal budget. Moreover, the public investment in urban areas is still very small. It averages between 1USD to 2 USD per habitant per year. For the Capital Antananarivo, 21 National Report — Madagascar, Habitat III

the investment rate is the highest reaching 4 USD The civism is one major problem in cities in Mada- per habitant per year. gascar. It appears like damage to public property, lacking in sense of responsibility, corruptible Regarding the social accountability, local autho- behavior at work. rities do not govern the Commune with trans- parency and accountability. On the other hand, In terms of social integration, there is the alar- - ming increasing number of street children and of nistration, and are losing interest in participatory homeless in Malagasy cities. publiccitizens actions. do not give more confidence to the Admi At last, the living conditions in prisons are very bad. The ratio is about 1 prison guard for 30 to 40 prisoners where should be 01 prison guard for 5 prisoners. In 2013, prisons in Madagascar are overcrowding with an overall occupancy rate from 185% to 375%. 85% of prisons are very old and were in complete disrepair. Moreover, their location in the city is not suitable, as the city is

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment urbanizing.

MEPATE 5.7. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

n 2036, Madagascar will have to deal with vacuumin urban governance, the marginalized the urban insecurity, the limited capacity of urban people. For that, the challenges are (in the ICommunes, the lack of investments, the legal priority order) :

Challenge 1 : trengthening the technical and financial capacity of cities

This challenge aims :

To strengthen and make transparent, quick To ensure transparency in urban management - and build the results culture within Com- − tral Administration to Communes, up to 20% − munes; ofand the efficient National resources Budget untiltransfer 2036; from the Cen To establish the legal frameworks which set up the service’s standard and the proce- − dures’To strengthen manual theto the fight Communes; against corruption and − in the Communes and their group; Towould set facilitateup the Jointfinancial Committee resources working mobilizing for Municipality, work up and harmonize its infor- resources and skills gradual transfer ; − mationTo improve system the and financialits management management software of ; − To improve intervention ‘s strategy of FDL, To implement gradually the e-Administration according to the principle of equalizing and the e-Governance. − national fund; −

Challenge 2 : Ensuring urban safety and security

The country will:

Implement programs on security and on civil Initiate the reform within the Conception Joint protection; Agency (Organisme Mixte de Conception) − Improve the police and the courts nearby − Develop all forms of cooperation, with tradi- people; tional authorities for youth education and for − − the urban insecurity; Implement the project for prison moderniza- fight against insecurity; 22 − StrengthenImplement thespecific program and ongoing on youth actions and children about tion and for youth rehabilitation. rehabilitation ; − − URBAN GOVERNANCE AND LEGISLATION

Challenge 3 : Having responsible citizens

For this, challenges will be:

To institutionalize the citizen participation To strengthen the civic education at all levels; and to increase the socio-cultural activities, To capitalize experiences on transparency and − the communication and connection between − accountability. citizen, through surveys and public meetings; − To formalize the permanent consultation structure within the Municipality; − Challenge 4 : Formalizing the urban judicial and administrative mechanism

Challenge 5 : Ensuring metropolitan management

The country would support the municipal initia- tives and encourage the principle of pooling municipalChallenge services 6 : Settinginto intercommunality up the reliable, field. available and updated urban database To do this; Madagascar will undertaken :

− To integrate into the RGPH process any census − and survey about cities and settlements ; on cities, which will be administrated by the ObservatoryTo capitalize ofand Country to set upPlanning. a specific database

23 National Report — Madagascar, Habitat III 6. URBAN ECONOMY

6.1. IMPROVING MUNICIPAL AND LOCAL FINANCE

tive, that is to say it does polarize more and more the low capacity of cities to mobilize local population and businesses through the agglome- Because of the low fiscal decentralization and ration’s economy. budget of Municipality is very limited. financial resources, like fiscal resources, the At last, the economic dynamism contributes to However, strengthening the tax system is the most the improvement of local taxes. This shows that - tion of local community. Moreover, some public than those collected in rural Communes and important alternative to improve financial situa intax smallrevenues cities. in bigThis towns situation are significantly results from higher the partners (like FDL, IGP / WB, Switzerland coope- economic dynamism such as trading, services, ration,organizations etc.) have and supported some technical Communes, and financialthrough industry and mining.

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment popularizing the guidebook on tax system, and Between 2008 to 2013, Foreign Direct Invest- of municipal services. These actions have been ments (FDI) in mining sector have enhanced carriedbuilding out capacity by tax census to enhance and tax financial collection. stability suburbs like Toamasina and Fort Dauphin. The As for Antananarivo, Tulear and Moramanga, taxfinance revenues of some of these cities agglomerations and consequently have been their cities are working or could work for their own resources. Thus, more than 3/4 of the budget building permit fees. Although, the FDI have also

MEPATE revenue comes from their own resources that are improvedsignificantly the increased, other taxes due tointo mining the State’staxes and fund to from three main revenues such as: commercial such as custom taxes and the value added tax fees, property taxes, and other taxes from public (VAT). services like waste collection. Since 2006, the property tax has been distributed Cities concentrate high added value businesses, into Communes and their revenues go directly industries, trading and services. Over 70% of and fully into Communes. businesses are located in the cities with more than 20 000 people. This concentration is greater However, Communes are still far from being regarding important and formal business which set up most of time in big towns, especially in urban policy should consider how to achieve this Antananarivo and in Antsirabe. autonomy,fiscally and through financially the real autonomous. decentralization, The future so as local Community could take on its development. This business concentration explains the cities’ economic weight. It makes the cities more attrac-

6.2. STRENGTHENING AND IMPROVING ACCESS TO HOUSING FINANCE

dequate housing is becoming more and are essentially from the private sector employees, more inaccessible for the Malagasy people and some high professional category of public Afor the last twenty years. The public functionnary. the building of functionary housing. Successive governmentsfinance for housing since is1972 dated have from tried the 1970’s,to solve with the access to housing. They are more and more repre- housing problems by many various programs. But sentedDespite during difficult events economic, and show banks which are arefacilitating promo- these solutions were rapidly out-of-dated because ting housing like the Habitat Exhibition. On the of the population growth and problems from big other hand, there is more and more interest of changes in society, political and economic cyclic the middle-class population to the property loans (as the upper-class and the upper-middle class do crisis, which have slow down the economic not need loan for housing buiding even for land national crisis, from global financial and economic purchase). on the private sector. growth. Thus, the housing finance entirely relies Furthemore, the partnership convention begins - 24 cial institutions have been emerged for people in institutions and the property developers. This greatSince towns.a few years The targetago, financial market offersof the from home finan loan conventionto be set upaims gradually to offer cheap between housing the to financial citizen. URBAN ECONOMY

The application of the preferential rate is optional The properties’dynamism have given some

neglecting a precautionnary credit. The loan Therefore, the interest rate become closely coulddepending be for on example the financial released institution, to many sections, without alignedcompetitiveness and does vary within between financial 10% institutions.to 18% per depending on the site building’s progress. year (depending on credit duration up to 10 years to 20 years). 6.3. SUPPORTING LOCAL ECONOMIC DEVELOPMENT

ocally, there were many achievements done National Inclusive Finance Strategy and Action in order to support micro and small enter- Plan (SNFI) has been developped for 2013-2017, Lprises in urban areas, but without any consi- which does target these categories of economic deration to the informal operators. These inter- agent (considered as MMPE category).

ventions have been affected the following fields : building(1) financing and ofknowlegde investments, strengthening (2) improving of access small businessmento microfinance (in for management small-scale andunits, technicality) (3) capacity , and (4) institutionnal support.

In order to reduce the informal activities, the - tutions), in partnership with the Ministry of Economy,financial sectoris developping (banks andprovisions microfinance so as to insti put

in the informal entreprises into financial services. Regarding especially the microfinance sector, the 6.4. CREATING DECENT JOBS AND LIVELIHOODS

Employment (in 2008), and the Country Program businesses closing because of political for Decent Employment (in 2010). Dcrisis,espite the significant unemployment job losses, urban due rate to remains relatively low, from 4% to 7%. As an Next to that, Madagascar has set up national explanation, 80% of unemployed is working structures to ensure the implementation of these informally. programs, such as the High National Council for the Employment Promotion and for Poverty In order to maintain job creation goals, the Reduction, and the Employement and Training country has developed the National Employment Observatory. As results, these programs have Policy since 2005. The strategic lines of this policy enable the creation of 56.000 jobs through the are: business generating projects, the partenership building with private and public, and establishing Promoting and fostering a positive envi- - ronment for growth, for investment and for gration and reintegration to formal employement. − employement; a specific fund with microfinance sector for inte Supporting the private sector, which is the lea- At Commune’s and Fokontany’s level, there were ding actor in unemployment reduction; development operations of public and community infrastructures, which have employed important − Improving the education and professional labor-intensive services, for vulnerable groups, in training access for informal workers and rural − workers, so as to get better productivity; Promoting the income-generating activities Now,context there of very is a new specific framework projects. that is the National and the employment-generating activities; Plan for Employment and Training (PANEF), − Facilitating the access to employment for running from 2015 to 2019. Its strategic areas are: vulnerable groups. (1) creating of productive and decent employe- − ment opportunities for active people with low This Policy does integrate with the DSRP, the MAP, employability, (2) improving productivity and and the National Youth Policy (PNJ). For its imple- employment promotion of young people in prio- mentation, three programs have been carried out: rity sectors, and (3) a well-functionning labour the National Support Program for Employment and training market. It should be mentionned (PSNE) with International Labor Organisation that all the actions under the PANEF show the (ILO) in 2006, the Sectorial Program for Promo- synergy and the complementarity with those of tion and for Economic Growth through Decent the National Development Plan (PND). 25 National Report — Madagascar, Habitat III 6.5. INTEGRATE URBAN ECONOMY IN NATIONAL DEVELOPMENT STRATEGY

n economic development, the last twenty years In this regard, development policies paid less have been characterized by a series of three attention to secondary and tertiary sectors, which Inational policies resulting through three poli- are located in urban and suburban areas. There tical crises (1996, 2002 and 2009), so three regime is less contribution of industrial sector, not more than 16% of national GDP. While, the GDP of trade the Government adopted the Framework Paper in goods is swaying between 25% to 60% for the ofchanges. Economic For Policythe first (DCPE), period whichfrom 1996characteristic to 2001, last 20 years (except for the two crisis years of is the State withdrawal from production activi- 2002 and 2009, where GDP values were negative). ties, and the expansion of free enterprises. From 2002 to 2006, there was the Strategic Document For 2006 and 2013, the gross GDP generated for Poverty Reduction (DSRP), whose strategic in urban areas were each 66% and 65%. The - - cial liberalization and give a prominent place to tion (particularly for small businesses) and of directions strengthen the economic and finan informal economy is a significant part of produc State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment private sector, as the engine of economic growth. employment, up to 24% of the national GDP. At last, the Madagascar Action Plan (MAP), deve- loped in 2008, and should be running into 2012, Generally, the development of favorable business has emphasized the agribusiness sector. Unfor- climate for private sector and for foreign direct tunately, the 2009’s political crisis has made end investments is being among the priorities of to the MAP. the State, through elaborating, improving and applying all legal and regulatory frameworks All these development policies and strategies governing the secondary and tertiary sectors. It

MEPATE have established that the agriculture is the main must be noted that measures taken to that are still growth sector. This concept results from national incomplete and not perfect, such that the Mada- statistics indicating that (1) the rural population gascar’s score in doing business ranking is not made up of farmers represented more than ¾ of good (148 of 189). total population, and (2) the agriculture sector has made about 28% of National GDP. Then, deve- lopment initiatives were spending in rural areas, especially in agriculture.

6.6. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

esides the issues mentioned above (on and to social tensions that are also used for poli- governance and on legislation), it is also tical purposes. B - cial of Municipality, while preparing, implemen- Regarding the obstacles, the weak coordination ting andnoted monitoring a few shortcomings of the budget relating : to finan among all stakeholders in employment promo- tion should be emphasized. This has led to a Unrealistic budget resulting to a difference rapprochement and a partnership failure between between the forecast budget and the adminis- them. Furthermore, programs undertaken have − trative account ; faced to weak guidelines for the target groups Incomplete and inaccurate budget informa- such as young workers, with or without quali- tion; − due to funding constraints of programs. Another Delay and failure on management (for exa- fication, persons with disabilities, and women, mple when preparing the administrative updated database on employment and training, − account) and the procurement’s procedures ; soimportant that it is difficultyhard to measure involves the lack achievements of reliable and Lack of spending chain control. all needs to be covered. At the same time, it should be mentioned that the− urban poverty rate ranges from 40% to 60%. Lastly, the political crisis destroys efforts of many Otherwise, this rate for Antananarivo is more successive programs. than 65%. Most of big cities in Madagascar display openly social distinctions that led to segregation 26 URBAN ECONOMY 6.7. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

onsidering these facts, the main challenge previsous challenges (about legislation and youth related to urbanization consists in making needs), Madagascar undertakes to : Cthe urban economic growth. Besides the

Challenge 1 : Promoting entrepreneurship and employment generating sectors

To do this, it should be:

To implement the National Action Plan for To make investments in education and job Employment and Training ; training ; − − To establish a preferential rate for the creation o To create productive and decent job of youth jobs ; opportunities for workforce with low − employability ; To consider the spatial dimension of these actions ; o To improve the productivity and the − To put at national level the Observatory of youth employment promotion in pri- Employment and Job Training and to improve ority sectors ; − the employment database at all cities. o To ensure the well-functioning of labor and training market.

Challenge 2 : Securing economic investments (private and public) against urban risks It comes to:

Set up a national policy for stability; Capitalize and ensure continuity of economic − achievements for the investments ‘securing ; − Set up an insurance system of private invest- ments against such risks. − Challenge 3 : Promoting competitiveness of cities at a national scale

This challenge is to:

− Promote and support the decentralized − Do awareness campaign so as to change cooperation in urban cities; cities, especially among youth so that they will become “city changer”. − Promote private sector’s participation for the urban development ;

Challenge 4 : Formalizing and structuring the informal sector

For Madagascar, this is to:

− implement the transition from the − Do awareness campaign for informal informal sector to the formal economy ;

− Strengthen the local economy and the − Simplifyactors and the make administrative them fiscalized; procedures for informal production units.

− Undertakelocal finance the ; reform of the banking - 27

system: improve access to financial ser vices, regulation of finance services, …. National Report — Madagascar, Habitat III

Challenge 5 : Improving the business climate

To doTo so,improve the country the credit’s as defined access the for following private ope guidelines:- To improve the service quality of Administra- rators, in particular for SME’s; tion and reduce administrative procedure. − − ; − To continue efforts in fight against corruption Challenge 6 : Strengthening employment-training matching

To meet this challenge, the country undertakes to:

Develop the professional capacity and the o Improve the exchanges and relationship employability of youth, in particular of disad- between employment offers and demands − vantaged young people; ;

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment Ensure the matching employment-job trai- Supervise the young people and beginners, ning , by identifying employment needs; mostly about attendance ; − − Promote the educational programs to develop o Establish the integrate planning job-edu- life skills since a young age. cation; − o Make a prospective analysis for students by profession; MEPATE 7. HOUSING AND BASIC SERVICES

7.1. SLUM UPGRADING AND PREVENTION

ccording to UN-HABITAT, slums are settle- Politically, the Land Policy Letter in 2005 has been ments areas, where one of the following adopted, recognizing the existence of the untitled Aservices are failing : (1) sustainaible private property, and establishing the security procedures of land tenure. Although the achieve- drinking water, (4) improved sanitation,and (5) mets of this policy have most affected rural areas, tenure’shousing, security. (2) sufficient living space, (3) safe this system could be adjusted to urban context, in particular where this land polic is being revised Therefore, the percentage of people living in slums and strengthened. is given by the number of people sharing the same house in these areas. Based on available data, this In 2006, the National Policy of Settlement has rate is estimated at 72% in 2010. However, this also been adopted. Two strategic directions of proportion varies between cities. For Antanana- this Policy are aimed at improving slums. In rivo, informal settlements reach 60% to 70% of this regard, here are its achievememts : in 2011, buildings. In coastal towns like Manakara , 75% Madagascar, with the support of UN-HABITAT has of homes are traditional and not quite decent (in 2007). Then in Moramanga, about 65% of - households are living in precarious housing and nanarivo,developped Moramanga the National and Urban Manakara. Profile The and Parti the- informal settlements. cipatoryLocal Urban Slum Profiles Upgrading of three Program(PSUP) cities such as is Anta still being implemented. The data are disparate and it is hard to measure the phenomen, because of lack of precision in Madagascar was also provided by the implemen- housing census. The lack of multidate indicator tation of operational projects on slums. There does not allow to follow the phenomen’s evolu- may be mentionned the Integrated Local Project tion. Nevertheless, all malagasy cities are charac- in Antananarivo, Moramanga, and Tulear with terized by the slum’s proliferation. It appears as UN-HABITAT and the “Lalankely Project” with precarious housing, and poor quality of the urban the French Development Agency (FDA) that is fabric. a project for opening up and for development of precarious settlements in Antananarivo’s Actions done in slums were quite various, such as agglomeration. There were also projects initiated 28 upgrading, prevention and eradicating. by cities and their own partners such as the Deve- HOUSING AND BASIC SERVICES lopment Neighborhood Project in Toamasina, the Lastly, public housing projects and some NGOs realase at city entrance road in Antsirabe. have also given solutions to this slum phenomen. Homeless households have been able to leave The recipients cities of these projects have expe- their slums to live in more decent environments. - Theses projects have been implemented in big tionnal plan, towards the improving living envi- towns like Antananarivo and Tulear. ronmentsrienced significant of people results in slums on strategic and opera

7.2. IMPROVING ACCESS TO ADEQUATE HOUSING

he housing is one of the fundamental right The adoption of the “National Policy of Sett- of each citizen, according to the Universal lement” in 2006 has emphasized the social TDeclaration of Human Rights and the housing promotion and the housing access Fourth Republican Malagasy Constitution. In fact, for population. the housing’s right, and the Government’s role for However, with this Policy’s implementation, it easyfor the accessto first time, housing the Malagasy to all citizen. Constitution states for poor people. Indeed, housing production have At the present rate of the urban growth, the focuseddid not more provide on significantluxury housing impacts for the on last housings years. housing demand is increasing to meet new needs, resulting from newcomers and young households, Housing for poor is a matter of NGOs and projects from the gap and to slum’s resorption. Given to the such as UN-HABITAT, ENDA OI, Habitat for Huma- quite small. The public housing offers provided bysignificant SEIMAD demand, and ANALOGH the housing are negligible. offers seem It barely to be Innity, 2006, AKAMASOA only 59% Association, of urban populationetc is living reaches one hundred housing, that are mostly in adequate housing. Therefore, so as to provide located in big towns. They are inteded to the solutions to the people’s needs, including all upper class, except for the recent social housing stakeholders (private, public,…), the Government project named “Trano mora”. has set up the National Policy of Housing. Actually, this policy is now nearing completion.

7.3. ENSURING SUSTAINABLE ACCESS TO SAFE DRINKING WATER

he Malagasy Government has taken on to implementing decrees, has been adopted in 1999, achieve the Millenium Development Goals which is now being revised. Ton access to safe-drink water. To do this, a set of legal frameworks and regulations has been It must be noted that programs and actions gene- adopted, in order to promote this universal access rated by this Water Policy were quite late. The to water since 1996. The starting point has been the Water Policy in 1997, whose main objective Sanitation (PNAEPA) began in 2005 for a three- is to improve the use of water resources, through yearfirst Nationalperiod. TheProgram second for phase Safe Water started Supply in 2008. and providing adequate drinking water supply last twenty years was the creation of the Ministry do aim to improve the water supply rate and ofThen, Water the in most 2008. significant Despite such achievement political will, of the theservices. water Thequality, specific responding obectives to drinking of this Policywater budget provided to the Ministry is still small, by standards. Thereafter, the Water ‘s Code, with its 2% of the State Budget. 29 National Report — Madagascar, Habitat III

From 2005 to 2012, the water supply rate in suspension of important projects on water and urban areas remains constant, by 61%. It should on electricity with the support of the European be noted that only 18% of urban household did - have a private connection to water in 2011 and for dence starts to come back gradually, so that it is Antananarivo, this rate was 17%. As a result, most possibleInvestment to considerBank (EIB). recovery Now, ofthe major partners’ projects confi to of citizen are daily collecting water to standpipes, improve access to drinking water. that is a hard work. Beside the JIRAMA, other private initiatives, Despite some improvements on institutionnal working like projects, have emerged, whose are and legal plan, the most problematic on drinking reaching more the suburban areas. Although water supply lies on JIRAMA’s inability to expand their few numbers, these projects have in some way met the gaps and services not provided by water and electricity in Madagascar. In fact, most JIRAMA. About this, it should be emphasized ofits network.the existing The infrastructuresJIRAMA is the firstdates producer from the of that the legal frameworks on the water sector do colonial period. The State Company JIRAMA has not yet promote competition between providers within a Commune. are not yet resolved. The 2009’s crisis has led to faced financial difficulties for many years, which State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment 7.4. ENSURING SUSTAINABLE TO BASIC SANITATION AND DRAINAGE

- 2009. But, the resullt is not yet good. It should be ties for urban sanitation has been set up MEPATE Tinhe 2005.first legal There framework are royalities on feeson household or royali crisis. waste (ROM), wastewater charges (REU) and done recovery measures after these five years of royalities for the control of sanitation facilities. In 2006, 69% of urban population have access to regular sanitation service. In 2013, this rate cities provided by JIRAMA. is about 62%. The use of modern toilets rate The two first royalities have already existed in is only 28% in urban centers. It should also be In 2008, the National Policy and Strategy for Sani- mentionned the important use of dry well. For the tation (PSNA) has been adopted. According to this Antananarivo’s Commune, ¾ of households still Policy, three actors are involved in sanitation. At use this kind of toilet. For the suburbs, the percen- national level, four Ministeries are collaborating that are the Ministry of water, of sanitation and defecation in Antananarivo’s agglomeration, and of Hygiene, the Ministry of Country Planning, the 12%tage isin by Tulear. 95%. One in five persons still do open Ministry of Public Health, and the Ministry of Envi- ronment. At regional level, the Region is acting as Regarding the waste management, 21% of urban a Decentralized Collectivity and as the leader of population has acess to regular waste collec- technical decentralized services. And locally, the tion in 2013. The waste management involves to Communes are involved as project owner. They Muncipality. This service is regular whether the may form an OPCI and set up their sanitation Commune has resources needed and provides and maintenance service. The Commune of Anta- regularly the service. So, the problem lies rather nanarivo has already implemented its sanitation on management than on waste. The problem is service called SAMVA. manifested by waste’s accumulation on streets

In practice, the many private and public projects have improved sanitation in cities, from 1996 to and existence of unregulated landfills or open landfills.

30 HOUSING AND BASIC SERVICES

The waste disposal is also not well-organized a sewerage system. In big towns, the wastewater in cities. 32% of households depend on public management involvesindependent systems, or collection in 2005, and 17% in 2010. This public surface spreading, or spilling in rainwater. The collection is the most common in Antananarivo sewage system is worse in the secondary cities. (37%) than in other cities (14%). Unfortuna- tely, 38% of urban households has thrown their The sewerage networks are usually very old, waste in nature in 2005. This rate has decreased sartured, poorly maintained, and in a degraded just slowly in 2010 (36,5%). And the hospital and state. To this, there is illegal occupation built on industrial wastes are still awating for solutions. sanitations facilities, being the main cause of insa-

Regarding the sewage and rainwater evacuation, less than 30% of urban population are served by lubrity and flood risk.

7.5. IMPROVING ACCESS TO CLEAN DOMESTIC ENERGY

- introduced in some neighbourhoods of Anta- gasy household is using two kinds of energy nanarivo’s Commune and in some surronding Firstly,for domestic it should use be : specifiedthe combusting that the energy mala areas, the solar street lights. Furethermore, the and the lighting energy. provided by JIRAMA. In cities, charcoal is the main source of combus- offloading is a common phenomenon of alls cities ting energy for 90% of households. The gas is only The problems of energetic sector are the same used by less than 2% of poulation. This important to those of water-drinking, and do involve from charcoal consumption has led to losses of rain- forest in the country. Regarding the adoption of technology with high energetic performance and the deteriorating financial performance of the ecologically rationnal (commitement on HABITAT II), the Environmental Program III (EP III) for 2004 to 2009, has working for improving the

as : (1) improving carbonization methods (from 10%energetic to 20% efficiency, of wood-energy through performance), two actions suchand (2) promoting less consuming practices of wood fuels. Nevertheless, the achievements are not - sure on forest, neither the charcoal’s consump- JIRAMA. So, the low access to electricity is due to tion.sufficinetly significant so as to reduce the pres any further investments on the electrical network extensions. Moreover, the company has dropped its performance due to increasing technical and compared to the African Continent. The access to - electricityMadagascar in uran has areas a low was electrificationby 39% in 2010, rate if city and low recovery rate. Besides, there is the it was 48% in 2007. For 66% of malagasy cities, increasefinancial oil losses, prices, resulting while the from electricty theft generation of electri only less than 50% of population are connected system involves on thermal which is being more to the electricity network. For the street light, 5% and more expensive. of cities are well-lighted. Very recently, it has been

7.6. IMPROVING ACCESS TO LIVEABLE TRANSPORTS

n Madagascar, there are many transport modes organisation and on passenger public transporta- in cities, depending on local characteristics. tion has been adopted. In 1998, the country has IThey could be sorted in two types, that are initiated the organizational standards on public motorized transport (individual as well as collec- transport such as urban and suburban transports. tive, lightweight or heavy) and soft transports In 2005, a new act on principles of land transport (two-wheeler, conventionnal transport, walking). policy has been promulgated. The Land Transport Agency has also been set up. Soft transports are the most commonly used (by 70% in Antananarivo), and after the public trans- In urban areas, the transport is provided by port (22%). private actors grouped together into coopera- tives, which also form the Union of cooperatives. Madagascar has privatized the transportation This system involves many transport modes such services for passengers and goods in 1995. In the as minibus, taxi,rickshaw and pedicabs, etc. 31 same year, the legal framework on land transport’s National Report — Madagascar, Habitat III

From 2006 to 2013, the percentage of urban Traditional transports (like rickshaw and pedi- population with access to public transport(1) has cabs, wagons, carriage, etc) are more affordable progressed from 34% to 40%. for most of the population. With walking, these transport modesare alternative to urban conges- tion. Cities, where these mode are quite wides- pread like Antsirabe, Toamasina and Diego, have 1 Noted that due to missing data, this indicator has been given from been able to implement regulations and to forma- two assumptions: the public transport access is considered as the availability of lize the traditionnal transport. They are providing transport system, organized or not, affordable or not, and the system does cover the urbanized area of the city. good examples for other cities.

7.7. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

t should be recognized that slums are being It is also noted the lack of an integrated manage- part of urban ills, causing many other problems. ment system of the four sanitation components in

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment IThe emergence and the extending of slums are most of cities. linked to the poor control of self house building, to the binding and/or low-popularized regula- Afterwards, the JIRAMA’ restructuring is not tory frameworks, to the lack of planning tools and forthcoming. The company is accumulating their poor implementation, to the delay on urban investments delay, therefore its infrastructures infrastructures in particular on servicing, and to are no longer maintained nor extended. The the lack access on land and housing. JIRAMA only covers 67 of the 172 cities.

MEPATE Yet, slums are also one of the land crisis expres- sions : long and expensive registration proce- dures, registration and transaction formalizing problems, excessive parcelling related to succes- sion and sale, illegal land occupation belonging to State or to any third party, unreasonable land prices that exclude the poor and middle classes.

- rious housing contructions combine mainly with massiveThe National use of Urbanrudimentary Profile and states low thatcost precamate- For transport, users often complain about the rials. This is related to urban poverty and some- poor service of public transport, while the price times in culture and traditions. is always increasing. In organizationnal terms, the urban and suburban transport cooperatives and Regarding water, sanitation and hygiene, the the transport lines are in wasteful and unneces- sary competition, because of inadequate coordi- II commitments is the small public investment nation and lack of a collaborative planning of the inmain the sector. obstacle to the fulfillement of HABITAT transport system. Antananarivo is suffering from

Besides, there is a legal and political vacuum in jams, poor service, and road insecurity. this area, especially regarding the National Fund bad results of the system’s failure, through traffic for Water Resources (FNRE), the decentralized management of water and sanitation systems, the traditionnal transport is still very widespread. planning and the monitoring of investments to ThisIn other mode cities are which yet human are topographically powered, and flat, some the- be sustained and the management of industrial, times seen as not complying with human rights. mining and hospital wastes.

7.8. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

or the next twenty years, Madagascar has to These area “Housing and urban services”contains face to three main challenges : the urban rate the greater number of futures challenges. Mada- Fgrowth from 4% to 5% by year, which take gascar is therefore is committed to the following place into slums (more than 90%), so as that 72% challenges : of urban population is living now in slums. Then, there is the poor access to urban basic services, in 32 particular to water and sanitation. HOUSING AND BASIC SERVICES

Challenge 1 : Upgrading slums and preventing slums’ proliferation country will : Besides the challenges identified in previous parts (on urban economy and urban planning), the Reproduce in other cities the successful pro- Implement the public housing program. jects about upgrading and rehabiliting slums ; − Plan extension areas by approriate standards − and procedures ; − Challenge 2 : Improving access to safe water-drinking

Then, it should be :

Complete the revision of the Water Code and Promote the integrated management of water incorporate the new initiatives in the Water resources ; − Policy; − Encourage the recyclying and re-using of Increase the public funding allocated to the wastewater and take incentives for clean and water and sanitation area; − saving methods, techniques and processes of − Restructure the JIRAMA ; water production. Implement the integrated Water and Housing − projects and strenghten the interministerial − coordination;

Challenge 3 : Supporting the access to housing and the planned production of adequate, resistant housing, meeting current and future needs

So, it is important :

To support the public program of economic To strengthen the private initiatives or the 3P and social housing or for functionnary; for the production of affordable housing for all − To set up the legal frameworks and partnership − the social classes; in the production of social housing; To set up the strategy, policy, accompanying − measures and legal frameworks so as to faci- − litate the access to housing.

Challenge 4 : Establishing adequate infrastructures, management and regulation system for urban and suburban sustainable transports

For that, it should be :

Promote, regulate and organize the soft trans- Revise the role of Communes on management port; of urban and suburban transport infrastruc- − Improve the public transport services − tures ; (medium sized car); − Promote the mass public transport, in parti- every transport mode; cular in big agglomerations; − ExternalizeWiden the roads the infrastructuresand study specific for spaces intercity for − Develop and implement the Urban Transport transport (bus terminal, multimodal plat- Plan in big cities; − form) and ensure the transport good service in urban centers. − Strengthen and decentralize the Land Trans- port Agency , and extend its missions into − urban transport;

33 National Report — Madagascar, Habitat III

Challenge 5 : Improving access to sanitation

It comes to :

Increase the sanitation and hygiene infrastruc- Develop the partnership with private actors, tures and facilities, based on the urban plans; NGOs and users association; − Establish juste one sanitation service for − Strengthen the communication activites and agglomeration (like the SAMVA); implementation of regulations for a real chan- − Rationalize the sanitation institutionnal − ging behavior; system ; Ensure the real application of the polluter − Make effective the Communes ownership on pays principle and generalize the sewerage infrastructures management, by using the − fees, even though for commuters. − management delegation; Develop the sanitation technologies, adequate treatement and recycling, re-using and dis- − State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment posal of wastewater and wastes; MEPATE

34 LAND TENURE URBAN

8. LAND TENURE URBAN

8.1. IMPROVING SECURITY OF TENURE IN LAWS

ince the 1990’s and the early 2000’s, the The Land Policy is an incomplete policy, although country’s commitment to the decentraliza- it displays equity objectives. The land security is Stion policy has made changes in land tenure the central hub of the Land Policy Letter in 2005. security procedures. In 1998, it was brought the - Relative Land Tenure Security (SFR), which is one sion on land values, on land use and on appropria- process step into land registration for areas with tingThis land.new landIt formalizes policy does local reflect land rights,the State’s that decihave renewable natural resources. Then, the new Act not been recognized before, such as the private in 2003 has provided further measures that stipu- act registered by decentralized structures like late the involving of Decentralized Collectivity, Fokontany and Commune. It also strengthen the such as Communes, in the land registration proce- generalization process of land ownership. There- dure, either at its opening than at its execution. fore, there are two agencies involved in land secu- rity in Madagascar, but with mixed and selective It has taken many decades for the country to results. undertake the reforming of the land system ; that is called the “2005’s land reform”. The starting In urban areas, there are some land rights : of this reform is the setting-up and the adop- tion of the Land Policy Letter in may 2005. This Between 50% to 70% of private property are policy is based on deletion of the presumption of registrered; public land, which comes with the reposition of − 14% of titled land in urban are on behalf of the prominent role of State in land system. The women. − have surely been the decentralization of the land In the new land legislation, the common and management.most significant The component conclusions of the by reformthe reform’s would collective property is recognized and there are reviewers (in 2011) indicated that the decentra- clear indications for the management and for the lization process has mainly promoted the rural maintenance of common areas of these property. area, in order to secure farmlands. The land Likewise, the now legislation recognizes the long- reform is no more really interesting in urban and term and unopposed occupation of public land suburban areas. and private land.

8.2. FACILITATING THE PRODUCTION OF URBAN LAND AND THE EFFICIENCY OF LAND MARKET

he actions in land urban’s production and rity responsible for the land market regulation, the market land’s regulation involve to for example through coordination of the actors TMinistry of Country Planning. In urban areas, these actions are made of land planning of the property taxation, .. operations, like subdivision, housing production, working in the field, market control, assessment land development (land ready to build on). Subdi- Therefore, the market is automatically based visions are mostly undertaken by private actors, on the law of supply (pratically monopolized by excepted to some housing programs implemented private actors) and demand, in other words, on by the Government through parabublic instutions. the existence of heavy speculation on land market. Then, land planning operations are not numerous The market price is generally set by supplier, and in urban and suburban areas. This situation is know good and bad business through their expe- Local Collectivity to undertake the rehabilitation riencies,influenced and by havereal estate better agencies. speculating, These since agencies they andnot surprising,the extension given of theinfrastructure difficulty to networksState and toin are paid proportionnally to transaction’s value cities and agglomerations. between the supplier and the purchaser.

The urban land market is regulated by urban legis- Consequently, the land price keeps increasing and lation. Once again, the poor application of the text does explain the prevalence of the unregulated the private actors in the area (in particular the - propertythe market developper). only profits to the upper class and 35 land offer. Moreover, there is no specific autho National Report — Madagascar, Habitat III

The promotion of the rental housing is consi- housing stock is assigned to rental housing. And dered as an alternative to the widespread access more than 80% of (very) low-income households to individual property, especially to low-income have only renting’s solution for access to housing. households. In fact, this rental sector contri- In short, the urban land market is very unba- one necessary step for many urban households, lanced, due to lack of urban land production. beforebutes significantlyowning its housing. to market About regulation, 60% to 70% and of is However, the market is dynamic, meaning that some altenatives not necessary legal are involved in, such as : excessive subdivision, urbanizing of

Veryrice fields, recently, exorbitant in agglomerations land price, ….of Antananarivo and Toamasina, the land market and the urban land production are invaded by not regulated offers , from so-called “subdivision operations”. But they are just land production, without servi- cing and without compliance with planning regu-

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment lations.

8.3. ENSURING INTEGRATION OF LAND POLICY INTO URBAN POLICY AND HOUSING POLICY

he housing area is governed by three legal The trilogy “Land, Urban and Housing” relies on

MEPATE frameworks , that are: integrated analysis of theses areas, since they are T always in crisis : uncontrolled land market, lack of The Urbanism and Housing Code in 1963; housing, low capacity of cities. The National Policy of Country Planning in −2006; It is already ackowlegded that there is the dual role of cities : as engine of growth and as urban − The National Policy of Settlement in 2006. services provider. Therefore, the new Urban −The three Policies (on land, on urban and on National Policy is being drafted, while before the housing) are interrelated. The Land Policy, the urban sector has been forgotten because of the most recent, was set up in 2005, while the urban National Rural Development Policy. policy and the housing policy have not yet been established. Otherwise, the National Policy of Locally, the urban planning tools (urban master Country Planning and the National Policy of Sett- plan and urban detailed plan) act as a local urban lement are used to reference frameworks to all policy. These tools identify the strategic orienta- public interventions in these areas. tions and the regulatory measures for a real deve- lopment of the city. For those who do not have Being aware of the issues resulting from this lack the urban plan, the municipal services and the of policies, the Ministry of Country Planning has technical services of Planning have to refer to the recently set up the National Policy and Strategy Urbanism and Housing Code, for any urbanism- of Urban Development and the National Housing permits. Policy, along with the review of the National Land Policy.

8.4. CHALLENGES EXPERIENCES AND LESSONS LEARNT IN THESE AREAS

here are many strong distortions on land despite the fact that guidelines on land security market and on urban land production in have involved these areas. TMadagascar. To the main question “has the Malagasy State established a framework so There isn’ t the mercurial nor the argus which as to ensure the land market and the urban land provides the land prices. Such document is very production ?”, the answer is “no”. important to regulate any land investment for a given area. It belongs to the Government to set up The land policies (before and after the 2005’s this mercurial at least for all urban Communes reform) have not provided guidelines, to improve in Madagascar (average, minima and maxima 36 the land market and the urban land production, prices). LAND TENURE URBAN

Another shortcoming of the system is also the for all”. Noted that the environment and the complexity of land disposal procedures, that may frameworks where these actions shoud be under- foster the corruption. The actual process does not taken, have not been favorable to the project of provide transparency, neither regularity of any public affordable housing. Besides that, there is land transaction. Failing to this mercurial, there the increasing of precaurious housings and illicit is no clear process for assessing the real estate. occupation, but no measures have been taken Therefore, the value to be declared and to tax is for this situation. On the other side, the private always being lowered, with the connivance of the sectors on property promotionare also expanded, land public services and the tax services. although it works in informal economy and is not also organized. Regarding the rental, there is no longer any system for rent. The offers are quite different. The rent or bad) quality. It is given by the owner, depends ondoes where not the necessarely house is located reflect the(there housing may be (good very different values for two similar houses in the same Fokontany).

Actually, the Public Authorities are not unable to control nor to boost the land sector. Therefore, the rental housing is still evolving into anarchy, as well as the self house building. At last, it is known that the land Policy, the urban It should be noted that the public affordable Policy and the housing Policy are still poorly arti- housing has been totally ignored in the National culated, that’s why there are real delays in these Policy of Settlement. Unfortunately, all policies areas. and strategies, and actions plan have not been driven by a real will to promote the “ housing

8.5. FUTURES CHALLENGES AND ISSUES IN THESE AREAS

he following challenges have been iden- - Tment. tified to improve the urban land manage Challenge 1 : Mastering the urban land management

To meet this challenges, the country should :

Ensure the consistency between administra- of the Land Administration; tive acts on public land; − BuildEnhance the themanagement efficiency capacityand the transparencythrough trai- − Regulate the sale of public land through iden- ning ; − Revise the legislation on expropriation, and − for urban land. add some measures for BOT process ; tification of specific assignments procedures −

Challenge 2 : Improving land tenure security

Madagascar should :

Adopt the new tax incentives, even the sanc- Popularize the land legislation; tion measures in order to force owners to Professionalize the transaction and the − secure their land; − transfer operations through Notary. Simplify the transactions and inheritance − procedures; − 37 National Report — Madagascar, Habitat III

Challenge 3 : Modernizing the land management by the e-land

It comes to :

Set up the urban development agency, whose Network the public services through digital main missions is on land and urban develop- transition and land data exchanges using − ment; − Internet; Set up the single-widow system for all ser- Ensure the land numeric data availability vices involved in land security, in the context and the full topographic surveys for all urban − of close land management ; − Communes.

Challenge 4 : Facilitating the land urban production and regulating the land market For this challenge, it involves to :

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment Establish the mercurial or the argus for each Ensure the land production through many urban area; tools : development zone, operations for − Strengthen the provisions on land production − national interest, etc. for public services; Set up the legal framework on urban under- − ground. − Challenge 5 : Promoting the land and the urban profession, through the contribution of universities. MEPATE

Challenge 6 : Aligning the land policy with the other sectorial policies

Madagascar has to :

Ensure the consistency, and harmonize the Set up the acccompanying measures in sen- procedures and the working tools within : sibilizing and popularizing of planning tools − urban, land, decentralization, housing, habitat, − and land data; so as to set up a single reference framework; Coordinate the support of donors for better outcomes. − 9. URBAN INDICATORS

he following table summarize the urban indicators that have been recorded in 2006, Tand in 2013, and to be achieved in 2036. Considering all the previsous challenges and issues, the country would propose introduction of four other indicators for urban management. There are :

Percentage of laws and regulations made effective, on urban management ; − Percentage of investments spendings made by local and regional collectivity from their own − budget ; − Public investment rate in urban areas com- pared to national public investments;

− Percentage of Budget Law elaborated after 38 consulting the Decentralized Collectivity. . URBAN INDICATORS

2006 -2013 Indicators N° Indicators Indicators Indicators objectives 2036 2006 2013

1 Percentage of people living in slums 91% 72% 25% (2001)

2 Percentage of urban population with 59% ND 75% access to adequate housing

3 Percentage of urban population with 63% 61% 95% access to safe drinking water

4 Percentage of urban population with 69% 62% 95% access to adequate sanitation

5 Percentage of urban population with ND 21% 90% access to regular waste collection

6 Percentage of urban population with 42% 35% 75% access to clean domestic energy

7 Percentage of urban population with 34% 40% 70% access to public transport

8 Level of effective decentralization for sustainable urban development is measured by :

Percentage of policies and legislation 8a urban issues in whose formulation local 31% 32% 100% and regional governments participated from 1996 to the present

8b Percentage of laws and regulations 90% made effective, on urban management

Percentage share of both income and 8c expenditure allocated to local and 3% 5% 20% regional governments from the national budget

Percentage of investments spendings 8d made by local and regional collectivity 30% from their own budget

Percentage of cities, regional and national authorities that have imple- 9 mented urban policies supportive 29% 37% 75% of local economic development and creation of decent jobs and livelihoods

Percentage of cities, regional and 10 national authorities that have adopted 14% 46% 90% or implemented urban safety and secu- rity policies and strategies

39 National Report — Madagascar, Habitat III

Percentage of cities, regional and national authorities that have imple- 11 mented plans and design for sustain- 16% 20% 90% able and resilient cities that are inclu- sive and respond to urban population growth adequately

12 Share of national gross domestic product 66% 65% 70% (GDP) that is produced in urban areas

Public investment rate in urban areas 13 compared to national public invest- 50% ments

Percentage of Budget Law elaborated 14 after consulting the Decentralized 100%

State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment Collectivity MEPATE

40 CONCLUSION 10. CONCLUSION

his national report gives a concise overview of the progress in Madagascar, comparing important urban challenges are the following: Twith commitments made during HABITAT II society has to mobilize. The seven (07) first and in 1996. It also describes the problems and obsta- − cles which have caused the delays, and draws up challenges and issues for the next twenty years. − MasteringUpgrading thethe urban slums land and management;preventing the pro-

− liferationEnsuring theof slums; compliance and implementation The UN-HABITAT’s general guidelines require the analysis of six key topics in the National Report. However, after the National Habitat Committee’s − ofPromoting urban planning the entrepreneurship documents approved; and employ- decision, the Madagascar’s Report should empha- size another topic that is the urban land. That’s the reason why this report is structured into − ment generating sectors; seven topics. − HavingImproving responsible the access citizens; to quality health ser- In general, the results have been mixed: the achievements are rather focused on political and institutional issues, but not being translated − vices,Promoting including the ecological reproductive cities health; (eco-cities). into operational actions and tangible results. The At last, the National report is very timely. The some of them have been even decreased. outcome of urban development does coincide urban indicators have not significantly evolved; with the twenty years of the decentralization’s On one side, it should be mentioned that the cyclic policy, the ten years of the land’s reform and of political crisis has wiped out the efforts, to all the renewal of the land planning. Therefore, from sectors involved in the urban. theses progress and delays, it has been possible to assess the issues in urban development, and then Besides, prioritizing of the rural development, of to revive the urban sector in Madagascar. social actions, and of the environmental protec- tion has for many years penalized the urban development.

Therefore, the urban stakeholders have acknowl- edged the need for an integrated urban manage- ment. The issues and the future challenges are now set up so as to promote the cooperation and the actions’ coordination of involved Minis- tries. For the next 20 years, interventions in cities results on living conditions of the urban popula- tion.will focus on actions that will provide significant

The National Habitat Committee and the local and - lenges, to which the Malagasy Government with regional stakeholders identified a series of chal the technical and financial partners and the civil

41 National Report — Madagascar, Habitat III State Ministry of Presidential Projects, Projects, State Ministry of Presidential Country Planning and Equipment MEPATE 11. ANNEX

Ministerial Order on the creation of the National Habitat Committee

42 ANNEX State Ministry of Presidential Projects, MEPATE Country Planning and Equipment National Report—Madagascar, HabitatIII ANNEX State Ministry of Presidential Projects, MEPATE Country Planning and Equipment National Report—Madagascar, HabitatIII ANNEX

- TAT’s support. It has been prepared in response toThis the National participation Report of benefits Madagascar from to the HABITAT UN-HABI III.

For more information, please contact

RABE HARIMANANA

Focal Point HABITAT III

STATE MINISTRY OF PRESIDENTIAL PROJECTS, COUNTRY PLANNING AND EQUIPMENT

Anosy 101 – Antananarivo – Madagascar

Mail : [email protected] Site web: www.mepate.gov.mg Madagascar May 2015

State Ministry of Presidential Projects, Country Planning and Equipment MEPATE FOR A BETTER URBAN FUTURE