Documentación de la experiencia

Documentation of experience Documentation de l’expérience

2 Nigeria ð Zambia

Havana 2005 - Documentation of experience SCP/LA21

Sustainable Programme Localising Agenda 21 Programme

United Nations Programme for Human Settlements (UN-HABITAT) United Nations Environment Programme (UNEP)

P.O. Box 30030, Nairobi, Kenya

Tel: +254-20-623225, Fax: +254-20-623715, E-mail: [email protected]

Websites: http://www.unhabitat.org/scp - http://www.unhabitat.org/la21

Impreso en el Instituto de Planificación Física, Cuba June 2005, Nairobi

2 Havana 2005 - Documentation of experience SCP/LA21

Table of content – Table des matières – Tabla de contenido

Nigeria Implementation of the Sustainable Cities Programme in Nigeria 5 Innovating through Sustainable Ibadan Project 8 Sustainable Enugu Project 12

Papua New Guinea National Experience of Sustainable Cities 16

Perú Experiencia nacional de Perú 23 Proyecto GEO/Agenda 21 Local de Arequipa 28

Philippines Applications of the Sustainable Cities Programme Approach in Urban Environmental 33 Governance in the Local Environmental and Management in Lipa , Tagbilaran City, Cagayan 43 De Oro City

Sénégal Programme national d’appui aux Agendas 21 Locaux 52 Agenda 21 Local de Louga 58 Agenda 21 Local de Guediawaye 60 Agenda 21 Local de Matam 62 Agenda 21 Local de Saint-Louis 64 Agenda 21 Local de Tivaouane 67

Sri Lanka Sustainable Sri Lankan Cities Programme 70

Tanzania Implementation of the Sustainable Cities Programme in Tanzania 81

Thailand Thailand National Experience 84

Zambia Role of National Capacity Building Institutions in documenting and mainstreaming 90 Experiences in Zambia Innovating through Sustainable Lusaka Programme 92

3 Havana 2005 - Documentation of experience SCP/LA21

4 Havana 2005 - Documentation of experience SCP/LA21

NIGERIA Implementation of the Sustainable Cities Programme in Nigeria

Mr. Oladunjoye A. Oyewumi, National Programme Coordinator, Sustainable Cities Programme, Federal Ministry of and Urban Development

Abstract of human settlements and environment, but have also greatly accelerated poverty. This paper is prepared for the 2005 Global Meeting of the Sustainable Cities Programme (SCP) and Localizing Agenda 21 The country is currently undergoing fundamental political, social Programme (LA21) Partners, taking place from 26 June to 1 July and economic reforms aimed at stabilizing the economy and 2005 in La Havana, Cuba. The meeting is sponsored by UN- placing the nation on the path of . In HABITAT and UNEP, and hosted by the city of La Havana. The part, the objective of the reforms is to ensure effective service theme of the meeting is “Achieving sustainable – delivery and increase national productivity, thereby reducing Innovations for local and global results” with a focus on poverty among the populace. In its sectoral agenda, government mainstreaming / institutionalization of the Environmental is committed to reinvigorating the urban sector so as to improve Planning and Management concept. its productive and vibrant role in the overall national development. While certain components of the reforms target The paper reviews past urban management practices in Nigeria institutional changes, some aspects focus on attitudinal changes. and takes a look at current efforts at stimulating the urban sector Both aspects of the reform are indeed relevant in the context of and draws lessons for improved performance at the national level. the Sustainable Cities Programme (SCP) and fall within the It notes positive changes and limitations, and makes suggestions domain of the concept of Environmental Planning and on ways to achieve sustainable urban environmental Management (EPM). management. The paper underscores the need for implementation of development projects to demonstrate the veracity of the With respect to matters of the environment, the Nigerian people strategies and popularize the concept of consultation and are sufficiently aware of the fact that the , water, coastlines, engagement in matters of urban environmental management. air and other natural resources in the towns and cities are being rapidly polluted and degraded, creating in the process loss of In the last five years, Nigeria has been pursuing an integrated valuable resources. Daily experience in Lagos, Port Harcourt and approach in the planning and management of its rapid Kano, and the various agitations from the oil producing regions urbanization which has resulted in reviews of the national are a clear attestation to this level of consciousness. However, policies on Urban Development and Housing and the evolution of low level of involvement of the people, absence of effective a –grown National Economic Empowerment and advocacy and inappropriate programmes of development have Development Strategy (NEEDS). The central focus of the further compounded the problems of urban management. strategy is on poverty reduction, alongside sectoral policies on environmental management, sanitation, water, health and Past Approaches to and Management population. Issues of good governance and improved popular participation in governance and partnership with national and Nigeria has been experiencing a very high rate of population international development partners are also being mainstreamed growth and urban expansion. This rapid population growth has into national agenda for development. posed serious problems for physical and socio- because of the inability of existing institutions and Urban Sector Overview mechanisms to cope with emerging challenges. Over-crowding of the living space, poor sanitation, decaying , growing Nigeria is the most populous nation in sub-Saharan Africa, with rate of unemployment and under-employment, inadequate and an estimated population of 115 million for the year 2000, and an overstretched community and social services are some of the annual growth rate of about 3.0 per cent, making it one of the indicators of the problems as they affect urban development. fastest growing populations in the world. Not only is the country Also, some of the extant laws and regulations, and institutional experiencing one of the fastest rates of urbanization in the world, arrangements impinge on good management procedure. its experience has also been unique in scale, pervasiveness and historical antecedents. This process has resulted in a very dense The demographic trend and cycle of urbanization in Nigeria is network of urban centres. typical of most developing countries – a high birth rate combined with a relatively low death rate resultin g in a high survival rate. Compared to a growth rate of 3.0 per cent for the total Economic factors such as the oil boom, abandonment of population, urban population has been growing at about 5.8 per agricultural activities, public investment policies and location of cent per annum. By year 2000, Nigeria’s urban population stood investments, creation of more States and Local Government at about 48.2 per cent of the total population and projections Areas, have all combined to accelerate the growth and spread of indicate that more than 60 per cent will live in urban centres by urban centres in Nigeria. Perhaps more important in this respect year 2025. The explosive rates of growth have not only is the declining economic circumstances in the rural areas which progressively complicated and exacerbated inter-related problems continues to push people (mostly unskilled and unemployable 5 Havana 2005 - Documentation of experience SCP/LA21 youths) to the urban centres which themselves are ill prepared position papers. State and Local Government bodies made and already overburdened. representations to the process and the final document was further subjected to discussion at the level of the National Council on Critical Policy Issues Housing and Urban Development. The council is an advisory body constituted by representatives of States and Federal Over the last three decades, Nigerian towns and cities have been Government that meets annually on matters of housing and urban growing without adequate planning and management. The development. All through the entire process of the review, the backlog of unmet infrastructure and service needs coupled with need for broad-based consultation was maintained and the inadequate maintenance programme continues to place extreme Committee ensured that the end product was owned through pressure on existing ones leading to rapid deterioration and consensus building. decay. Currently, critical urban policy issues include, but not limited to: In its recent efforts at restructuring the national economy and § Rapid rate of uncontrolled and unplanned growth leading to repositioning the country on a path to sustainable development proliferation of slums; under the reform agenda, a number of urban development issues § Poor coordination of urban – rural linkages in terms of are being addressed with a view to improving the urban policy and action resulting in massive rural – urban drift; environment and enhancing the role of cities in national § Neglect of infrastructure provision and maintenance; development. Such activities include: § Inadequate public service: water, sanitation, educational and § Review of extant laws and regulations that impinge on health facilities, security transportation, housing etc; effective urban planning and management. The most § Unemployment and under-employment; prominent is the Act. § Poor urban § Restructuring, recapitalization and repositioning the Federal § Inefficient and uncoordinated urban governance; Mortgage Bank of Nigeria towards a more effective § Poor economic and resources base; operation as an apex mortgage lending institution to boost § Lack of community participation; housing development and ownership; § Juvenile delinquency and crime; § Commencement of the process of modernization and § Insecurity of tenure computerization of the Federal Land Registry as well as facilitating same at State level; and Current Efforts in Urban Development § Implementation of pilot schemes in community / urban upgrading under the Community-Based Urban Development The policy issues noted above form the main focus of the revised Project assisted by the World Bank in some eight States of national urban development policy. The Policy has the goal of the Federation. developing “a dynamic system of urban settlements that will foster sustainable economic growth, promote efficient urban and It is pertinent to note that the national reform agenda is an regional development and ensure improved standard of living and integral part of the National Economic Empowerment and well being for all Nigerians”. Thus in order to adequately address Development Strategy (NEEDS) of the Federal Government of the complex problems of the urban sector, the Federal Nigeria, which is the national blue print on poverty reduction. Government established the Federal Ministry of Housing and The preparation of the NEEDS document elicited wide and Urban Development in July 2003. Among others, the Ministry popular consultation among stakeholders and interest groups. In has the following mandate: the same vein, States and Local Governments are expected to § To set national standards and generally monitor all prepare their own strategies for poverty reduction taking a cue legislation relating to the efficient operations of towns and from the national agenda. The NEEDS document is being giving cities as well as the socio-economic development and the a wide circulation among development partners and national quality of life of urban settlements throughout the country; institutions. § To promote the development and upgrading of urban management information system in all Nigerian cities by The implications of these current efforts are germane to the ensuring that all are numbered, all streets are named SCP/LA21 activities in that popular participation and and neighbourhood boundaries clearly identified and consultation in development issues is being recognized and taken demarcated; seriously at all levels. Indeed the formulation of the mandate of § To assist State Governments in developing and operating the Federal Ministry of Housing and Urban Development is to a and traffic plans for efficiency in mobility and large extent predicated on the broad concept of the environmental land-use development in Nigerian towns and cities; planning and management. In particular, one of the mandates of § To assist St ate Governments in promoting the establishment the Ministry is to facilitate the establishment of Consultative of a consultative assembly in each town and city, with a Assemblies in each of the cities to improve civic engagement in view to initiating and sustaining the culture of participatory governance and further encourage participatory budgeting budget and qualitative environmental maintenance in all process. Nigerian urban centres. Inhibiting Factors In retrospect, the review of the national urban development policy took a noticeable departure from previous approach of Although it is early to see the impact of the reforms and new Government in setting the scope and content of policy issues and policy directions in the overall urban planning and management strategies. There was a nation-wide consultation of key process in Nigeria, concerns are being raised about the role of the stakeholders and interest groups in the formulation of the policy Federal Government in matters of urban development. A agenda and determination of the end product. The process, which Supreme Court judgment is now seen as a major inhibiting factor was anchored by a well balanced Committee of experts, in Federal level interventions in urban planning and management. consulted widely with professional bodies and interest groups, Base on a constitutional suit about which tiers of Governments including NGOs, through public meetings and presentation of has overriding responsibility for urban and 6 Havana 2005 - Documentation of experience SCP/LA21 administration in Nigeria. The apex Court had in a keen but split and Urban Development is responsible for the coordination of the decision ruled in favor of the State Governments. It also nullified replication of the programme. major provisions of the Nigerian Urban and Regional Planning Although the replication of the EPM is currently being Act of 1992. It is however expected that the matter would be spearheaded by the Federal Government, it is expected that the resolved through the on-going constitutional review process and States and Local Governments would respond to the challenges restore confidence in central government intervention in urban of driving the process. The UNDP/FGN project document for the development matters. 6th Country Cooperation provides for State and Local Governments to take ownership and institutionalize the EPM Other inhibiting factors to the innovations being put in place, process. The institutionalization process is however being particularly the Environmental Planning and Management pursued vigorously under the Sustainable Ibadan Project (SIP). process, include low levels of awareness on the part of populace, inadequate advocacy campaign, poor funding of the institutions However, in order to further improve the replication process it is responsible for urban planning and management and poor important that physical development projects should be institut ional capacity among others. Although the on-going implemented to demonstrate the viability of the concept and reforms aim at addressing some of these constraints, the low level strategies being conversed under the programme. Communities of capacity and poor resource mobilization at the Local usually look up to some kind of development projects for them to Government level would remain major factors in begin to imbibe the tenets of new ideas and methods. As has been institutionalizing the various innovations in urban management. demonstrated in Ibadan, communities are willing to support No doubt, this tier of government has a major role to play in innovations, even with their resources, if only they would see the urban development and management, yet there is apparent tangible elements of such innovation. The various development weakness in the structure and allocation of power and resources. schemes that have been implemented in Ibadan are maintained This has resulted in State Governments taken over such basic and sustained by the communities. responsibilities as , water supply, primary health and education. Mainstreaming Innovations

Programme Support & Capacity Building Nigeria continues to participate actively in international debates on global agenda in urban development, environment and poverty The establishment of the Federal Ministry of Housing and Urban reduction, all within the framework of the Millennium Development has resulted in a boost to the urban development Development Goals (MDGs). These international debates have sector in Nigeria. So also is the setting up of the UN-HABITAT helped to facilitate greater awareness and forged improved Support Office (HAPSO) in Nigeria. The office is now cooperation and collaboration with both national and operational and is expected to play significant role in the international development partners. In the area of improving the structuring and driving of human settlements development lives of slum dwellers, Nigeria is currently upgrading basic process in the country. infrastructure and service delivery in poor urban neighbourhoods in eight selected cities across the country in collaboration with Currently, capacity building and knowledge management in the the World Bank under the Community-Based of environmental planning and management is hinged on the Development Programme. More recently, Nigeria has conc luded support provided by UN-HABITAT and few institutions that arrangements for greater support by the World Bank and DFID have developed sufficient know-how in the EPM process. The through a Country Partnership Strategy. Other development cit y of Ibadan will continue to provide a learning field in the partners and donor agencies are also collaborating with Nigeria in EPM process as substantial resource base has been created with a its poverty reduction strides. In the last one year, the National large pool of resource persons. As the programme progresses, Planning Commission has been consulting with these agencies one expects considerable capacity to be available through the with a view to streamlining their support to Nigeria within the Universities and the Polytechnics. For example, the Federal framework of the NEEDS agenda for Nigeria. University of Technology, Minna has established a working relationship with UN-HABITAT in the area of Environmental Conclusion Planning and Management and is functioning as a major consulting unit in the field. The institution is now offering The urbanization process is irreversible in Nigeria, and must academic programme in Environmental Planning and therefore be turned into opportunities for growth and Management. This programme will further provide the much development. By the year 2010 and beyond, there would be more needed capacity and improved manpower for sustainable people in urban areas than in rural areas. To ensure that the environmental planning and management in Nigeria. magnitude and pace of urbanization does not drag on overall national development, Nigeria would continue to implement Institutional Framework for Programme Replication integrated development strategies. Future priorities would emphasize the institutionalization of the EPM process for Within the framework of the national urban development policy sustainable development. and with the assistance of the UN-Habitat, the SCP/EPM process replication is being executed with broad participation of By way of conclusion, I want to thank the organizers of this Governments, the private sector and the wider civil society, as meeting, particularly the Government of Cuba, the City of La well as UN – specialized development partner, the UNDP. Under Havana, UNEP and UN-HABITAT, for the opportunity to the programme, a National Programme Coordinating Committee exchange experiences and advance collective know-how on provides policy direction while Stakeholder Boards oversee the sound environmental planning and management. I believe that implementation of the programme at both Federal and State working together we will continue to evolve effective strategies levels. Under the arrangement, the Federal Ministry of Housing for sustainable development in our rapidly urbanizing world.

7 Havana 2005 - Documentation of experience SCP/LA21

IBADAN, NIGERIA Innovating through Sustainable Ibadan Project, Oyo State, Nigeria

David Taiwo, Director, Town planning Department, Oyo State A.A. Ayorinde, Manager, Sustainable Ibadan Project

The City of Ibadan has had many environmental problems which In the area of service delivery, demonstration projects were serve as the precursor and or antecedents to the SCP and the selected and implemented to ensure its spatial distribution in the application of EPM in the city region. The most visible and eleven (11) LGAs in Ibadan city and also to encourage all disconcerting environmental issues prior to the introduction of stakeholders especially the LG authorities to continue to promote SCP include: the project. Service delivery through demonstration projects was § High rate of urbanization accompanied by acute shortage of also an opportunity to get foot on the ground in the low-income water supply; areas in Ibadan and to bridge the gap between the community and § Poor management of solid and non-solid waste, which has the Government. great consequences on the surface and underground water, health hazard and unaesthetic physical environment. (d) Environmental Management This myriad of problems has, traditionally been managed by Activities of the various issue specific WGs have focused Federal, State and Local Government Institutions. Despite the principally on environmental management. Of particular multiplicity of institutions, most of the environmental problems importance is the protection and effective use of water bodies remain unsolved and indeed became complex, vexing and such as natural springs in Ibadan city as alternative source of uncontrollable overtime due to the inadequacies of the potable water supply to the people in the face of glaring Traditional Planning Approach utilized by these institutions. inadequate water supply through the public water supply mains. These then are the rationale for the application and implementation of the EPM process in addressing environmental Over 30 natural springs were identified and seven (7) have been problems in Ibadan city. adequately developed and protected through the SCP/EPM Process. Furthermore, the implementation of SIP has brought 1. Positive Contributions of the SIP about inter-agency cooperation in environmental management in Following the introduction of SCP in Ibadan, in 1994, various Ibadan city especially in the implementation of demonstration activities carried out through the application and implementation projects Similarly, there is also the promotion of sectoral of the EPM process have contributed positive innovative changes cooperation and coordination in environmental management in to the environmental management of the city in the following Ibadan city as reflected in the composition of the various working areas. groups set-up to address the prioritized environmental issues of water and waste. (a)Stakeholders Participation Stakeholders participation in the urban environmental (e) Urban Poverty Reduction management has improved significantly in Ibadan city due to The implementation of various demonstration projects based on implementation of the Sustainable Ibadan Project. The following the EPM process have significantly led to urban poverty are the activities undertaken: reduction in the target communities in Ibadan city in the § Ibadan City Consultation on Environmental Issues of following ways. Concern,4-11 September, 1995 § Setting -up of Inter-Sectoral Working Groups to address Creation of job opportunities for those involved in the waste to the pririotised environmental issues of concern. wealth initiative projects undertaken such as the Pace-setter and § Information gathering through the activities of the Ayeye Community Organic Fertilizer Plants working groups § Diversification of implementation resources in the course Providing more time for business in communities where service of carrying out demonstration delivery has improved especially in the areas of water supply. projects. 2. Factors that have facilitated Or obstructed positive changes (b) Land Use Planning by SIP. Many demonstration projects on water and waste issues were initiated, planned and implemented in line with the Strategies and Factors that have facilitated positive changes by SIP. Action Plans prepared by the working groups on water supply Several factors have facilitated the SCP activities in Ibadan. and waste management using the EPM process, which is These include: basically bottom-up as opposed to the blueprint approach § Strong self-help orientation of the community; whereby only the public agency is involved in the initiation § Effective mobilization of stakeholders through sectoral planning and implementation of projects, the application of EPM briefing sessions, publicity, public enlightenment, process in Ibadan city through the SIP facilitated the active publications, information brochure etc; participation of all relevant stakeholders. § Transparent way of doing things under SCP; and § Dwindling resources available for infrastructural (c) Service Delivery development. 8 Havana 2005 - Documentation of experience SCP/LA21

Factors that have constrained positive changes by SIP. § Production and Airing of 60 Minute Video documentary on § Disillusionment of private and popular sector about the SIP activities in Ibadan on the Local Television Government due to unfulfilled promises. (Broadcasting Corporation of Oyo State (BCOS). § Lack of accountability and transparency in the way § Production and Airing of 12 weeks 15 Minutes Radio Government Agencies have been relating with the members Drama serialization on the SIP activities on the local radio of the public. (BCOS). § Misconception about the project (SCP) mistakenly thought § Presentation of technical papers at conferences of to be money spinning World Bank project that issue out professional bodies, seminars, workshops and meetings on contracts. the implementation of SCP in Ibadan. § Presentation of some of the demonstration projects for Best Overcoming constraints Practices Awards organized by Dubai Municipality and UN- The obstacles encountered were overcome through: HABITAT and Stockholm Partnership Awards. (Pace-Setter § Continuous sensitization of stakeholders especially the Organic Fertilizer Plant and Akeu Natural Spring project); policy makers through briefing sessions, meetings etc. § Research work on the activities of the SIP by various § Advocacy visits by officials of UN-HABITAT on mission to students of The Polytechnic and University of Ibadan key stakeholders. pursuing their Diplomas, first and second degrees resulting § Attendance at SCP Global Meetings by key stakeholders in Thesis or Dissertations on different areas of interests; especially by Government functionaries. § .1by UN -HABITAT and SIP (TSU) which are all in the project library and regularly 3. Mechanisms Created To Support The Development of These § Self-Assessment exercise on SIP sponsored by UN- Innovations HABITAT. The mechanisms created to support the development of those innovations among others include: 6. Mainstreaming innovation at local level. § Provision of funds in the Annual Bud get of the Local and (i) Policy Instrument State Governments facilitated by the supervising Ministry. § .The strategies and action plan prepared on waste has § Putting in place institutional structures such as Project influenced the waste management in Ibadan to allow private Coordinating Committee sector participation in waste collection and disposal in the § Development of GIS laboratory in the Department of Survey city, a responsibility hitherto carried out inadequately solely by the State Government. by the authority. § Formation of the Sustainable Ibadan Project Trust fund § Abolition of Designated Refuse dump sites policy as SIPTF facilitated by the project (TSU). advocated by the strategies and action plans on wastes in favour of bring and dump (in waiting refuse vehicles) in 4 How to enhance the mechanisms. core areas of Ibadan city where there is access problem to The various mechanisms in use are not adequate because the rid the city of its mountain of refuse. institutionalization of the EPM process in the various relevant § Embarking on waste integrated projects by the agencies has not been totally achieved. State Government to popularize the waste to wealth The following are however possible ways that can be explored to initiative advocated by SIP through its demonstration enhance the mechanisms already in use in the application and projects and strategies and actions plans implementation of the SCP/EPM process in Ibadan: § Embarking on Mini-Water Supply Scheme by the State § Increase publicity and marketing of the programme; Government in line with the strategies and action plan on § Strong support for the implementation of the SCP by the water as alternative viable option to big dam construction Federal Government in the cities; for Ibadan city, which has proved inadequate and costly to § Policy backing by Government for the implementation of maintain. various strategies and action plans emanating from the application of the SCP/EPM process in Ibadan city. (ii) Legislative Instrument . § Introduction of participatory process in the preparation of 5. How innovations achieved were documented and plans in the new Oyo State Urban and Regional disseminated. Planning Board Law. The various innovations in form of positive changes arising from the SCP activities in Ibadan city already discussed were often (iii) Administrative Instrument documented and disseminated through the following ways: § Creation of Urban Environmental Planning and § Preparation of regular reports (sometimes on quarterly basis) Management Unit under the Town Planning Department of to supervising agencies of Government and external support the Oyo State Ministry of Environment and Water agencies such as Oyo State Ministry of Environment and Resources to mainstream SCP/EPM process in other cities in , SCP Coordinating Unit under the Federal Oyo State.. Ministry of Housing and Urban Development and UNDP § Establishment of SIP Committees (Local Government Oyo State office; Development Committees) in the various LGs in Ibadan to § Production and dissemination of City Consultation and apply the SCP/EPM process in the development of the LGs Local Government. Consultation reports to various relevant in Ibadan. stakeholders such as the Local Governments, State § Setting up of GIS Laboratory in the Department of Survey Government Ministries, higher institutions such as The by the Oyo State Government for greater efficiency in the Polytechnic and University of Ibadan, NGOs, etc. production and utilization of maps. § Production of EPM News bulletin and Information Brochure on periodic basis. 7. Experience in setting municipal planning and coordination. Presently in Ibadan there is no agency at the municipality level coordinating planning activities. However, the Oyo State Town 9 Havana 2005 - Documentation of experience SCP/LA21

Planning Department to some extent coordinates the activities of (ii) Transparency And Accountability. Local Planning Authorities in the State. However, the SIP project To properly manage the projects implemented, the following are coordinating Committee comprising the Chairmen of the 11LGs undertaken: in Ibadan carry out coordination functions which has assisted in § Putting in place a management committee comprising of the great way to institutionalize and mainstream EPM at the Local community members from which key officers are elected. Government level in Ibadan. § Opening of Bank Account where money raised or generated on the project are kept. 8. Technical inputs received from support institutions to § Records of income and expenditure made are kept and made enhance the innovations. available to the WG members and Project TSU when Technical inputs received from support institutions to enhance demanded. the innovation include: § Production of various base maps on Ibadan city in scales (iii) Civil Engagement. 1:50,000 and 1:25,000 undertaken by Regional Center for § Involvement of community members in the implementation Training in Aerospace Survey (RECTAS), supervised by committees when projects are planned and executed. Survey Department of the Oyo State Ministry of Lands, § Putting key community members in charge of the Housing and Survey and sponsored by UN-HABITAT. management of the project through their membership of the § Procurement of Geographic Information System Equipment project management committee. This has made them to take which facilitated storage of environmental information /data adequate care of the project and thereby provide good electronically for the project by UN-HABITAT. leadership qualities that promote good urban governance. § Provision of drilling rig, materials and expertise for the demonstration project on borehole at Bodija market by Mainstream Innovation at Global Level. UNICEF through Oyo State Water and Sanitation Project (WATSAN). (i) Environment

· Protection of water bodies such as natural springs in Ibadan 9. Mainstreaming innovation at national level. city, which were identified and gradually slated for (i) Policies development into alternative potable water supply sources · Urban Development Policy – formulated by the Federal for various communities where they are located. Government to guide urban development in Nigeria. · Promotion of clean environment through the preparation of · National Housing Policy – formulated by the Federal strategies and action plans on waste management in Ibadan Government guide housing provision in Nigeria. city which has proved to be a useful document in solving the waste problem associated with the city. (ii) Administrative · Creation of Federal Ministry of Housing and Urban (ii) Poverty. Development by the Federal Government to attend to · Promotion of waste to wealth initiatives through the projects housing and urban development issues in Nigeria in the year implemented on waste recycling such as the Pace-Setter 2003. Organic Fertilizer Plant in Bodija Market, which provided · Giving Urban and Regional Development (URD) a employment opportunities for many people. departmental status at the national level under the newly created Federal Ministry of Housing and Urban (Iii) . Development. · The Pace-Setter Organic Fertilizer Plant facilitated by SIP · Creation of the Sustainable Cities Programme Coordinating WG on Waste Management won the Best Practices Award Unit to coordinate SCP activities in various participating at an event jointly organized by Dubai Municipality and cities in Nigeria. UN-HABITAT in 2002. · Launching of Good Urban Governance Programme by FGN/UN-HABITAT collaboration in Nigeria in the year 11. Support scp activities undertaken by sip received from 2003. global/international facilities. · Periodic meetings and seminars organized by the SCP Unit The support SCP activities undertaken by SIP received from on the implementation of the SCP in Nigeria. Global /International facilities include: · Recognition of the demonstration projects implemented as 10. Urban governance. Best Practices and Sustainable projects. (Pace-Setter The bottom-up approach used in the application and Organic Fertilizer Plant given Best Practice Award jointly implementation of the SCP /EPM process in Ibadan city have by Dubai Municipality and UN-HABITAT and Akeu ensured that there are improvement in certain aspects of urban Natural Spring Project selected for Stockholm Partnership governance as described below: Award for Sustainability) (i) Sustainability · Presentation of SIP experience in the implementation of Projects initiated and implemented through SIP have the ultimate SCP at the International Human Dimension Programme aim of being sustainable, hence: (IHDP) Workshop in Bonn, Germany 2002 by the Project § All relevant stakeholders are involved in the planning and Manager. implementation with resources for implementation coming from all sectors. (see Table 2). Additional Support Required. § The beneficiaries (Communities where the projects are · Financial and technical resources to implement more located) see the project as theirs and not Government project projects and document experiences. and as such are able to manage and maintain them. · Sponsorship and grants for key stakeholders to attend short and long term trainings to build their capacities in order to effectively manage the environment. 10 Havana 2005 - Documentation of experience SCP/LA21

12. Environmental issues raised through scp local activities that · Preparation of geophysical map on underground water require global action. resources. (i) Water Issue. (ii) Waste Issue. · Protection and sustainable utilization of existing water · Management of solid waste in the inner core areas of the bodies. city. · Generation of Biogas from Market and Abattoir Waste.

11 Havana 2005 - Documentation of experience SCP/LA21

ENUGU, NIGERIA Sustainable Enugu Project

E. C. Asadu, Project Manager of the Sustainable Enugu Project.

1. 0 INNOVATIONS § The public are not allowed to participate activity. § Skills and experienced personels not used. 1.1 Innovations In The Approach Applied With the introduction of SCP in Enugu in 1997, the application Enugu came into existence in 1909 as a result and implementation of EPM is gradually contributing positive of the discovery and subsequent exploitation of coal deposit in innovative changes to the environmental management of Enugu the Udi Hills. City.

They city has experienced so many environmental problems as a A) Stakeholders Participation. result of influx into the city which led to urbanization, this there The participation of stakeholders in the urban environmental is no doubt led to the request for application of SCP / EPM in the management is improved in Enugu City due to implementation city. of sustainable Enugu Project.

Those environmental issues before the introduction of SCP / Activities carried are: EPM are; i) Consultative core group Aug. 20002 § acute shortage of potable water supply ii) City Environmental profile Aug. 2002 § Mis–management / poor management of both solid and iii)City consultation 26th March, 2003 liquid waste in the city. iv) Setting up of different working / sub working groups to address the prioritized environmental issues. There is no doubt, these lead to health hazard, of § Water supply undergoned water and air. § Waste management § Unplanned / Uncontrolled development However, some institutions like Federal, State, Local § Improvement of market Areas Government and communities have been managing the problem § Drainage / flood control yet of no avail. The inability of the institutions to effectively handle the problem Table 1 below shows the composition of the various working and he attitude to the planning approach used. groups / sub – working groups which indicates stakeholders participation in various innovation achieved through the activities However, these led to the introduction of EPM due to the of the working / sub – working groups. followings; § Master plans are only prepared by experts Table 1: Composition of working groups. § It is top down approach

S/N WORKING GROUP TOTAL OF PRIVATE PUBLIC COMMUNITY MEMBERSHIP 1 Improvement of market 12 2 5 6 Area Sub - WG 2 Drainage and Sub 14 2 5 7 – WG 3 Waste management WG 18 5 6 7 i Waste recycling / sorting 12 2 4 6 sub – WG 4 Water supply WG 19 4 6 9 i Spring water sub - WG 12 1 7 4 5 Unplanned / uncontrolled 18 2 12 4 Dev. WG 6 GIS / EMIS mapping 15 3 10 2 information WG Source : Sep 2003

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Table 2: Financial profile and cost sharing of Demonstration projects in Enugu.

Project Actors involved Resources committed by actors Total cost of project 1. Improvement of market Min. of Lands, Works Preposition papers N1,153,000.00 area Enugu South L. G Labour Private consultant Project Design and supervision consolidated Engr. Ltd UNDP N 1,153,000 ENSEPA Technical input and preposition papers 2. Drainage and erosion Mini. of lands and works Technical input & preposition N 1,767,250.00 control papers Enugu East L. G Design Private consultant veen Project supervision, Camera consolidated Engr. lTD Video ENSEPA Technical input shovels (3) peak (2) Community members Labour & political support and security UNDP N 1,767,250,000 3. Waste reduction / sorting Min of lands Enugu Preposition papers N 1,978,000 ENSEPA Rainbut (3 pairs) hand gloves (3) Enugu north L. G Provision of hall & sound system Private consultant Christion Provision of 2 gallons of Nig Ltd disinfectants (N10,000) UNDP N 1,878,000.00 Community members Labour political and security Source SEP 2003 The application of EPM process in Enugu facilitated the active B) Land Use Planning: participation of all relevant stakeholders shown in table 2.

Three demonstration projects on improvement of market areas, C) Service Delivery drainage / flood control and waste reduction / sorting were In terms of service delivery, each of the demonstration projects planned and implemented though not strictly on strategies and was done in each of the 3 local Govts in Enugu city to encourage action plans by the working groups using EPM process. the stakeholders to promote the project and practice them. This However, it was bottom up approach as opposed to top down was also good opportunity for the grass root communities to approach that was used before by different agencies in Enugu have that sense of belonging in issues that concern them See City. table 2.

Projects carried out towards the implementation strategies and action plan. Table 3 . S/N SPECIFIC PROJECT EXECUTED DATES ENVIRONMENTAL ISSUES 1 Waste management Drainage / flood control clearing of refuse, opening of 2003 channels and introduction of ring curverts Improvement of market Areas in Awkunanaw 2003 Source. Sep 2005

N. B The following projects awaits implementation pending when fund is secured and different working groups coming up with the strategies / Action plan.

Table 4. Other initiated projects for implementation. S/N SPECIFIC ENVIRONMENTAL ISSUE PROJECTS 1 Waste Management Fabrication of Organic fertizer plant in Ogbete market, Awkuananw Market and new Market 2 Water Borehole - Ngeneve Community - Coal Camp “ - Ugbo Ezeja “ - Emene “ - Ugbo aron “

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S/N SPECIFIC ENVIRONMENTAL ISSUE PROJECTS Spring Development - Iva Valley Spring water - Ugbo Ezeja Spring - Ngwo Spring Deep well - Ugbene I - Ugbone ii - Abakpa Nike 3 Unplanned / Uncontrolled development - Obiagu Community - Ngenve “ - Camp “ - Abakpa Nike “ Source Sep 2005.

D) Environmental Management 3. How Innovation Achieved Were The little demonstration projects carried out in the communities and market areas focused on environmental management, a little Documented And Disseminated shift from what used to be in the city. The implementation of Sep is gradually bring about inter agency cooperation in the city. Different innovations inform of positive changes arising from the SCP activities in Enugu City already discussed were often E) Urban Poverty Reduction documented and disseminated through the following ways. The implementation of the few demonstration projects based on § Production and dissemination of City consultation reports to EPM process have not done much simply because Enugu City the universities and other agencies. has not executed much projects. § Dissemination of EP to other agencies § Production and dissemination of SCP Bulletin and 1. 2 Local Factors that have facilitated or obstructed the SCP introduction brochures activities in Enugu § Presentation of technical papers at conferences of professional bodies e.g Nigeria Institute of Town Planner. 1.2.1 Factors that obstructed SCP Activities § Dissertation by different students of urban and regional § Mis-conception of the project by the people and the planning from University of Nigeria Enugu Campus and

Government agencies; (they thought it is money making ESUT. venture) § Self Assessment exercise on SCP sponsored by UN – § Stakeholders thought it is like other Government projects Habitat. that used to come to the states where transparency is not shown. 2.0 Mainstreaming innovation to local level § Lack of trust on the way Government agencies have been operating 2.1 How the innovations recorded are applied into the daily routine of city management 1.2.2. Factors that have facilitated SCP Activities § Briefing sessions, publications and information brochures i) Policy Instrument § Visits from Nainobi and Abuja by SCP Officials Introduction of EPM to those pilot communities has influenced the waste management in the city. This now involve private 1.2.3 How the obstacles were Overcome participation in waste collection and disposal. ESWAM, the § Continuous visits by officials of UN – Habitat both from Agency in-charge of waste has divided the city into zones and Nairobi and Abuja private orgainsation managing different zones. § Attending meetings, seminars and continue briefing of the § Introduction of waste bags and collection of refuse from policy makers different points weekly.

1.2.4 Mechanisms Created To Support The Development Of ii) Legislative instrument These Innovation Introduction of participatory approach in the preparation of site § Effort is geared towards including the project in the annual analysis report by the Nigerian Institute of town planners Enugu budget of the ministry of Environment and soiled minerals. state Chapter and the department of Town Planning Ministry of Lands, Enugu. 1.2.5 How to enhance the mechanisms § Ministry of Environment is including EPM process in their § The Federal Government should take the programme new law in the State. serious. § Directive from Federal Government to all the state iii) Administrative Instrument: Governors to implement the programme. § Each Planning Authority in the city is to establish Urban § Application of EPM process to be entrenched in the school Environmental Planning and Management Unit as contained curricular in the country . in the project document of SEP.

2.2 Experience in Setting Municipal Planning a4nd Coordination

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Right now, planning authorities in each Local Government in the city coordinates the activities of Local Planning Authorities and (i) Sustainability supervised by the Department of Town Planning, Ministry of Those little projects demonstrated by SCP yielded better results Lands. It is helping in institutionalizing EPM in the city. in terms of sustainability because: § The appropriate stakeholders were involved from the 2.2.1 Technical Imputs Received from support institutions to beginning of the planning. enhance the innovations § The communities see the project as their own and keep § Procurement of GIS equipment which is to be used in security over the project. storing environmental information for SEP by UN-Habitat § Now that our GIS is not working, we make use of that of (ii) Transparency and accountability Enugu State University of Science and Technology. Both the community members and other stakeholders are involved in the planning and execution, so the money are made 2.2.2 Additional support required from support institution known to every member at each stage. include § Repair of our GIS equipment to train the TSU staff and (iii) Civil Engagement other government agencies in the state to enhance their Because the communities are fully involved and some of their capacity members are key actors, they have confidence in the project.

3.0 Main streaming Innovation at National 4.0 Mainstreaming Innovation at Global Level level 4.1 How SCP activities in Enugu City addressed global 3.1 Support received to enhance the innovations from the agencies. national level. The SCP activities in Enugu has not been able to address global (i) Policies agencies much in the following areas; Different forms of innovations from Federal Governments in (i) Environment terms of National Housing and Urban Development policies. (ii) Poverty (iii) Sustainability (ii) Administrative § Organization of meetings, seminars by the SCP unit of the This is due to the fact that our working groups have not been able Federal Ministry of Housing and Urban Development to do much because of some logistic problems § Creation of Federal Ministry of Housing and Urban development by the federal government 4.2 Support SCP activities undertaken by SEP received from § Carving out urban and regional development department Global / International facilities from the ministry § Launching of Good Urban Governance Programme by None has been received so far. Federal Government / UN-Habitat 4.2.1 Additional support required 3.1.1 Additional Support Required § More finance to train staff and implement projects § Federal government should stick to their own terms of reference in the SCP agreement. 4.3 Environmental issues raised through SCP Local activities § National Planning Commission and the UNDP should attract that required Global action more funds from donor agencies into the country for the implementing cities. i) Waste issue

§ Federal Government should give directives to all the states § Construction of the in organic fertilizer plant as proposed in the country to introduce and back-up SCP activities in the § Sinking of boreholes in those areas mentioned earlier country. § Harnessing of the spring water

3.2 Urban Governance

The little EPM approach used so far in the city showed that there is improvement in those areas.

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PAPUA NEW GUINEA National Experience of Sustainable Cities

Max Kep – Chairman for National Consultative Committee on Urbanization & Director Office of Urbanization, Department for Community Development. Elais Master – Director Lands, Department for Lands and Physical Planning Riechert Tanda – Senior Aid Co-ordinator Officer, UNDP Desk Aid Co-ordination & Management Division, Department of National Planning and Rural Development

Innovations Islands Provinces respectively instead of Rabaul. The Township of Rabaul was destroyed during a 1994 volcanic eruption. The Developing Capacity building through Sister City township will continue to be under threat by the surrounding programme active volcanoes in the future hence the relocation to Kokopo. For some years now that the sister city programmes have been established between three cities in PNG, namely Port Moresby, Addressing Urban Management and improving shelter Lae and Mt. Hagen and their corresponding partner cities in planning , which includes, Townsville, Cairns, and Orange city The areas of concentration from UNHABITAT and the World respectively. Bank have been Financial assistance, preparation of Physical Development Plans, Development of Infrastructure services and The sister city main programmes involves the Sister City administrative capacity building. A number of technical advisors Councils to work out a programme upon which the Australian from the international donor agencies were deployed under the City Councils can assist its PNG counterpart in building capacity newly established Gazelle Restoration Authority (GRA), which in the areas of administration, human resources, information was set up purposely to restore what was destroyed during technology and planning. volcanic destruction, but on a different location at Kokopo.

Part of this strategy is the case of the National District GRA has become the implementing agency for both National and Commission of Port Moresby a four-year term ‘Project Hetura’ Provincial government reconstruction programmes for relocation currently being implemented. The project Hetura is in its third of administration and other urban activities from Rabaul to year of implementation with the initial seven (7) modules. Kokopo. However, the focus now is in one area (Regulatory Services Department) comprised of four (4) modules, which include; Other additional work activities which the international § Module. 1. Organizational structure programme has assisted through UN – HABITAT and World § Module .2. Policy formulation Bank include preparation of a number of development plans, on- § Module .3. Information technology the – job staff training and involvement in planning and a § Module .4. Human Resources construction of a civic and commercial centre at Kokopo. The implementation of these modules aimed developing capacities for physical planning development. After a decade of collective efforts from within the country and the involvement of the international programmes, the Introducing Public Private Partnerships through ‘Safer City implementation process of the restoration of an urban centre of Port Moresby” programme. destroyed by volcanic eruption is so far progressing smoothly. Also, with the National Capital District Commission of Port One can recall a series of discussions over a number of projects Moresby a Programme for ‘Safer City of Port Moresby’ has been in mid 1980s between Un-HABITAT and World Bank and PNG, completed in its first phase with technical and financial support regarding especially the self help housing, settlement upgrading from UN – HABITAT. and urban design. The cost recovery was a component on the agenda for discussion and implementation, Addresing urban planning issues which the World Bank was interested in. In respect of the cities of Lae and Mt. Hagen good will, understanding, and exchange of visits have been established A number of projects were identified especially in the North between their counterpart sister cities of Cairns and Orange. No part of the country which was initiated as pilot projects other major programmes have been carried out recently except under a joint UN- HABITAT, World Bank and PNG for the preparation of an Urban Development Plan in the case of Government. Sites inclusive of Buko (Bumbu) Settlement in Lae, Mt. Hagen. The Mt. Hagen Urban District Development is Meiro Settlement in Madang and Kreer village Settlement in jointly being prepared by Orange City Council, Mount Hagen Wewak were selected for pioneering the urban settlement City Council and the Physical Planning Division of the improvement programmes in the country. Department of Lands and Physical Planning. On a lesser extend, At the National Level these projects were coordinated through short-term visit and training programmes have been part of the the National Housing Commission (now the National Housing sister city arrangement for all the affected cities in PNG. Corporation), which was responsible for implementing In the case of Kokopo in East New Britain Province an urban government policy on self-help housing and settlement upgrading development plan has been prepared in the last decade with programmes, whilst Physical Planning Authority, was responsible financial and technical assistance input from the World Bank. for Physical Development Plans and urban subdivision standards. Kokopo is developed as the alternative provincial and regional urban centre for East New Britain Province and New Guinea 16 Havana 2005 - Documentation of experience SCP/LA21

National factors that have facilitated and/or Some of the PNG’s urbanization problems can be regarded as unique compared to cities in many other countries in the world. It obstructed new approaches to improve urban is unique because of its system, which comprised management in PNG only 3% of the country’s total landmass to be state land. The rest of the 97% of land remains under customary ownership and is PNG being the largest Developing Nation in the South Pacific owned by the ten thousand plus tribes in PNG. area has been capturing the interest of UN -HABITAT for quite sometime. But there has been little involvement through any Perhaps the second major difference of PNG’s urbanization direct or major international programme to assist PNG in the area problem to other counties of the world, which makes it unique, is of urban management. that urbanization expansion has to cover land, which is owned by many different tribes and cultures. It is both difficult and time These projects described above yielded both success and failure. consuming to derive suitable policy and legal framework towards Only Kreer Village Project was completed, but Buko and Meiro registration, release and development of urban customary land, were never completed. Even Kreer village project at its let alone the technical problem relating to the application of completion stage would not be considered as a complete success, Physical Planning policy, and standards subdivision since in some areas infrastructure services have not been design. provided as planned and to some ext ent land allocation was properly managed. But the failure cannot be blamed on any one Due to the ongoing claims of land compensation by customary of the particular stakeholders. Each of the main players had a part landowners over urban land, which have been purchased by to contribute towards the overall failure such as understanding colonial government in the past, most of the claims are still first, the programme they are to work on, and second, their outstanding. The likely hood of releasing more customary land to individual capacity to handle the programme and thirdly, the government at this stage is almost non negotiable. The problem environment where the programme is located. of managing urbanization in PNG would even increase when the urban population at its present 4.5% growth rate would yield In a developing country like Paua New Guinea, international about 2 million people living in urban areas by 2020. programme especially in respect of housing, social services, and economic investment would always be welcomed with open The thirty years of neglect by the government in not arms. But we often fail to meet our share of the contribution, in appropriately addressing urbanization issues, has done injustice terms of political will, financial commitment and capacity to proper urban growth in PNG. Its worst picture is that the thirty building. years of neglect has brought to surface accumulated urban problems inclusive of unplanned settlements, poor infrastructure Listed below are some of the pointers, which could be seen as services, squatting, illegal development, and the associated obstacles towards proper implementation of International social, economic and environmental problems which require Programme for managing urbanization in Papua New Guinea. urgent attention by the government. § International technical expertise lacking adequate understanding of the local environment, culture and attitudes The PNG’s urbanization problems are no longer a matter for of people especially with regard to introducing new Physical Planners, urban administrators and of the bureaucrats, concepts. but its urgency is to be considered as sensitive and grave concern § The question of costs of development and the cost recovery to the security of national development. Therefore, in order for component, the question of who pays what? What is the the government to address the outstanding urbanization problems affordability limit of the urban poor as an alternative to what and bring urbanization process back to its manageable level, its they have been accustomed to in the past etc are important. commitment in respect of financial support and strong political § Resistance against standards. So often-urban will has to be a priority. subdivision design standards are geared towards meeting the economic cost and seem to neglect the social and Aspects of SCP, which can contribute to environmental aspects. § Lack of understanding by the parties concerned on suitable overcome difficulties or facilitate the process land tenure system and the appropriate legal framework. of improving urban management in PNG § Lack of commitment by the respective country’s National Government by means of political will and financial support The International Agency whose intended programmes are in order to operate the intended programme successfully. consistent with that of SCP agenda and has captured the § Lack of capacity by the responsible national government participation of a number of Local Level Governments, these agencies. programmes are running well and achieving their purpose. The § Lack of full participation by the stakeholders (and especially common terms used for the International programme in PNG are customary landowners and settlers). sister city (or Partner City), capacity Building (or Building § Lack of understanding on the part of the National Capacity) and Corporate Planing or Corporatisation. Those terms Government on the intention and outcomes of the are modern global terms, which have originated from the International Urban Management Programme. International Programme, that are intended to assist the Local § Lack of consultation and information dissemination of the Level Governments or City Governments, particularly in International Urban Management Programmes and what it developing countries in improving their performance in intends to do. managing urbanization. § The question of ownership of the programme. Who owns it? The UN-HABITAT or World Bank, or the Government of The global terms such as Capacity Building, Partner City, PNG; or the Government agencies or the settlers or the Corporate Planning and Management have become buzz phrases customary landowners? in PNG today. The introduction of international programme to PNG through especially the UN Habitat, World Bank and 17 Havana 2005 - Documentation of experience SCP/LA21

AUSAID have been received warmly by the National Government and its other tier level of governments. The The National Capital District is the only City, which is International programmes are introduced and implemented under independent and is currently in charge of its city planning and mutual agreement and understanding between either the two management. Apart from the problems of management of funds, partner cities or the Government of PNG and the International giving priority to right programmes and projects, the programme authority. management of Urbanization in NCD is progressing on well. Both the past and current phases of ‘Project Hetura’ have given An example of an International Programme introduced at further boost to improving the management of NCD National Level was the attempt to improve capacity building in administration and urbanization today. Physical Planing function in Mid 1980’s, under the World Bank Programme for the Land Mobilization Programme (LMP) of the There is a strong indication that the current ‘Project Hetura; in Department of Lands and Physical Planning, was not successful. the National Capital District will continue to improve with the The main reason for the failure was that Physical Planning sector amount of effort currently provided under the sister (or partner) (where urbanization function was and is part of) was not properly city arrangement, together with the practice of good governance addressed and was given low recognition under LMP. The principle by the National Capital District Commission Board and capacity building for Physical Planning and urbanization at the its administration. national level was not and still not a priority of national government departments even now. Also, an attempt to improve The failure of the past urbanization policies (namely White Paper the performance of the Department of Lands and Physical on Self Help Housing, 1975 and Managing Urbanization in Papua Planning under LMP on institutional strengthening and structural New Guinea, 1977) has been due mainly to the many changes to change did not achieve its ultimate purpose. the governments through the vote of no confidence, and the changes in government departments and the respective functional Although the current Physical Planning Act has powers which responsibilities, especially the department which accommodates can be decentralised to the provinces and Local Level the urbanization function. Other reasons for the failure in Government, and such powers cover urban areas and implementation of past policies are lack of political will, and urbanization process, Local Authorities have not taken government commitment on urbanization, and including lack of urbanization mandate up until now. clearly defined mechanisms to implement the policies.

Therefore, SCP with its good intention in building capacity, The outlook of the current urbanization policies, under would assist overcome this difficulty through councils by preparation is very promising, mainly because there is certainty establishing appropriate framework where by urbanization and its of political will and government commitment at the present time. management become the function of city government. For In addition, the government has established both the Ministerial example, the National Capital District Commission since 1998 Committee on Urbanization (MUC) and National Consultative has assumed the powers and function of Physical Planning, and is Committee on Urbanization (NCCU) 2005, which ensure that the now in the process of managing its entire urbanization. NUP is prepared and aligned with the overall vision of urbanization process for PNG. In addition, the Office of Apart from the National Urbanization Policy, the next important Urbanization was also established in 2003, whose main function mainstreaming innovation at National Level is the preparation of is to provide technical and administrative support for the policy a National Urbanization Plan, which will cover all urban centres formulation and implementation. in PNG. The National Urbanization Plan will become the principle catalyst for implementation of the National These political and administrative frameworks as established now Urbanization Policy in the spatial development sectors. are in fact assuring the seriousness in commitment of the national government to deal with urbanization. The task of its bureaucratic Also, the NUPLAN will provide a framework for the evaluation machinery is not only in tackling the urbanization issue, but more of suitable locations for both public and private investment. so strategising on how to manage it as well. A strong political stand and effective administrative framework advocating proper The NUPLAN will provide a framework upon which city master management of urbanization at national level will provide plan, which can be developed, to give future direction to the stimulus for city governments to adopt and appropriately growth of the city, and at the same time allows city authorities to implement the urbanization policy at their level. formulate programmes and strategies toward managing urbanization. Whilst the National Urbanization Policy for PNG is still under preparation, the recent National Executive Council approval of The new changes under the NUPLAN indeed integrates and the eight Directives of Decision No. 11/2005 give a green light provides understanding between national government and city through its endorsement of the Interim Policy Statement. This governments of their respective contribution toward developing allows NCCU to begin the consultation and awareness process on and managing urbanization in the country. the progress of the policy starting first with the Parliamentarians is a promising sign of support by the government. The Comparison of past city management with the consultation that took place in March this year showed that the Parliamentarians are very much concerned about urbanization new concept of sustainable city programme. problems, which are affecting the country and are waiting to contribute towards not only the policy preparation but its Cities and towns in PNG, apart from the National Capital implementation as well. District, have not been solely responsible for their development planning, administration, generating revenues and carrying out This year NCCU had presented the NUP at three of the four civil works. For this reason it is difficult to compare past Regional Development Forums programmed for this year. These performance with the present. regional forums were organised by the Government Consultative 18 Havana 2005 - Documentation of experience SCP/LA21

Implementation Monitoring Council (CIMC), which provided for broad range of issues and these are categorized under the participatory and information sharing interaction between following major sectors; National, Provincial and Local level Government on the issues of • Population and Employment National Development Planning, the Budget (Development Fund • Transportation and Infrastructure and Recurrent) etc and urbanization. The forum captured a wide • Urban Forms and Environment range of representatives from all three levels of governments, • Land Availability politicians, private entrepreneurs, academics, traditional • Housing and Social Issues landowners, grassroots, squatters, and gender issue. This is the • Law and Order right forum for both dissemination of information and receiving • Development Administration (Good Urban Governance) suggestions, ideas, etc towards formulation of the NUP contribution on the issue of urbanization. The participatory These seven vital issues are the major components of the approach in formulating an important policy such as NUP has urbanization issues that are often addressed all around the globe. been very good. The National Urbanization Policy presentation at PNG is not an exception and in order to achieve each issue Madang early this month captured a lot of interest and the systematically, the policy also outlines relevant strategies such audience contributed very well. It is hoped that the last of these as; series of Regional Development Forums, which will be held at • Urban Development Plan Kokopo in East New Province in early July this year will be • Settlement Upgrading Program better still. The areas of focus advocated by SCP, which are along • Housing Site and Social Services the line of participatory approach, sharing of information, • Customary Land Release and Development innovation etc, have been practiced during these series of forums. Urban Social Charter is a part of the National Urbanization Involvement of national actors in the Policy which advocates the rights and responsibilities of urban dwellers international debates on global agendas A.2 The Mid-Term Development Strategies (MTDS) Papua New Guinea is working closely with several international organizations to build a secure and prosperous nation by The MTDs is regarded as the road-map that guides the National attempting to focus on some of the Global Millennium Goals. Government Priorities into national development. Nearly all Thus, in the year 2000, the Government of Papua New Guinea in Government’s resources including the donor funding are directed its national policies and programs have either directly or towards achieving these. The major objective of the National indirectly pledge to achieve some of these global issues which Government is; includes; • Good Governance, a). Urban Issues • Rural Development, Poverty Reduction and Human Resource b). Environmental Issues Development c). Poverty Reduction and, • Export Driven Economic Growth e). Sustainability The Government of Papua New Guinea has also taken into (A) Urban Issues consideration the importance of Global issues such as good governance and poverty reduction and has included these in its A.1 National Urbanization Policy MTDS. The MTDS sets 7 priority areas and Urbanization is one of these which the National Government is serious to achieve its Nearly all urban centres of Papua New Guinea were once being objectives. used as administrative centres by the former colonizers. After independence, these centres are regarded as the towns and cities A.3 Other Recent Developments of Government Policies and/ and used for trade, business, education, politics and so forth. The Strategies urbanization issues in PNG are similar to many other Developing Nations of the Pacific, where much of its social, political and The National Government from the year 2000-2005 has economic structures reflect those of the colonial legacies with the developed various policies and strategies as well as programs for mixture of the existing social and cultural practices of the PNG the new millennium of which some are related to urbanization societies. and are outlined below.

Therefore most of the urbanization issue have been neglected and Population Policy were never being addressed prop erly at the national level in terms Rapid population growth is a pressing issue that the National of policy directives. Until in 2000, a Special Parliamentary Government attempts to control. The National government in Committee on Urbanization and Social Development was collaboration with the international partners has developed established to address this issue. Following this, the Ministerial various strategies to stabilize this increase. One of the main Urbanization Committee (MUC) and the National Consultative approaches is the development of the National Population Policy Committee on Urbanization (NCCU) were established to develop (2000 – 2010). The policy aims to guide PNG into the first the National Urbanization Policy. decade of the 21st century on the population issue. The policy also focuses on various issues that are associated with population The proposed Urbanization Policy addresses the current social, growth such as employment, education, health and so forth. Some economic and the environmental problems related to the towns of the main focus of the policy includes; and cities of Papua New Guinea. Its primary focus is to ensure § Improving the quality of life urban benefits spread to all communities and to promote all urban § Absorption of labour force centres as Engines for Nation’s Development. The policy cover § Improve reproductive health services § Reduction of infant and child mortality 19 Havana 2005 - Documentation of experience SCP/LA21

§ Balance rural and urban development Nearly all of these strategies are included in the Mid-Term § Prevention of Sexually Transmitted Disease including Development Strategy (2005-2010) and the National Government HIV/AIDS is pooling its resources in achieving these objectives. § Migration Urban poverty is sever, thus the urban authorities with the help On the basis of this policy the government addresses rapid urban from the donors, the civil societies and the non-government population growth and the mechanism for control. organizations have developed their own strategies to combat this issue, one of this the formation of the Informal Sector Act. The Review of the Law and Justice Sector in Papua New Guinea in 2000 -2003. Informal Sector Act This was one of the reviews by the major law and order agencies In 2003, the National Government in its attempt to promote urban in PNG. They include; the Royal Papua New Guinea economy has implemented the Informal Sector Act. The main Constabulary, Correctional Services, the Department for Justice purpose of this is to provide opportunities for the underprivileged and Attorney General, the National Judicial Systems and the (unemployed and/ underemployed) to have equal opportunities to Judicial Staff Services. This review was purposely carried out to part take in the urban opportunities and remain involved in the identify opportunities to improve efficiency, effectiveness, economic activities. It also encourages local communities from coordination and accountability in the agencies and across the the urban peripheries to bring their local produce to sell at the sector that deal with law and order issues. urban markets.

Urban Land Release for Development Informal market activities is one of the recent Government One of the major urban issues is traditional land ownership of attempts which is in line with the MTDS. The purpose of this is urban prime land. In line with the National Urbanization Policy, to trigger het private sector, including ordinary Papua New there is a new approach towards urban land registration and Guineans in rural communities, to become productively engaged release for development. A pilot project is proposed to be carr ied in growing the economy, by harnessing the entrepreneurial spirit. in some selected cities/towns in PNG where traditional land This would in a long run resolve many other social and economic owners retain ownership to their land; however, the land is related problems of the urban population such as law and order released for urban development and expansion. This strategies problems, urban poverty etc. In line with this, the government pens new avenues for local urban land owners to participate fully also focuses on rural development in terms of agricultural with the urban development and there is much excitement among activities and improvement on transportation networks of the urban landowners about the policy initiative. country.

B. Environmental Issues D Sustainability

Protection of the natural environment in PNG is a constitutional Sustainability is also an important issue in Papua New Guinea but obligation and is captured by the fourth National Goal and is rarely a new concept; for instance, sustainable development, Directives Principle of Natural Resources and Environment. sustainable community, sustainable city, sustainable environment Ecologically sustainable development is a necessary condition to and so forth. With the assistance from the international partners, ensure that PNG’s development policies are sustainable over the the National Government in various policy formulation and long term and it is an explicit objective of the core development strategies attempts to address sustainability, especially the quality strategy under the MTDS. of life at the community level such as economic, social and environmental systems that ensures healthy, productive, and In regard to the Global concern, Papua New Guinea being meaningful life. recently introduced to the industrialized world, the environmental issues such as conversation, climate change, However, due to the social and cultural complication and the prevention of global warming, protection of marine pollution and social and political scenario of the country, the progress of so forth are not that severe like many Developed Nations. sustainability is slow, but it requires sustained awareness to However, the National Government with help from some address this issue in order to achieve the Global Millennium international organizations has developed strategies to address Goal.. some of the significant environmental issues. Type of support that is being received at C. Poverty Reduction national level from global/international Poverty is one of the major social constraints in the development facilities to implement the following global of Papua New Guinea. The National Government in collaboration agenda: with several donor agents seriously attempted to address this issue. In fact, poverty associates with other social and econom ic Papua New Guinea has received various forms of assistance from factors such as population increase, law and order problems, the international organizations in order to implement Global rural-urban economic activities and many other interrelated agendas. Most of these include technical and financial assistance, factors. As such, the other policy and strategies such as Informal capacity building, international conferences and seminars, Sector Act, the Government’s Export Driven Economy, Private expatriates, advisory and consultancy services and so forth. Sector-led Economic Growth, Resource Mobilization and Alignment, and the recent “Green Revolution” effort by the A. Financial Assistance Prime Minister, Sir Michael are some of the current development Since independence, the National Government has received strategies that aim to alleviate poverty in the country. substantial amount of financial assistance from the international partners. PNG obtained assistance in the form loans, which the

20 Havana 2005 - Documentation of experience SCP/LA21

Government repays steadily over a period of time or in a form of A.1 Law and Order aid. Much of these are utilized in the developmental process. Law and order being one of the major problem in this country, not only in the urban but a nation wide issue it has, several As stated earlier, the funds are used according to the National international donors have included in this. Government Budget priorities, which are set out in the MTDS. Safer Port Moresby Initiative –This project was funded by the A Technical Assistance UNDP and was executed by the UNHCS (HABITAT). This was Technical assistance is also an important aid to PNG provided by a city wide safer city initiative. It involves government, the the international partners. Especially, in the social, political, and criminal and justice system, communities, NGOs, the private economic sector such as , mining, industries and so sector and so forth. The initial stage involves the diagnosis of forth where expatriates are required. Papua New Guinea often insecurity in Port Moresby, results of the findings helps other sought assistance from the international partners in order to organizations such as Community Justice Liaison Unit to address address most of the Global Issues. urban crime and violence in PNG.

C Capacity Building Australia Assisting Police – This is an initiative between the Capacity building is one of the main priorities focused by most Australia and the PNG government where the Australian Federal international partners in terms of assistance. There are various Police assisted the PNG Royal constabulary to address crime in forms of capacity building, for instance, “learn by doing” is the country. The AAP work along side with the PNG counter part where the national learn through the implementation of new to address crime and lawlessness in the country. programs or projects by the recipient country. Other form of capacity building is through research aboard, or taking up further AAP part of the Enhanced Cooperation Package, which is a 5- studies overseas. Also, foreign expatriates, volunteers and the year package of assistance will place personnel from a wide nationals conduct special training to embark special skills and range of Australian government agencies into positions within training that deemed necessary. key PNG agencies.

Furthermore, capacity building programs are also provided in Community Justice Liaison Unit - This funded by AusAid in terms of scholarship were many Papua New Guinea advance their partnership with PNG Government. The program aims to involve equational qualifications in their profession abroad. in crime prevention and restorative justice systems.

D International Conferences and Seminar Guns Control - This is another recent major nationwide Papua New Guinea is a participant to many International awareness initiative taken by the National Government which conference, seminars or meetings often held to discuss various funded by the UNDP, the AusAID and the government of PNG. global issues. In such gatherings, PNG is recognized by other It is related to gun smuggling which increases the illegal use of international partners but most importantly, PNG gain its firearms in the country. assistance necessary to address global issues. The Review of the Law and Justice Sector in Papua New F Expatriates advise and consulting services Guinea in 2000 -2003 – After independence, PNG still maintains its relationship with the This was funded by the AusAID. international partners in terms of expatriate advice and consulting services. International consulting services are often essential for B Environmental Issue addressing global issues, In different fields, including UNDP is the UN’s global development network which advocates nearly all the Millennium Development Goals in PNG. Currently International organizations and their UNP is involved in addressing Energy and Environment for Sustainable Development. involvement in Papua New Guinea (references) C Poverty Reduction Several international donors address this issue either directly or The international organizations in partnership with PNG have indirectly. Some of the major ones include JICA, UNDP, addressed the Global issues in many ways. Some of these AusAID, China, Thaiwan. Assistance are provided through presented here below. agricultural, Community development initiative, capacity building programs and so forth. A Urban Issues According to the Global Agenda regarding the urban issues, the D Sustainability international partners, especially UN-HABIATAT, UNDP This is also a new areas where international organizations such as AusAID and many others are involving in addressing the urban JICA, UNDP, UN-HABIATA, AusAID, China, Thaiwan ect are issues, especially in the following areas; involved to various sustainable such as urban, agriculture, environment and so forth.

Table 1: A summary indicating int ernational organizations that involved in assisting community groups, non-government organizations (NGOs) and government agents. International Their involvement in PNG Types of Activities Assisted Organizations 1. Head of Mission Direct · Community Groups · Development and self-help activities Aid Program (HOMAP) (women) 21 Havana 2005 - Documentation of experience SCP/LA21

International Their involvement in PNG Types of Activities Assisted Organizations 2. British High · NGOS, CBOs · Community Groups, esp. women Commission (DFID) 3. Japanese Grant · Any non-profit · Primary and Secondary education Assistance for Organizations · Poverty Relief Grassroots Program · Public Welfare (GGP) · Environment. Population and HIV/AIDS · Basic Infrastructure 4. New Zealand Small · Community groups, · Improve living conditions eg. Water supply Project Funding women’s groups and youth · Generate some money for the community groups · Improve health or skills levels 5. Global Environment · NGOs · Environmental projects in the areas of: Facility Small Grants · Biodiversity conservation, Climate change Program (GEF) UNDP · Prevention of Global Warming · Protection of international waters 6. Canada Fund · Communities, CBOs, · Projects which aim to alleviate poverty through NGOs, Health and improving access to health, family planning, education institutions nutrition, education, employment and decision- making. 7. Japanese Empowerment · Volunteer organizations, · Community Development Program (JICA) non-profit organizations, · Elderly, disabled and child welfare Support community organizations, · Women’s empowerment NGOs, semi-government · Improvement of living environments organizations. · Capacity Building · Promotion of Local industries

Australia’s funding mainly focuses on Governance, globalisation, energy and environment for sustainable development and human capital, security and sustainable Resource Management. responding to HIV/AIDS. Similarly, other international UNDP also focuses at some areas which include reducing organizations like ADB contributes significantly towards PNG poverty, democratic governance, crises prevention and recovery, development.

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PERU Experiencia nacional

Rosario Gómez

Objetivos § Desarrollo de capacidades y formación de líderes § Diseño de instrumentos para la prevención de desastres Informar sobre el avance de ambos programas en el Perú y su § Formación y consolidación de redes contribución en la gestión urbana. Los programas han promovido la integración de los actores Brindar información sobre las actividades del PCS y A21L para claves locales en la gestión urbano-ambiental y en la elaboración retroalimentar la evaluación de los programas PCS y A21L . de los presupuestos participativos. Para ello, se han diseñado diversos mecanismos de participación (Cuadro No 1). Además, Para el logro de los objetivos propuestos se abordan tres temas: la participación ciudadana ha sido mayor durante la década del § Innovando noventa a través de diversos mecanismos, por ejemplo, las juntas § Integración de la innovación en el ámbito nacional de vecinos, los comités comunales o cabildos abiertos, entre § Integración de la innovación en el ámbito mundial otros. Los diálogos han sido ricos en la discusión y provechosos en los resultados, ya que no sólo han promovido el intercambio de opiniones y recogido ideas y experiencias de problemas TEMA 1: Innovando comunes; sino que han contribuido a generar sinergias inter- institucionales en temas críticos y de urgente solución. Contribución al logro de cambios positivos para enfrentar la gestión urbano-ambiental. Arequipa ha sido una de las ciudades más activas en procesos participativos, ello ha facilitado la conducción de procesos Los programas PCS y A21L han contribuido en los siguientes siguientes tal como: proyecto GEO Arequipa, entre otros. aspectos: § Integración de los actores locales La participación activa de los actores claves ha facilitado los § Facilitación de los procesos de planificación y gestión procesos de planificación y concertación. Aunque el avance aún urbano-ambiental es lento.

Cuadro No 1 Mecanismos de incorporación de actores locales · Comités Ejecutivos Provinciales · Directorio de los actores · Brigadas de ecologistas de Medio Ambiente · Comité municipal · Comisiones mixtas · Comisiones Ambientales · Grupo promotor de la AL 21 · Convocatoria de expertos en el Regionales (CARs) · Entrevistas, encuestas y vínculos tema a través de alianzas · Directorio de expertos con profesionales relacionados a · Firmas de convenios · Escuelas de líderes locales los temas ambientales · Reuniones con especialistas

Fuente: UNHABITAT/Universidad del Pacífico (2004). Seminario La Experiencia Peruana en Planificación y Gestión Urbano-Ambiental.

El Consejo Nacional del Ambiente (CONAM) y osl actores diplomados) o seminarios en planeamiento y gestión urbano- locales están desarrollando tres experiencias piloto de apoyo a la ambiental. Todos ellos orientados a desarrollar las capacidades gestión ambiental integral, en Cotahuasi (Arequipa), Huarmey locales en los diversos temas de la gestión urbano ambiental local (Ancash) y Tarapoto (San Martín). Las acciones que se impulsan (p.e. planeamiento urbano estratégico, uso de GIS, desarrollo en las respectivas municipalidades son las siguientes: promover urbano sostenible, preparación y evaluación de riesgos, gestión y el liderazgo del Alcalde, incorporar una visión descentralizada y administración del suelo urbano, liderazgo y manejo de conflictos transectorial del ambiente, establecer una oficina ambiental socio ambientales, entre otros). Ello no sólo mejora las dependiente directamente de la alcaldía, implementar un enfoque capacidades profesionales y la destreza en el manejo de gerencial que permita una eficiente implementación de las instrumentos adecuados, sino que también genera un gran acciones, utilizar como herramienta la evaluación de impacto compromiso de los profesionales para contribuir con la solución ambiental y manejar de manera óptima la legislación ambiental . de los problemas de su ciudad (p.e. Arequipa, Chiclayo, Chimbote). Las ONG´s también han contribuido con el De otro lado, se ha promovido el desarrollo de las capacidades de desarrollo de capacidades para la gestión urbano ambiental los líderes locales, lo cual se ha expresado en el establec imiento o participativa (Cuadro No 2). fortalecimiento de programas de postgrado (Maestrías o

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Cuadro No 2 Lima: Ejemplo de proyectos urbano-ambientales para desarrollar capacidades Institución Proyecto Ámbito Geográfico DESCO Fortalecimiento de capacidades para la gestión urbana Cono Sur (Villa El participativa Salvador) Foro Ciudades para la Capacidades para construir sosteniblemente barrios y Villa El Salvador y Vida viviendas populares Chimbote Sociedad Peruana de Programa de capacitación en gestión ambiental Lima Metropolitana y Callao Derecho Ambiental municipal (SPDA) Elaboración de diagnósticos ambientales locales Fuente: PNUMA/CONAM/GEA (2005). GEO Lima y Callao

De otro lado, el Instituto Nacional de Defensa Civil (INDECI) Este programa se enmarca en el Plan Nacional de Atención y está ejecutando en el ámbito nacional el Programa de Ciudades Prevención de Desastres, aprobado en el año 2004 genera un Sostenibles, primera etapa, en la cual se enfatiza en la seguridad conjunto de instrumentos claves para la toma de decisiones en los física de las ciudades. Dicho énfasis responde a que los efectos ámbitos nacional, regional y local en el tema de prevención de producidos por fenómenos naturales y antrópicos pueden causar desastres. Entre los instrumentos se incluyen los siguientes: pérdidas de magnitud que afectan la calidad de vida de la mapa de peligros, plan de uso del suelo, propuestas de medidas población y limitan el desarrollo sostenible, si no se toman de mitigación ante desastres. El recuadro siguiente indica las medidas preventivas . principales características y alcances del Programa de Ciudades Sostenibles.

Programa Ciudades Sostenibles, primera etapa (PCS -1E)

Objetivos ü Promover y orientar la prevención y mitigación de desastres en las ciudades, a través del crecimiento y densificación de las mismas sobre zonas físicamente seguras. ü Promover una cultura de prevención de desastres naturales.

Estrategia ü Participación activa de todos los actores interesados en un desarrollo urbano seguro: gobiernos regionales, locales, la población organizada, los sectores productivos y sociales, universidades, profesionales e instituciones vinculadas con el terma. ü Enfoque integral del problema.

Avances ü En el PCS participan 103 ciudades y localidades de diferentes regiones del Perú. ü 87 de las cuales tienen mapa de peligros. ü 54 ciudades tienen planes de uso del suelo y medidas de mitigación ante desastres. ü 42 municipalidades han aprobado los estudios por ordenanza municipal y se encuentran en proceso de implementación. ü Se dispone de dos estudios de caso (Lambayeque y Huaráz).

Fuente: INDECI (2005). Programa Ciudades Sostenibles, primera etapa.

Finalmente, los PCS y A21L a través de los diversos proyectos y entre gobierno central, regional, local, población organizada, actividades ejecutadas han promovido la construcción de redes, ONG´s y sector empresarial es clave. En este proceso se lo cual ha facilitado el intercambio de información sobre evidencia la participación de otros actores como sacerdotes, actividades en curso e información disponible, favoreciendo en periodistas, profesores, promotores de salud, entre otros, con un algunos casos, la identificación de proyectos institucionales de rol clave en la formación de opinión pública local. Como común interés. resultado de esta interacción, en algunos casos se han constituido instancias para enfrentar problemas ambientales y de salud. Factores nacionales que facilitan u obstaculizan los cambios El liderazgo local permite optimizar el uso de los recursos Los factores que facilitan experiencias exitosas son escasos y reducir los factores de riesgo en la gestión urbano- principalmente de carácter local, tales como: voluntad política y ambiental. Dichos liderazgos pueden ser institucionales o activa participación de la autoridad local (p.e. San Marcos, Ilo); individuales, pero se requiere que alguien facilite la coordinación liderazgo local y estable y capacidad local para manejar procesos entre los actores. Además el líder propone y prioriza planes y de concertación y negociación. La interacción positiva efectiva acciones .

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Arequipa: Participación en instancias de toma de decisionesEn diciembre del 2003, por mandato de la ley de municipalidades, se conformó el Consejo de Coordinación Local Provincial. Dicho Consejo está integrado por autoridades municipales y por los representantes de las organizaciones de base. Las funciones del Consejo son: coordinar y concertar el Plan de Desarrollo Municipal Provincial Concert ado y Presupuesto Participativo Provincial, así como proponer prioridades en las inversiones y proyectos.

Fuente: PNUMA/Municipalidad Provincial de Arequipa/Labor (2005). GEO Arequipa.

De otro lado, la elaboración participativa de planes de desarrollo para la realización de determinadas actividades; sin embargo, los urbano ambiental, basados en estudios que determinan la sectores son los responsables de la normativa y de la fiscalización viabilidad de las acciones prioritarias, es un factor clave en el éxito de la experiencia. Aquellos planes que responden a De otro lado, un aspecto que limita el avance de los cambios son necesidades de la comunidad, que establecen objetivos, metas, los limitados recursos humanos en la función pública con responsabilidades, financiamiento, cronograma de ejecución y capacidades para la formulación y evaluación de proyectos. Hoy mecanismos de monitoreo y evaluación, promueven proyectos en día en varias regiones los recursos asignados a inversiones exitosos y replicables . quedan sin uso por dicha debilidad .

En cuanto a los factores del ámbito nacional, cabe destacar que a En este sentido, si bien hay iniciativas de coordinación partir del año 2002 se inició un proceso de descentralización. En interinstitucional en determinados temas (p.e. Iniciativa de Aire dicho contexto, se han promulgado un conjunto de dispositivos Limpio), el proceso es lento. que demandan una planificación y gestión urbano-ambiental efectiva y eficiente. Entre los principales se tienen los siguientes: Mecanismos creados para mejorar desde el nivel nacional el § Ley de bases de descentralización (2002) proceso de cambio en el ámbito local § Ley orgánica de gobiernos regionales y su modificatoria (2002), en la cual se regula la participación de los alcaldes Entre los mecanismos creados para mejorar el proceso de cambio provinciales y la sociedad civil en los gobiernos regionales. en el ámbito regional y local se tienen los siguientes: § Ley orgánica de Municipalidades (2003). Establece que § Sistema Regional de Gestión Ambiental (2003): tiene como corresponde a las municipalidades planificar, ejecutar e objetivo guiar la gestión ambiental regional. En este impulsar el conjunto de acciones destinadas a proporcionar sentido, orienta, integra, coordina, supervisa, evalúa y al ciudadano el ambiente adecuado para la satisfacción de garantiza la aplicación de las políticas, planes, programas y sus necesidades vitales de vivienda, salubridad, acciones destinadas a la protección del medio ambiente y abastecimiento, recreación, transportes y comunicaciones. contribuir con la conservación y aprovechamiento de los Asimismo, señala que las Municipalidades son responsables recursos naturales en las regiones. del acondicionamiento territorial dentro de su jurisdicción § Sistema Local de Gestión Ambiental (2003): tiene por debiendo regular el uso de la tierra y el establecimiento de finalidad desarrollar, implementar, revisar y corregir la áreas urbanas. política ambiental local y las normas que regulan su § Ley del sistema de acreditación de los gobiernos locales organización y funciones, guiando la gestión de la calidad (2004). Referida a la capacitación, asistencia técnica y ambiental, el aprovechamiento sostenible y la conservación normas para determinar la capacidad de los gobiernos de los recursos naturales, procurando el mayor bienestar de regionales y locales para recibir y ejercer la funciones la población local. Busca fortalecer la participación de las materia de la transferencia y asumir competencias, municipalidades, los vecinos y demás gestores del desarrollo funciones, atribuciones y recursos. También establece entre local, a través del establecimiento de políticas e sus funciones la implementación de un sistema de instrumentos de gestión. Con la finalidad de facilitar a los información para la gestión pública descentralizada; la gobiernos locales la implementación de este sistema, el certificación del efectivo funcionamiento de las juntas de CONAM ha desarrollado una Guía, la cual se encuentra en coordinación interregional entre gobiernos regionales para proceso de validación y consulta pública. materialización de acuerdos de articulación macrorregionales, entre otras. La implementación de estos sistemas es gradual, considerando que son relativamente recientes y se dan en un proceso de cambio En cuanto a los factores que limitan el avance de los cambios, se inducido por el proceso de descentralización. encuentra la sectorialización, la cual es una característica de la institucionalidad urbano-ambiental en el país. Ello se traduce en Para hacer efectivos estos instrumentos en los diferentes ámbitos conflictos de competencias, limitada coordinación se requiere de una coordinación interinstitucional efectiva y interinstitucional, información de acceso limitado, uso limitado eficiente, capacidades multidisciplinarias y sistemas de de criterios transparentes y difundidos para la priorización de información completos y actualizados. proyectos y la asignación de recursos. Documentación y difusión Por ejemplo, una de las limitaciones que enfrenta el gobierno local es en el control de la calidad ambiental. En dicho tema, los Las innovaciones impulsadas por el proyecto PCS-.A21L si bien ministerios de cada sector son los que toman las medidas han sido debidamente documentadas en reportes y en varios pertinentes y no las municipalidades, pese a que los casos difundidas a través de foros, seminarios; son relativamente establecimientos que afectan la calidad ambiental se encuentren escasos los libros y publicaciones impresas. en el ámbito geográfico del gobierno local. Además, los Estudios de Impacto Ambiental (EIA’s) han sido incorporados como Este hecho sugiere que los proyectos futuros de los dos instrumentos de gestión ambiental en los municipios, exigidos programas en referencia, tengan asociada una estrategia de difusión y evaluación de impacto, lo cual permita extraer

25 Havana 2005 - Documentation of experience SCP/LA21 lecciones aprendidas del proceso y que dichos resultados sean de Además, es urgente mejorar la normatividad, ello implica fácil acceso en diferentes presentaciones (p.e. libros, CD´s, identificar inconsistencias, vacíos y superposiciones y realizar los versión electrónica). ajustes necesarios. Finalmente, es necesario establecer un sistema objetivo de evaluación y promoción de la carrera pública TEMA 2: Integración de la innovación en el que permita estabilidad a los funcionarios con desempeño destacado. ámbito nacional Uso de las innovaciones por parte del sector académico para Las innovaciones son utilizadas para desarrollar y desarrollar y perfeccionar la currícula educativa perfeccionar la política y estrategias nacionales El sector académico ha respondido a las demandas de Los procesos promovidos a partir del proyecto PCS-A21L han competencias en planificación y gestión urbano-ambiental permitido desarrollar capital humano especializado, desarrollando programas de especialización (Maestrías, identificación de temas prioritarios, redes, lo cual contribuye a diplomados, seminarios). Además, tanto en el diseño como en el perfeccionar la política y estrategias nacionales. A continuación desarrollo de estos programas, en varios casos, han participado se indican, a modo de ejemplo, algunos campos de aplicación de los actores que participaron en los proyectos de PCS o A21L. dichos procesos: De esta manera, se ha transferido la experiencia profesional § Acuerdo Nacional (2002): documento de orientador de la adquirida al ámbito académ ico para su sistematización y difusión política nacional suscrito por los representantes de los (p.e. elaboración y discusión de casos), así como para hacer los diversos sectores político, económico, social y ambiental del cambios metodológicos necesarios que permitan formar país. Las políticas 8 (descentralización política, económica profesionales con criterio para la toma decisiones en gestión y administrativa para propiciar el desarrollo integral, urbano-ambiental, capacidad de diseño e implementación en el armónico y sostenible en el Perú y 19 (desarrollo sostenible uso de instrumentos de gestión. y gestión ambiental) señalan un mandato de liderar una gestión pública eficiente y transparente con mecanismos de En qué medida las innovaciones han sido incorporadas en coordinación en los diversos ámbitos de gobierno (nacional, otros sectores de actividad. regional y local), donde la dimensión ambiental se maneje de manera transversal. Las innovaciones se van incorporando gradualmente en otros § Estrategia Nacional para la Competitividad (2005): sectores. Por ejemplo, el sector educación, en materia de documento en elaboración de manera participativa bajo el educación ambiental ha definido un enfoque de emprendimientos liderazgo del Consejo Nacional de Competitividad. En esta sostenibles, el cual se difunde a partir del proyecto Escuelas oportunidad, a diferencia de la Estrategia de Competitividad Saludables. El enfoque emprendedor promueve la formación de formulada en el año 2003, se ha incluido el tema ambiental. líderes para identificar oportunidades de negocio que aseguren Este tema no sólo se trabaja en la mesa ambiental sino que rentabilidad, impactos sociales favorables y promoviendo el uso se ha articulado con otras mesas (p.e. institucionalidad, eficiente de los recursos naturales y la conservación del articulación empresarial, entre otras). ambiente. § Sistema Nacional de Gestión ambiental (2004): señala los alcances de las funciones ambientales en los ámbitos Si bien el proceso de incorporación es lento, los sectores regional y local. productivos y los gremios van instalando unidades de gestión § üPlan Nacional de Atención y Prevención de Desastres ambiental integral, comités de gestión ambiental, entre otros, para (2004). resultado de los primeros aportes del proyecto un mejor diseño e implementación de sus políticas y medidas. Ciudades Sostenibles en Lambayeque y Huaraz. § Las Comisiones Ambientales Regionales (CAR) han capitalizado los liderazgos locales desarrollados en el marco TEMA 3: Integración de la innovación a nivel de los proyecto PCS-A21L. Los actores locales que mundial participan en dichas Comisiones tienen un alto grado de compromiso para aportar en la mejora de la gestión urbano- Relación entre las actividades nacionales de los programas ambiental. PCS y A21L y las Agendas Mundiales. § Proyecto Estrategia de Lucha contra la Pobreza en Lima Metropolitana (2004), financiado por el Banco Mundial para Los proyectos y actividades promovidos por PCS y A21L la Municipalidad Metropolitana de Lima. Este proyecto guardan estrecha relación con la agenda mundial en el tema. Por tuvo como objetivo identificar ideas de proyecto para ejemplo, el proyecto GEO Ciudades (PNUMA) capitalizó los reducir la pobreza a partir de la solución de los principales liderazgos y capacidades locales. En el Perú, se están realizando problemas de la ciudad. El proyecto incluyó un capítulo tres informes GEO Ciudad (Arequipa, Lima y Callao y ambiental. Chiclayo), a diferencia de otras ciudades latinoamericanas donde por lo general se realiza solo un estudio. Reformas necesarias en el campo de la gobernabilidad para integrar los cambios en l a gestión urbano-ambiental local A su vez, el Plan Nacional de Atención y Prevención de Desastres se enmarca en la agenda mundial que enfatiza en el La incorporación de las innovaciones, de las propuestas exige de desarrollo de ciudades seguras y sostenibles. una decidida voluntad política para realizar una reingeniería institucional en el aparato público que facilite una gestión pública Finalmente, en el Perú se va a implementar la estrategia regional eficiente, transparente y efectiva. Ello implica rediseñar y de apoyo a la planificación y gestión urbano-ambiental, la cual armonizar las competencias, funciones y atribuciones urbano- responde a la alianza entre PNUMA y UNHABIT AT. Ello es un ambientales, tanto territoriales como sectoriales. ejemplo del paso adelante que se da, en el proceso de hacer 26 Havana 2005 - Documentation of experience SCP/LA21 transversal el tema ambiental y efectivizar el enfoque integral en PNUMA/CONAM/GEA (2005). GEO Lima y Callao. Lima: el desarrollo urbano. PNUMA/GEA.

Bibliografía PNUMA/CONAM/Municipalidad Provincial de Arequipa/Labor (2005). GEO Arequipa. Arequipa: PNUMA/Municipalidad CONAM (2001). Informe sobre el Estado del Medio Ambiente, Provincial de Arequipa. GEO Perú, 2000. Lima: CONAM-PNUMA. UNHABITAT/CIUP (2004). Seminario La Experiencia Peruana INDECI (2004). Programa Ciudades Sostenibles, primera etapa. en Planificación y Gestión Urbano-Ambiental. Lima: Lima: INDECI. UNHABITAT/CIUP.

Miranda, Liliana (ed.) (1996). Ciudades para la Vida, Páginas web experiencias exitosas y propuestas para la acción. Lima: DGIS- Ipadel, IHS, PROA-PGU. www.conam.gob.pe

Municipalidad Metropolitana de Lima (2004). Estrategia de www.unsa.edu.pe Lucha contra la Pobreza en Lima Metropolitana. Tema: Medio ambiente. Lima: Banco Mundial. www.indeci.gob.pe

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AREQUIPA , PERÚ Proyecto GEO-Agenda 21 Local de Arequipa

TEMA 1: Innovando (2003-2006) se dio continuidad a las mismas y además se está implementando programas y proyectos. Contribuciones de los Programas de PCS y A21L a la Gestión § Nuevas normas en los niveles nacional, regional y local que Urbana Ambiental de la ciudad promueven la participación ciudadana en los presupuestos participativos, consejos de coordinación local y regional. En Arequipa, los programas A21L y PCS han contribuido con un § El interés de organizaciones públicas y privadas para nuevo enfoque para enfrentar la planificación y gestión urbana promover y difundir la problemática ambiental. ambiental de la ciudad. § La capacitación profesional a través de estudios de post grado en planificación y gestión ambiental y otros afines. Hacia fines de la década de los ´90, Arequipa se incorpora al § A pesar de ser escasos los espacios de concertación y proceso de Agenda 21 Local como resultado de la acción de participación ciudadana, de carácter formal o voluntario, líderes locales, instituciones y ciudadanos, frente a los problemas estos han contribuido a ejercer presión sobre las autoridades ambientales de la ciudad. Se inicia una nueva forma de para asumir actitudes de cambio. identificación de las autoridades locales y la población con su § Las campañas de difusión y sensibilización han logrado que ciudad, se promueve la implementación de proyectos de gestión la población tenga un mayor conocimiento de los problemas ambiental en los procesos de desarrollo local. Así, en el marco de ambientales, la A21L se dieron innovaciones tales como: En la Planificación del Desarrollo de la ciudad: se elaboró y Obstáculos: aprobó el Plan Estratégico de Arequipa Metropolitana y el Plan § La dimensión ambiental aún no encuentra los mecanismos Director de Arequipa Metropolitana. para articularse al desarrollo integral de la ciudad. En la Gestión Urbana Ambiental: a partir de la A21L se § Los compromisos de las instituciones locales muchas veces priorizaron programas y líneas de acción referidas a la se quedan en intenciones y generalmente son asumidos de descontaminación atmosférica, el manejo integral de las áreas manera personal, es decir, que no reflejan necesariamente verdes, la recuperación del río Chili y la gestión de residuos los compromisos institucionales. Quizá sea la razón medular sólidos; que, progresivamente han ido formando parte de la por la que no se llega a concretar acciones significativas en agenda de la ciudad. los procesos de gestión ambiental. En la Institucionalidad de la Gestión Ambiental: En 1999 se creó § La mayor parte de las acciones se centran en políticas o la Comisión de Gestión Ambiental como instancia técnica normas que generalmente se traducen en planes que todavía consultiva por la administración municipal, que impulsó los no han logrado implementarse. Existe una gran distancia procesos de A21L; en el 2003, se institucionaliza formalmente entre la formulación de planes y la implementación de los mediante la creación de la Dirección de Gestión Ambiental y en mismos. Una de las principales razones se debe al limitado el 2004 se crea la Sub Gerencia de Gestión Ambiental, que forma presupuesto que se destina a los proyectos ambientales. parte de la estructura orgánica de la Municipalidad Provincial de § La escasa articulación entre los diferentes planes de Arequipa y, por tanto se le asigna personal y presupuesto. desarrollo local, incluso con algunas contradicciones entre sí. En el desarrollo de la Estrategia Urbana en Arequipa se ha § Predominan visiones de corto plazo con exigencias de culminado la primera etapa del proceso, cuyo resultado ha sido la resultados inmediatos que no necesariamente se integran a producción del Informe GEO Arequipa. PNUMA y UN- una proyección de cambios progresivos de mediano y largo HABITAT. El proceso GEO Arequipa permitió la incorporación plazo. de los puntos de vista y percepciones de expertos, instituciones y § Conflictos de competencias expresadas en superposición de políticos relacionados con la gestión ambiental urbana de funciones, inadecuada definición y vacíos de competencias Arequipa y la construcción de consensos sobre asuntos y § El limitado acceso a la información oportuna, confiable, cuestiones prioritarias. sistematizada y actualizada para la toma de decisiones. § Las capacidades para la gestión ambiental al interior del En esta segunda etapa de la Estrategia consiste en la puesta en gobierno local aún son escasas, se requiere darle continuidad marcha de acciones prioritarias de apoyo a la gestión, y a la al fortalecimiento de las mismas, formulación de planes de acción urbano-ambientales en temas específicos para su incorporación a los instrumentos de la Frente a las dificultades económicas se ha logrado destinar planificación municipal y territorial algunos fondos del presupuesto participativo del gobierno local para la ejecución e implementación de pequeños proyectos 2. Factores que facilitan y/o obstaculizan logros en la Gestión ambientales, puesto que se requieren de inversiones fuertes para Urbana Ambiental proyectos de mayor envergadura e impacto. Se ha entablado relaciones de apoyo con las empresas privadas locales y se está Facilitan: gestionando financiamiento externo. § La voluntad política es fundamental para darle continuidad a la A21L, es así que en la gestión local de 1998-2002 se Se cuenta con apoyo técnico de instituciones con experiencia en formularon políticas, planes y normas; y, en la gestión actual temas ambientales para fortalecer la gestión ambiental local y la generación de capacidades al interior del gobierno local. 28 Havana 2005 - Documentation of experience SCP/LA21

§ Comité Multisectorial Provincial de Gestión Ambiental La Municipalidad Provincial viene liderando, promoviendo y de Residuos Sólidos participando activamente en espacios de concertación § Comité de Salud Ambiental de Arequipa interinstitucional. La participación de los actores aún es escasa, se requiere de mayor apoyo logístico, técnico y económico para el logro de sus En el marco de los programas de A21L y el PCS se suscribieron objetivos, nuevamente los planes que se elaboran por estas convenios tales como: PNUD (Estudio de Riesgos en Arequipa), carencias no se traducen en acciones concretas PNUMA/UN-HABITAT (Informe Urbano Ambiental GEO Arequipa), UN-HÁBITAT (Estrategia Urbano Ambiental). Capacitación: § Programas de formación y fortalecimiento de 3. Mecanismos para apoyar el proceso de cambio capacidades (Gobierno local y Regional, Colegios Profesionales, Sector Privado, CONAM, ONGs) Normatividad: § Programas de educación ambiental (CONAM, ONGs) § Los mecanismos de carácter normativo y de sanción, todavía § Programas de difusión y sensibilización (Gobierno tienen problemas para su implementación y cumplimiento. Local, CONAM y ONGs) Aún no se han generado instrumentos económicos que § Estudios de postgrado (Universidades públicas y pueden contribuir a una gestión urbana ambiental en la privadas) ciudad más eficiente, menos costosa, más eficaz, más participativa y menos burocrática. Razón por la que es La capacitación es indispensable en todo proceso de cambio para importante conocer los beneficios como los costos o los actuar con conocimiento y criterio en la búsqueda de soluciones problemas involucrados con su introducción e adecuadas a la realidad, aún es un aspecto que requiere implementación que generalmente están asociados a fortalecerse. obstáculos técnicos y políticos. Se requiere definir instrumentos eficientes y eficaces acordes a nuestra realidad. 4. Documentación, difusión y reconocimiento de las innovaciones impulsadas por el PCS-A2IL Planificación: § Planes de Desarrollo (Plan Estratégico y Plan Director) La evaluación del estado actual del ambiente local, ofreciendo La planificación urbana aún carece de mecanismos que elementos técnicos y políticos para fundamentar la toma de hagan efectivo su cumplimiento para orientar el crecimiento decisiones en la planificación del desarrollo urbano y de la ordenado de la ciudad hacia zonas seguras con los servicios gestión ambiental de la ciudad. Ha permitido identificar los y equipamientos básicos que garanticen la calidad de vida de riesgos ambientales más significativos así como las la población. Es indispensable e impostergable la oportunidades de resolución e intervención del gobierno local y integración de los planes y estudios existentes así como la la sociedad civil. Y, finalmente se ha logrado identificar los actualización permanente de los mismos para una mejor temas emergentes que formarán parte de la agenda pública de la gestión del desarrollo urbano ambiental local. ciudad.

La gestión municipal debe privilegiar el ordenamiento Los procesos de planificación han sido mediante actas de las territorial y del entorno ambiental, desde los enfoques de la reuniones de trabajo y por informes; posteriormente han sido sostenibilidad del desarrollo, la gestión sostenible de los reconocidas por el Concejo Municipal mediante Ordenanzas y recursos naturales y mejoramiento de la calidad ambiental, Acuerdos Municipales. Por lo general, las autoridades locales así como la coordinación y concertación interinstitucional y reconocen los instrumentos de planificación y gestión de la participación ciudadana en todos los niveles. ciudad aunque existen problemas para la implementación de los mismos; las instituciones públicas y el sector privado muestran A través del tiempo la institucionalidad de la gestión ambiental un limitado conocimiento de los mismos; las ONGs y grupos local se ha ido fortaleciendo, creándose las siguientes instancias: comunitarios hacen uso de los instrumentos para orientar sus § La Comisión de Gestión Ambiental y SubGerencia de acciones; las instituciones académicas los usan en sus procesos Gestión Ambiental de capacitación profesional § El Consejo de Coordinación Local Provincial (participación ciudadana) Su difusión se ha dado mediante la publicación de los Acuerdos y § La Comisión Ambiental Local y el Sistema Local de Ordenanzas Municipales en los diarios oficiales de la ciudad; la Gestión Ambiental (en proceso de formalización) publicación y difusión de diversos documentos como libros en Sin embargo, aún es incipiente la coordinación entre los ámbitos versión impresa y digital, encartes, conferencias, seminarios, de actuación política y ejecutiva dentro de la Municipalidad. La medios de comunicación (radio, televisión y prensa escrita). atomización del tema ambiental, así como el manejo sectorial han conllevado a que no se haya establecido un modelo orgánico de TEMA 2: Integración de la innovación a nivel gestión ambiental al interior de las municipalidades, por lo que son un conjunto amplio de instancias las que atienden local fragmentadamente la gestión ambiental municipal. 5. Integración de las innovaciones en la gestión de la ciudad y Organismos Interinstitucionales: su institucionalización § Grupo de Estudio Técnico Ambiental de Aire § Grupo Técnico sobre las Aguas Servidas Las innovaciones han sido institucionalizadas mediante diferentes § Grupo Técnico de Campiña instrumentos legislativos y administrativos tales como § Comisión Técnica Mixta de Transporte Ordenanzas y Acuerdos Municipales, el Texto Único de § Grupo Técnico de Transporte y Movilidad Urbana (en Procedimientos Administrativos, Reglamentos de Sanciones e conformación) 29 Havana 2005 - Documentation of experience SCP/LA21

Infracciones administrativas, Certificaciones, entre las más para la gestión del conocimiento que sirva como importantes. instrumento para la toma de decisiones en la planificación y gestión de la ciudad. Estas innovaciones han sido integradas en el quehacer diario por los actores locales en función a sus áreas de interés. Las TEMA 3: Integración de la innovación a nivel instituciones públicas locales hacen un cumplimento relativo debido principalmente a la superposición de competencias puesto nacional que persisten conflictos; las ONGs, los grupos comunitarios y el sector privado, las utilizan de acuerdo a sus actividades. 8. Cambios respaldados por la política nacional, legislación y medidas administrativas 6. Fortalecimiento del planeamiento municipal y su función coordinadora en el marco del PCS -A2IL Desde 1999, el gobierno local ha promovido diversas iniciativas para enfrentar los principales problemas ambientales de la En el marco de la Estrategia Ambiental Urbana se ha brindado ciudad, mediante la concertación interinstitucional, buscando conocimiento e información mediante la innovación de consensos para articular acciones y comprometer recursos. Se metodologías de planificación bajo enfoques estratégicos y despertó el interés no sólo de las instituciones locales, sino participativos para la toma de decisiones de los actores locales, también nacionales. poniendo en evidencia la importancia de la planificación urbana y gestión ambiental en procesos participativos en la búsqueda de Actualmente, el gobierno local está promoviendo la participación consensos y la concertación como instrumento para el desarrollo ciudadana en la formulación, debate y concertación de sus planes sostenible. de desarrollo y presupuestos y en la gestión pública. Se ha creado el Consejo de Coordinación Local Provincial (CCLP) que Recientemente, se ha puesto en marcha acciones prioritarias de participa en el diseño y aplicación de políticas, normas e apoyo a la gestión y a la formulación de planes de acción urbano- instrumentos de la gestión ambiental, de los planes, programas, ambientales en temas específicos para su incorporación a los agendas ambientales y la evaluación y ejecución de proyectos de instrumentos de la planificación municipal y territorial. inversión pública y privada. § Apoyo a la estructuración y puesta en marcha del Sistema Local de Gestión Ambiental, a través del establecimiento de La gestión ambiental peruana y lo establecido en la normatividad sus instancias constitutivas y la formulación y adopción del vigente, Ley Orgánica de Municipalidades (LOM) Nº 27972, Ley Plan de Acción Ambiental para la gestión sostenible de la de Bases de Descentralización Nº 27783 y otras, resalta que las campiña y del transporte y la movilidad urbana. municipalidades ejercen una serie de compet encias que inciden § Propuestas para la revisión del Plan Director, en referencia a directa e indirectamente sobre la gestión ambiental, aunque, la gestión sostenible de la Campiña y la gestión del muchas de ellas se encuentran dispersas entre distintas instancias transporte y la movilidad urbana. u órganos municipales, perdiendo organicidad y la lógica de § Diseño y establecimiento del Sistema de Gestión de la integralidad. Información Ambiental, como herramienta fundamental para el proceso de toma de decisiones y para el funcionamiento El apoyo nacional adicional que se requiere es optimizar y del Sistema Local de Gestión Ambiental. acelerar el proceso de descentralización en términos administrativos, de transferencia de funciones y competencias y 7. Insumos técnicos recibidos de las instituciones de apoyo de recursos económicos. Se puede impulsar tanto en los niveles centrales como locales; sin embargo, en la caso de Arequipa el En el marco del proceso de A21L, desde 1999 el gobierno local principal impulsor deberá ser el gobierno local como mediante la suscripción de convenios bilaterales y/o representante de la ciudadanía y en correspondencia con la multilaterales ha realizado programas y proyectos en relación a: historia nacional. § Capacitación en planificación, ITC-IHS - Holanda (Maestría en Planificación y Gestión Urbano Ambiental, Atlas 9. Gobernabilidad urbana Ambiental, Plan Estratégico de Arequipa Metropolitana), SwissContact (Programa Aire Limpio), PNUMA / UN- La situación ambiental es determinante en la calidad de vida de HABITAT (Estrategia Ambiental Urbana) su población, razón por la que el valor de la gestión ambiental § Intercambio de experiencias Comisión Europea (Integración radica en integrar acciones que generen sinergias entre sí, de la Planificación del Transporte y la Planificación Urbana ofreciendo oportunidades estratégicas de desarrollo y calidad en el marco de la sostenibilidad y de la A21L - Programa ambiental. URBAL) § Consultorías: BID (Desarrollo de un Sistema de Transporte La gestión ambiental exige contar con un respaldo político sólido Urbano Sostenible en Arequipa), USAID (Plan de Gestión y debe estar dotada de los recursos humanos, técnicos, logísticos Ambiental de la Cuenca Metropolitana del río Chili) y de gerenciamiento que permitan a las autoridades competentes, ejercer a cabalidad sus atribuciones legales. Así, la priorización El apoyo adicional que se requiere política y el fortalecimiento de su propia gestión ambiental, § Adiestramiento e información en relación al manejo de generará un mayor acercamiento entre municipio y ciudadanía, sistemas de información geográfica, gestión de la mejorando la calidad de vida de la población y la propia información, metodologías participativas, planificación gobernabilidad de la ciudad. estratégica en temas especializados como movilidad urbana, gestión del suelo, etc. Es necesario impulsar el desarrollo de una mayor sensibilidad y § Intercambio de experiencias locales y asistencia técnica responsabilidad de los ciudadanos respecto de la gestión § Es urgente implementar una base de datos y sistemas ambiental, a fin de promover actitudes proactivas y la de información ambiental como parte de una política participación efectiva de la ciudadanía en la solución de los 30 Havana 2005 - Documentation of experience SCP/LA21 problemas ambientales que emprenda el gobierno local, de origen a un determinado estado del ambiente con impactos sobre manera que se reduzcan las controversias entre la población y la la calidad de vida en la ciudad y provocando respuestas autoridad, se legitime su rol rector y se favorezcan sinergias para especificas del gobierno local y de la sociedad. el logro de los objetivos de la gestión ambiental municipal. La primera etapa de la Estrategia Ambiental Urbana ha logrado: La gestión ambiental debe desplegar mayores esfuerzos para sistematizar datos e identificar indicadores de calidad ambiental, integrarse en las políticas del gobierno de la municipalidad pues desarrollar capacidades técnicas para la evaluación integral del aún es concebida como una política autónoma o disociada de la estado del ambiente, promover la participación de los diversos gestión municipal general. Asumiendo la gestión ambiental como actores locales en el proceso y proporcionar una herramienta para un medio para perfilar políticas de largo plazo orientadas a la adecuada toma de decisiones en los diversos niveles de la cumplir una función articuladora del desarrollo de las actividades planificación y gestión urbano ambiental de la ciudad. socioeconómicas.

Se requiere optimizar los actuales canales de coordinación y 11. Apoyo mundial recibido por el proyecto PCS A21L para concertación interinstitucional para evitar la duplicidad de abordar las agendas mundiales esfuerzos y recursos, reforzando la participación institucional y de la ciudadanía para el establecimiento de políticas e En el marco nacional, el Consejo Nacional de Ambiente instrumentos que impulsen el crecimiento económico, la (CONAM), el Ministerio de Vivienda, Construcción y protección ambiental y la calidad de vida en el marco del Sistema Saneamiento (VIVIENDA), el Instituto Nacional de Defensa Local de Gestión Ambiental Civil (INDECI), el Programa de las Naciones Unidas para el Medio Ambiente (PNUMA), el Programa de las Naciones Unidas A efectos de contribuir a fortalecer los criterios de transparencia para los Asentamientos Humanos (UN-HABITAT) y el Programa en el ejercicio de las funciones públicas y la propia democracia de la Naciones Unidas para el Desarrollo (PNUD), han decidido participativa, es necesario que las municipalidades cumplan con unir esfuerzos para desarrollar conjuntamente la Estrategia de los mandatos legales establecidos a fin de involucrar a la Apoyo a la Gestión Ambiental Urbana en el Perú, la cual se ciudadanía en la toma de decisiones, es decir, en el proceso de concibe como una iniciativa inter-ministerial e inter-agencial, elaboración y aprobación de las políticas, normas, planes y cuyo objetivo principal es el fortalecimiento de los procesos de programas municipales; en el otorgamiento de derechos; y, en gestión ambiental urbana a nivel nacional, reforzando las general, en la adopción de decisiones que puedan implicar una capacidades locales para la evaluación y la planificación urbano- afectación de la calidad de vida de la población. ambiental integrada, aportando a la construcción de los sistemas locales de gestión ambiental como un elemento fundamental del De esta forma, la actuación municipal será dotada de mayor Sistema Nacional de Gestión Ambiental, contribuyendo a mejorar legitimidad y se fortalecerá la gobernabilidad del municipio, así los procesos de elaboración, revisión e implementación de los como el propio liderazgo de la autoridad municipal. No obstante, planes directores municipales y demás instrumentos de para ser efectiva, la participación requiere de mecanismos, vías y planificación urbana, y estructurando mecanismos nacionales de reglas claras, por lo que la municipalidad debe generar vías apoyo técnico a los procesos locales en este campo. procedimentales para facilitar la participación responsable de la ciudadanía, en la gestión municipal. Para alcanzar estos objetivos adicionalmente se requiere capacitación e intercambio de experiencias locales, pasantías, En este contexto, el gobierno local está promoviendo la financiamiento para la implementación de proyectos de impacto participación ciudadana en la formulación, debate y concertación real en la ciudad y sostenibles en el tiempo. de sus planes de desarrollo y presupuestos y en la gestión pública. Se ha creado el Consejo de Coordinación Local Provincial 12. Temas ambientales priorizados en el marco PCS-A21L (CCLP) que participa en el diseño y aplicación de políticas, que requieren acción global normas e instrumentos de la gestión ambiental, de los planes, programas, agendas ambientales y la evaluación y ejecución de Arequipa ha tomado la forma de cualquier ciudad proyectos de inversión pública y privada latinoamericana, con un centro urbano altamente consolidado y en buen estado pero con una periferia en proceso de deterioro y TEMA 4: integración de la innovación a nivel precariedad.

mundial § El principal problema ambiental es el deterioro de la calidad de aire, por la emisión de sustancias contaminantes 10. Actividades de los programas PCS y A2IL y su relación (principalmente CO y material particulado PTS y PM -10) con las Agendas Mundiales. que superan los Estándares Nacionales de Calidad del Aire, producidas por el crecimiento del parque automotor (268% En América Latina y El Caribe, destaca el fenómeno de en 13 años). Esto ha traído consigo cuadros alarmantes urbanización para la comprensión de los factores determinantes sobre la salud pública y el ambiente. A pesar de los del estado del ambiente a nivel regional. múltiples esfuerzos de autoridades, empresas y sociedad civil, son aún insuficientes. Tal es así que el sistema de En el caso de Arequipa se tiene relación con las agendas de: control y monitoreo, uno de los más completos del país, no Urbanización (Agenda Hábitat) y el Ambiente (A21L y Acuerdos logra modificar las condiciones estructurales de la Ambientales Multilaterales) contaminación. La renovación del parque automotor y el uso de combustible limpio avanzan lentamente debido a las En Arequipa, durante la última década los procesos de limitaciones económicas de los operadores, a esto se suma crecimiento urbano han incrementado los factores de presión las dificultades para encontrar propuestas que sean sobre los recursos naturales y los ecosistemas locales, dando 31 Havana 2005 - Documentation of experience SCP/LA21

económicamente rentables y al mismo tiempo sustentables La principal característica de la gestión del agua es que ésta en términos ambientales. sigue siendo esencialmente sectorial, orientada en función de los usos, problemas o demandas específicas, y no al § Los recursos hídricos en la subcuenca del río Chili cada año recurso. La gestión está dividida entre un gran número de varían debido principalmente a los cambios meteorológicos instituciones con injerencia diversa en el tema, en las cuales y al incremento del consumo por el crecimiento urbano de la las responsabilidades se encuentran superpuestas, cuando no ciudad. La tendencia actual es el déficit creciente del contrapuestas entre sí, creando con ello una compleja recurso, la Cuenca del río Chili está declarada agotada, por disfunción de competencias y dispersión de esfuerzos, que lo tanto no hay disponibilidad para el otorgamiento de conspiran contra el principio de unidad en la gestión del nuevos derechos solicitados para otros usos. recurso, no existiendo mecanismos de coordinación, lo que deja muchos espacios vacíos en la gestión.

32 Havana 2005 - Documentation of experience SCP/LA21

PHILIPPINES Applications of the Sustainable Cities Programme Approach in Urban in the Philippines

1.0 Introduction Section 3 provides the basis of the SCP/LA21 (Local EPM Project) intervention in the Cities. Section 4 is a discussion on the 1.1 Beginnings of the Sustainable Cities Programme “EPM efforts” of the Philippines, while Section 5 is a discussion involvement in the Philippines on the adaptations or progressive contextualization of the SCP/LA21 approach in Cities with analysis using the 5 The “greater democratic space” created in 1986 encouraged researchable areas. Section 6 identifies gaps in the current EPM participation from the various sectors, which has not been efforts distilled from the previous sections, and Section 7 is a set observed in city governance in the country for a time. However, of recommendations to complete the SCP/LA21 cycle vis-à-vis, the participatory approach was general, and usually confined to mainstreaming the approach in City governance. taking part in discussions on the “talking points” developed by the Local Government Units (LGUs) or in roundtable discussions 2.0 Brief on the SCP/LA21 Process Framework on broad concerns of development. Some cities established “Non-Government Organization desks” and/or NGO liaison 2.1 The 4-phase process framework officers. The sequential phases of the Framework include, phase 1- start The 1988 report “Our Common Future” provided the paradigm up, phase 2 – strategy and action planning, phase 3 – follow up shift in City governance, emphasizing the participation of and implementation, and phase 4 – consolidation and replication. development players in planning and management of projects. Every phase is a cluster of activities and expected outputs, which must be delivered before moving to the next phase. In other The Sustainable Cities Programme/United Nations Development words, the phase outcome has to be completed in order that the Programme in conjunction with the Department of Environment succeeding activities could effectively take off. and Natural Resources organized the Local Environmental Planning and Management (EPM) Project in 1998 as an The pace of the processes for every phase is influenced by the intervention measure against the threat of environmental decay of performance of the participating stakeholders. Some stakeholders Philippine Cities, and the need to conduct more development- will tend to hold back the process, but with the crucial environment projects within the SCP/LA21 process framework. orchestration of the assigned City unit, i.e., EPM Project Office, the completion of every phase will be ensured. 1.2 Structure of the report

Figure 1. The SCP/LA21 Process Framework (Source: SCP/UNCHS, 1997) 33 Havana 2005 - Documentation of experience SCP/LA21

2.2 Innovative points: five EPM researchable areas actions, (d) increasing efficiency of resource use, and (e) sustaining or institutionalizing the SCP/LA21 approach. The SCP/LA21 approach innovated on City planning and management processes of the environment sector, with the aim at 3.0 Basis of the SCP/LA21 intervention in Philippine Cities addressing the issues of poverty, inequity, powerlessness, gender inequality, and environmental degradation. 3.1 Legal framework

In terms of a research agenda on City environmental planning Laws and policies were enacted and adopted even before the and management, the following are the researchable areas; (a) EPM Project intervention, invoking the need for an EPM process, information management, and harnessing and building up of which is based on sustainable development principles and expertise, (b) broadened strategizing and decision making, (c) approaches. This sub-section is a brief on the most relevant legal enhancing implementation of strategies on collectively agreed framework of an SCP/LA21 approach to City environmental planning and management.

Table 1. Legislative and executive actions to protect the environment.

Legislation Executive/Administrative Orders

Republic Act 7160 (Local Government Code): the law defines EO 15: defines the creation of the Philippine Council for the devolution, decentralization and deconcentration of authority Sustainable Development and the use of the Philippine of governance, including the scope of LGU authority on the ENR Agenda 21 as the blueprint for sustainable development of sectoral concerns, e.g., 5,000 hectares of forest land to the LGU, the country. defines the Comprehensive Land Use Plan and Comprehensive Development Plan of the LGU and correspondingly the Zoning EO 291 prescribes for the integration of the Environment Ordinance, and resource management, among the salient features Impact Statement (EIS) into the project development cycle of the law relevant to the SCP/LA21 development approach. to promote its ultimate function as a planning tool for sustainable development and environmental planning and Republic Act 8749 (Philippine Clear Air Act of 1999): conservation. institutionally defines the Environment Management Bureau (now still within the DENR) as a line agency or a National AO 42 (Environmental Impact Statement System): defines Executing Agency for clean air protection and management, the EIA law of the Philippines defines the protocols, guidelines and standards for air planning and management by the Bureau and the LGU. DENR-DAO 96-37 (Environmental Impact Statement): defines the process, guidelines and standards in the conduct Republic Act 9003 (Ecological Solid Waste Management of the Environmental Impact Assessment subsequently the Act): defines the planning and management of domestic wastes formulation of the Environmental Impact Statement; by the National Commission on Solid Waste Management, subsequently superseded by DAO 2000-37, DAO 2000-05 National Center and the LGU. and the most recent is DAO 2003-30.

Republic Act 7586 (National Integrated Protected Areas DENR-DAO 2000-1304: defines the creation of the National System) provides for an integrated management and sustainable Support Program for ENR Planning and Management (NSP- development approach for the country’s entire protected areas. ENRPM) for the LGU, an effect of the EPM Project intervention. Republic Act No. Clean Air Act: defines the planning and management of the atmosphere DENR DAO 2001-34 IRR for RA 9003 defines the implementing guidelines of the Ecological Solid Waste Republic Act No. 7279 management Act. Urban Development and Housing Act : fosters people’s participation in the urban development process, empowers local government units in addressing urban development issues and allows for private sector participation in the national shelter program.

Republic Act 8425 (Social Reform and Poverty Alleviation Act of 1997): ensures the integration of various disadvantaged groups into the political and economic mainstream and institutionalizes their engagement with government in addressing poverty

3.2 Improving from past and existing environment- development have shaped a vibrant discourse and concrete development approaches actions via programmes and projects, amongst the various development players. The UN System remains a strong lead force The participation of the Philippines to the Earth Summit in 1992 into the molding of policies, approaches, methods and tools on and the commitments it pledged in pursuit of sustainable sustainable development, in general. This sub-section briefly 34 Havana 2005 - Documentation of experience SCP/LA21 describes in succession, some of the “EPM-associated” efforts The DENR is duty bound to assist technically the City when conducted in Cities. requested.

The Philippine Strategy for Sustainable Development in 1989 With the continuing advocacy led by the League of Cities in the was the document that the Philippine government presented in Philippines (LCP) on the benefits of a broad-base and bottom-up the Earth Summit at Rio de Janiero in 1992. That same year, the approach to ENR planning and management as experienced by Philippine Council for Sustainable Development was created the three EPM demonstration Cities, more Cities have established through Executive Order No. 15 to chart environment and regular ENR Offices or at least an ENR-designated City unit or sustainable development initiatives in the country. Three years officer. The trend towards institutionalization was hastened by hence, the Integrated Environmental Management for Sustainable the implementation of the Ecological Solid Waste Management Development Programme (IEMSD), which was supported by the Act and the Clean Air Act, which instructs the LGU to locate the UNDP and executed by the DENR was established in 1995. ENR planning and management functions to a City unit or Through this programme the EPM Project concept was officer. formulated with assistance from the UN Habitat in 1998. Parallel to the IEMSD, the Capacity 21 Programme was formulating the The precursor IEMSD Programme of the EPM Project, Philippine Agenda 21 in 1996, but was approved by the President formulated models of Provincial Strategic Environmental Plan in 1998. Several related efforts came into being like the which is an introduction to the ENR planning process, and the Integrated Environmental Management Programme for the Municipal CLUP with strong environmental articulation than the industrial sector, SWEEP for solid waste, PRIME for the private usual. CLUP formulation guidelines were published together with sector and Mainstreaming Sustainable Development in the the HLURB. Particularly, the EPM generated-models of Bureaucracy in 2003. environmental strategy plans for Lipa, Tagbilaran and Cagayan De Oro Cities were picked up by more Cities under the federation The Galing Pook Awards for Innovation and Excellence in Local (LCP). The broad-base and bottom-up approach of the SCP/EPM Governance, 1993-2003 was focused in providing benefits to has further systematized the “multi-sectoral” approach of the performing LGUs in the country. A number of these were planning and management of the environment sector under the promising in the context of the SCP/LA21 approach to urban generic policy of participatory governance. governance. But, in 1998 the EPM Project was implemented to spearhead an At the tailend of the EPM project came the WB-CA City innovative City planning and management approach, by Development Strategy (CDS) Project which took consideration of illustrating the process in three major Cities. Virtually, the EPM the effects that the EPM Project has created on the ENR planning was a new introduction to the structured process of Cities. Three and management in the three demonstration Cities. The link follow through projects are considered as significant EPM - between the CDS Project and the EPM Project was natural in as associated, Public and Private Partnership in Urban Environment, much as the SCP was a major player in the formulation of the EcoGovernance, and the Country Development Strategy. CDS project concept. Effectively, the CDS project has expanded and magnified the innovations that the EPM Project propelled to 4.0 SCP/LA21 Philippine experience 10 more cities nationwide.

The section lists answer summaries to the 7-item guideline for the The persistent advocacy on the SCP/LA21 approach and the national documentation of the SCP/LA21 experience. widened effect on other cities, the Department of the Interior and Local Government (DILG) through its GO-FAR facility will Guideline No. 1: Compared with past city management mainstream the EPM experience to replication cities. GO-FAR is “business as usual”, explain how SCP/LA21 activities in your a Philippine strategy that aims to institutionalize nationwide the country have contributed to positi ve changes (innovations) in replication of good practices including the EMP processes. The the approach applied in various aspect of City management, mainstreaming design will integrate the SCP/LA21 approach such stakeholders participation, land use planning, service with past ENR planning and management experience of cities, delivery, environmental management, urban poverty reduction, thus possibly producing a blended EPM local method. However, others. it is early to gauge the effect of this mainstreaming effort but such positive action reflects the significant impact that the EPM The Local Government Code (RA 7160) mandates the city Project has resulted to. For example, the process of identifying governments to formulate their Comprehensive Land Use Plan the priority bankable projects through the Issue Working Groups and support this with a City Zoning Ordinance for the future best and finally implementing in levels commensurate to the City use of the lands within its territory. Under the scheme of the capability but with up-scaled ideas, is an innovative concept from Housing and Land Use Regulatory Board (HLURB) detailing the the traditional quick and highly visible infrastructure-based CLUP formulation process, the environmental concerns are project. The Cagayan De Oro City EPM experience is a case of subsumed in the economic sector. The formulation itself is a ‘starting small but thinking big”, the fact that they were able to technical task which limits the participation of the City leverage additional resources out from the demonstration stakeholders through the process, unless the planning team takes projects. Another exemplary practice that mainstream the process a participatory approach. Regarding the formulation of the of EPM is the Integrated Solid Waste Management Program Comprehensive Development Plan, more participation is required (ISWMP) of Linamon, Lanao del Norte, which demonstrates from City stakeholders, especially in the aspect on identifying effective implementation of sound environmental practices that and prioritizing bankable or investment projects. On the main, the include team building, participatory planning, and law entire process is top to bottom development planning. enforcement of ecological solid waste management.

Also, the law leaves to the LGU the decision to create a City Guideline No. 2: Explain national factors that have facilitated Environment and Natural Resources Office for systematic EPM. or/and obstructed the SCP/LA21 activities to contribute to the changes explained above. In case they were obstacles, how were 35 Havana 2005 - Documentation of experience SCP/LA21 they overcome? Which type of technical support (expertise, afford to hire project preparers, continuous training on project information, training) and legal and administrative support is preparation and marketing will be very helpful. being provided from national level to local level to enhance innovations you have explained above, and where has it come Although the annual City sharing of the LCP is usually focused from? Which additional support is being planned or would be on experiences and highly politically charged, techniques and necessary? methods on EPM are discussed as well. In mid 2002, the Philippine Urban Forum (PUF) was formed after a year from The CLUP of the three demonstration Cities reflected deficiency closure of the EPM Project, to engage more actors into the in profiling the environmental sector, besides not appreciating a discussions on urban governance. This aggrupation is considered broad-base and bottom-up planning process. Two reasons were as the public debate venue on all concerns pertaining to cited. Firstly, it is expensive to conduct a comprehensive sustainable urbanization, in which case, local innovations from environmental profile of the City because the City will need to interventions such as the SCP/LA21 process framework will be hire specialists like GIS experts, floral and faunal ecologists, discussed in full. geochemists and hydrologists, social anthropologists, and resource economists and there is no budget allocation for such Guideline No.3: If you think of the positive changes SCP/LA21 services. Secondly, the City’s mental set of planning is far from activities in your country have contributed as innovations, being participatory or that multi-stakeholders’ participation in the explain how such innovations have been documented, process is reduced to attendance of public meetings to “listen” to disseminated to and recognized by various national partners . the product of the planning process. Participatory planning is oftentimes considered as time wastage. These factors most likely All of the EPM Project outputs were documented, published and represent the situation of many Cities in the Philippines. disseminated to the Cities while stocks of publications were left with the DENR after project termination. Some of these were in The HLURB is constrained to technically assist because the the form of tools or instrumentations. The following were agency does the review and approval, while input from the produced and distributed; DENR on the one hand, will still require budget and the fact that the agency is not into City planning, neither is the LCP and DILG a. Limited/City circulation into city planning as well. DENR has always been perceived by the city as provider of technical support, usually in the provision § City Environmental Profile of Lipa, Cagayan De Oro and of environmental data (eg. quality status, standards, mitigation Tagbilaran Cities measures). This explains the specific entry of DENR rather than § CLUP Cagayan De Oro integrated with environmental being part of the entire SCP/LA21 process (inception to up- information and plan scaling). Outside of this input, DENR conducts its regulatory § Issues working papers (6 in Lipa City, 5 in Tagbilaran, 5 in functions with the City government. Cagayan De Oro) § Environmental Strategy Plan of Lipa, Tagbilaran and In other words, outside material input is necessary for an Cagayan De Oro Cities SCP/LA21 planning approach. A seed fund and provision of § Packaged development project concepts as demonstration technical services for the activity are needed, but the City is projects (2 in Lipa City, 3 in Tagbilaran City and 3 in required to put up the equivalent counterpart, and agrees on the Cagayan De Oro City) planning approach. In the EPM Project, this arrangement was § Synthesis of EPM City experience, Phase1 (every City) stipulated in the memorandum of understanding between the § City Action Plan NEAs, City and the UN Habitat. The City Development Strategy Project required similar City counterparts expressed in MOUs b. National circulation between the WB/CA, the NEA and the City. It is believed that even with capacity build up of City government staff and § Institutional and Policy Study and Capacity Building officers, the need for specialists will be required through the Scheme of Lipa, Tagbilaran and Cagayan De Oro Cities planning process, however limited. (357pp); a main refefence to the institutionalization of the SCP/LA21 approach in the Cities The formation of the NSP-ENRPM was an action taken to § Environmental Laws for the LGU (850 pp); a reference address this constricted view of provision of technical support. material on laws and policies which are relevant to Local The national support program functioned for nearly six months EPM after the Local EPM Project, but waned thereafter for unclear § Process Documentation Guide (booklet); guidebook for reasons except the fact that changes of appointive officials practicing “EPMers” to process documents City EPM hugged the headlines. Until today, there is no structured experiences provision of a more comprehensive support to the City by the § Techniques in Stakeholders Participation (booklet); DENR. guidebook for identifying, organizing and mobilizing City stakeholders The skills on project packaging and marketing for up-scaled § Making the National Support Program on ENR Planning and projects was key to Cagayan De Oro’s success in leveraging Management Work (booklet); presents the basis, rationale, additional funds for solid waste management. The same may be capacity of the DENR and direction of the support program concluded for the National SWM Commission, which got to the LGU funding from the UNDP/PPPUE for a project on cluster MRF. § DAO (loose sheets); details the rationale and protocols for On top of being a major player in the formulation of the the National Support Program on ENR Planning and Implementing Rules and Regulations of the Ecological Solid Management operations Waste Management Act, the experience gained from the SWM § Cagayan De Oro Synthesis of Experience (booklet); presents demonstration projects of the three EPM Cities served as the in process documentation format the experience of the City models for the NSWM Commission. For Cities, which could not on the SCP/LA21 approach. 36 Havana 2005 - Documentation of experience SCP/LA21

concrete experiences of Cities, national executing agencies, Every so often, one gets to recognize these publications during NGOs, business, and other stakeholders. Other groups doing this meetings and conferences with City officers, obviously used as type of policy development is the LCP and national NGOs. The reference materials and as guides. However, there is no single outcomes of these discourses are not legally binding but these are repository of these documents, and seemingly, there is little coursed through the pertinent NEA or the ENR legislative infusion of the EPM knowledge via training of staff of other committees at the Philippine Congress. national executing agencies. Copies of the documentations are kept or at least a list of where the documents are located, are with Currently, the PUF is attached with the Housing and Urban the LCP and DENR database. Development Coordinating Council (HUDCC), which is headed by the Vice President. It conducts its lobby work in this Council, Other EPM -oriented projects have their documentations such as although it is non-voting and an adjunct body. the Asian Institute of Management, which handled the Galing Pook Awards for Innovation and Excellence in Local Meanwhile, the UN Habitat Programme-Manila is suggesting to Governance, Proceedings of the Annual City Sharing of the LCP, establish a National Committee on Sustainable Cities (NCSC) as City Development Strategy of at least 3-dozen Cities which a policy think-tank of the PUF and be integrated as a unit of the clearly addressed the environment sector, PPPUE’s HUDCC, thereby gaining access to policy formulation and documentation of the solid waste management experience in big decision-making in the Council. Expanding on the notion of and thickly populated coastal urban poor villages at Calamba anchor institution vis-à-vis, mainstreaming of the SCP/LA21 City, otherwise, the documenters are the Cities themselves and approach, a general concept was evolved (Figures 1 and 2). The voluntarily reproduced by interested parties. The Kaakbay HUDCC orchestrates the mainstreaming processes, however is Program which is supported by the Canadian Government under necessary to constitute a National Committee on Sustainable its Local Government Support Programme has documentations Cities for urban environment-development policy work. In this on solid waste management exemplary practices which are now suggestion, an anchor institution is defined according to key roles being replicated by other LGUs. The Mindanao Basic Urban it plays in the development of sustainable cities, within the Services Sector Project (MBUSS) of the DILG provides loan SCP/LA21 framework, i.e.: facility to LGUs with the aim of improving the quality of life of urban residents in Mindanao by upgrading or rehabilitating basic § Anchor institution for capacity building – this institution urban services or infrastructure which covers investment in water will facilitate the development of curricula on broad base supply, sanitation, solid waste management, drainage, flood and bottom up governance (operationally, in planning and control, urban roads, bridges, and other public facilities. management) for sustainable cities, both for formal and non- formal education, and develop pools of SCP/LA21- Guideline No. 4: Review how the innovations you explain above knowledgeable and skilled planners, policy makers and are being used to develop and improve national policy and managers of cities. strategies as well as legislative and administrative instruments to institutionalize such innovations at national level. § Anchor institution for mainstreaming in city government – this institution will facilitate the formulation of standards for In section 3.1, the different agencies and their mandates were sustainable cities, operationalization of the SCP/LA21 given in relation with the practice of EPM in the City. The approach to urban governance, with particular emphasis on directly relevant national government players are the DENR, building capacity of city government officials and staff, and DILG, HLURB, and HUDCC; the PUF, LCP are quasi- supervision monitoring of implementation of SD projects. governmental aggrupations; and the rest are national projects and programs. Administrative instruments guiding the § Anchor institution for advocacy and stakeholder implementation of national ENR policies are formulated called mobilization – this institution will facilitate sustained IEC DAO and EO. A typical example is DAO2000-1334 which drew on the SCP/LA21 approach, policy discourse on sustainable its basis from the EPM Project results. urban governance, and in the mobilization of the different city stakeholders to undertake the governance approach. The Philippine Urban Forum (PUF) is the seat for broad-base policy discussions on EPM issues and lessons drawn from

37 Havana 2005 - Documentation of experience SCP/LA21

Anchor Institution for Standards and Anchor Institution for Mainstreaming Anchor Institution for Capacity Building in City Governments Advocacy and Stakeholder Mobilization

Bureau of Local

UP School of Urban Govt. Development League of Cities in and Regional the Philippines Planning Environmental Asian Institute of Management PCSD-NGO Management Bureau

Others Liceo de Cagayan Others

Others

Philippine Urban Forum

Figure 1. A concept of orchestrating anchor institutions into a national effort on building Philippine sustainable cities

In Figure 2 the location of the NCSC in the HUDCC is shown, approach will serve as an advisor of the Committee. Also the and its connections to two general types of cities. The BLGD- UNH will consider the NCSC as the “sounding board” for tasks DILG and EMB-DENR may serve as Co-Chairs of the like monitoring the mainstreaming process and project Committee. The UN Habitat-Philippines as the focal UN body in preparation. attaining the MGDs, and a major proponent of the SCP/LA21

Housing and Urban Development Coordinating Council

PUF National Committee Other units on Sustainable Cities

Model/Prototype Other cities Sustainable Cities

Figure 2. Potential location of the National Committee on Sustainable Cities at HUDCC.

Guideline No. 5: Review how the innovations you explained The following are the levels of curricularization: above are being used by the academic sector to develop and § UP-SURP – Diploma on Master of Science improve training curricula. § AIM – Master of Development Management § LDC – School of Environmental Planning Three academic institutions serving as anchor institutions (AIM, § UPLB-CHE/CERP – Bachelor of Science, Master of UP-SURP, LDC) are in the forefront in the curricularization of Science the SCP/LA21 experience of the demonstration Cities of Lipa, § LGA – Urban Manages Development Program Tagbilaran and Cagayan De Oro. These institutions have § DAP – Master of Development Studies developed their respective conceptual framework for the curricularization and training of students, and in due time shall Guideline No. 6: Explain how national actors are involved in commence work. On the one hand, the UPIHE-CERP has been the international debates on Global Agendas on: (a) urban teaching the basic protocols and guideposts of participatory issues (among other the Habitat Agenda), (b) environmental broad-base and bottom-up ENR planning and management of issues (among other the Agenda 21 and International communities, including the urban sector. Environmental Agreements) and (c) poverty reduction (among

38 Havana 2005 - Documentation of experience SCP/LA21 other the MDG)? Which inputs are being used from as to address the global agendas described above? Explain how local/national experiences to feed into these debates? such support could be enhanced.

During the implementation of the Local EPM Project, virtually While there is no SCP/LA21-type of project that is being the DENR was the sole NEA, which actively participated in supported by the international community, the list below are international meetings convened by the UN Habitat in Nairobi or projects which are EPM-related and thus could be harnessed to elsewhere or in training activities like on solid waste assess the effect of mainstreaming of the approach. management held in Japan. The LCP was also an active participant in as much as it was an integral party to the project. In § Solid Waste Management Project is supported by the these meetings and conferences, the EPM Project presents PPPUE-UNDP which demonstrated the EPM process in documented papers on the SCP/LA21 experience of the three setting up a cluster Materials Recovery Facility as instructed demonstration Cities, thereby feeding concrete applications of the by RA 9003 and DAO 2001-34. SCP/LA21 approach into the discourse. § City Development Strategy project is supported by the After project termination, the participation to the global World Bank-Cities Alliance, which demonstrated the EPM discussions continued in varying opportunities of sharing, such as process in formulating the CDS of at least 31 Cities, in the following fora: nationwide. § Conference on “Environmentally Sustainable Urbanisation (Developing environmental planning and management § Promoting Local Environmental Planning and Management capacities for poverty reduction)”, Alexandria, Egypt, through the Good Practices in Local Governance: Facility September 2003 for Adaptation and Replication (GO-FAR) is supported by § Pacific Regional Workshop on Urban Development, Fiji, the United Nations Human Settlements Programme which December 2003 promotes the replication of the EPM program, tools, and § Launching of ASEAN Environment Year 2003, Siem Reap, processes gained from the three SCP demonstration cities. Cambodia, March 2003 § Fourth Asian Mayors Forum and Workshop on Good Urban 5.0 Progressive contextualization or adaptations in the Governance for Poverty Reduction and Urban Development, SCP/LA21 approach Bangkok, Thailand, July 2002 A general conceptual model of indicating success of development Guideline No. 7: Explain the type of support that is being intervention such as the SCP/LA21 is shown in the cascaded received at national level from global/international facilities so diagram as below. The variance in local specificities, the adaptation of the approach results differently.

Indices of Impact Sustainable Indicators Urbanization Success Parameters n e.g. Intervention accessible database Improved City Situation information & expertise

SCP/LA 21 process for sustainable Indicator n Improved strategies & Envtl decay decision significantly mkng

affecting City urbanization well-being , e.g., delivery Improved implementa- of basic tion of services, strategies economy, empowerment,

etc. Efficient use of resources

Institutio-

nalized EPM process process

Figure 3. Process of indicating success with the SCP/LA21 approach in urban governance. 39 Havana 2005 - Documentation of experience SCP/LA21

The analysis will focus on the five EPM researchable areas, informed of facts and figures. In this regard, the EPM treated as the success parameters of the intervention, and utilizing published a process documentation booklet for field workers the EPM circumstances of the demonstration Cities as case and planners. examples. 5.4 Making efficient use of resources 5.1 Improving information and expertise § The deliberate process of identifying bankable projects via § Improvement of relationships between the City government participative methods should consider different angles of staff and officers as well as other stakeholders begins with a resource management of the City. It will be certain that the formalized political commitment of the LGU to a broad-base City stakeholders in their own ways, building into the and bottom-up planning and management of environment- counterpart, will support priority projects. This multi- development City projects. The decision made by the Local support becomes a significant leveraging schema for greater Chief Executive to enter into an MOU on the SCP/LA21- entry of resources to the City, as experienced by Cagayan type project will influence the team of City managers and De Oro City. the rest of the staff. Once the mental frame is geared towards the EPM method, the corresponding changes in attitude in § More efficient use of resources on-hand and the planning and management are expected. For example, the “additionals” complete transparency of the planning process provides the stakeholders free access to information, besides being 5.5 Institutionalization of the EPM process involved in data and information generation. The orchestration of the process by the City government spreads § An involved City government from the start of the EPM the improvement of expertise to as many participants as process will provide legislators the necessary information to possible through “learning-by-doing”. legislate the SCP/LA21 approach and along with the approaches, methods and tools in City planning and § Locating the EPM work in City planning and management management. The action is pivotal for ensured in the CLUP and CDP formulation enriches the database of institutionalization of the process besides possibly creating a the City, and more importantly is owned by every City permanent City unit, which will sustain the broad-base and dweller. bottom-up planning and management. Oftentimes, this institutionalization serves as magnet for additional resources 5.2 Improving strategies and decision making for the activities.

§ In the Philippines, the scheme of focus would be to organize § The GO-FAR as a strategy in mainstreaming the EPM Technical Working Groups, either on the basis of process in the LGUs involves three major components: ecosystems or problem areas, a design adopted for the PA advocacy/promotion, knowledge management, and 21. They craft actions akin to the Issue Working Groups of replication of good practices. The LCP will lead in the the SCP/LA21, although the TWG does not decide or advocacy component in consideration of its influence on prioritize development projects, however may include in City governments as well as its wide experience in their recommendations priorities. Therefore, the IWG coordinating environment and development programs. A concept of the SCP/LA21 brings TWG responsibilities into a database on MDG-related good practices including EPM higher plane that is to make decisions for the City. The (compendium) has been developed for LGUs to access as negotiations done during the City consultation on reference for replicating practices which are most environment-development priorities widens the decision appropriate to their situation. field, and synthesizing priorities into a City Action Plan should further improve strategy as this will allow a complete § Knowledge management (KM) within GO-FAR basically cycle of options analysis. involves data generation and collation of information from the documentation of the interventions undertaken by the § For groups like civil society organizations, conduct of this LGUs. Documentation includes learnings, gains and type of planning is a normal thing, so that they could lead challenges experienced by the LGU while doing the and be more liberal with the City government, which is replication; systems that facilitate storage, access and usually struggling for this planning type. It should be an retrieval of information collected; and processing of key opportunity for wider collective strategy and decision- information, which can be used as resource materials for making process for City development. training programs, and for policy and program development. The Local Government Resource Center (LGRC) which will 5.3 Improving implementation of strategies be established in selected DILG Regional Offices and at the Local Government Academy, is designed as an interactive § The involvement of more City dwellers into the planning facility, and the repository of local governance knowledge process result to more choices of implementing the agreed products including EPM. While using information contained strategies, and thus should improve implementation in the knowledge management system, the regional offices approaches. Consequently, the development of methods and and organizations build on data and information in the tools/instrumentations and training should even better the database, and along the process encourage free access of implementation process. ideas, development experience and data amongst City stakeholders as well as between Cities. It also serves as the § The EPM experience suggests systematic management of venue of consolidating LGSP knowledge products and knowledge produced through the bottom up and broad base initiatives in Local Government Performance Management planning and management process so that analysis is well- System (LGPMS), local planning and replication as well as 40 Havana 2005 - Documentation of experience SCP/LA21

complementation of various local government initiatives. network in Mindanao. The LRIs shall convene to conduct The LGA, on the other hand, shall organize materials workshops on strengthening of academic curricula, produced by the DILG (including those in the regions) that identifying replicable projects; designing program activities; are related to local urban and environment governance. This presentation and analysis of case studies; and convergence includes documentation of good practices; development of of efforts on EPM. workbooks, training materials, guides, case studies, and tools, among others. LGA will network with other resource § Regional and international sharing of the City SCP/LA21 centers like DENR and other training institutions, ODAs experience (like LGSP, USAID, PAGF, UNDP, etc.), academic institutions (e.g. Miriam College, UP, Ateneo, DeLaSalle 6.0 Present gaps in attaining completion of the 4-phase Universities), and civil society groups like the Galing Pook SCP/LA21 process framework for sustainable urbanization Awards Foundation. § Significant milestones have been reached in innovating the § The replication component under GO-FAR requires formal planning and management of certain Cities with particular enrollment of interested LGUs to enable them to participate focus on the environment sector. These include the in the inception workshop, which is a structured peer-to-peer establishment of the City ENR Office, which ensures that learning activity on how the good practice was successfully the broad-base and bottom-up planning and management, done (as in the case of EPM). The Local Chief Executive systematic knowledge management, and consultative (Mayor) and the members of the Local Sanggunian as host approach in the City governance are sustained past external LGU plays a vital role in the inception workshop. The assistance from international organizations. City legislation “negotiating LGUs” must demonstrate their will and interest on this regard further ascertains that annual budget is via covenant signing as a manifestation of an institutional allocated to this unit. sharing process. This document binds the host LGU and the replicating LGU into a collaboration where the latter However, there is the possibility of “politicizing” the EPM commits to provide technical assistance to the replicating process in the City governance, such that more effective LGU. The Replication Work Plan, which is drawn from the methods, tools and instruments in negotiations with City inception workshop results, will guide both the replicating protagonists, to include conflict resolution, will be needed and host LGU. Monitoring and documentation processes overtime. Until a critical mass of “EPMers” are consolidated are integral in the replication design. amongst the stakeholders, particularly those holding key positions in government, the need for continuing and § To ensure that learning experiences and insights are consistent advocacy for the SCP/LA21 approach is a must. captured systematically, Local Resource Institutions are contracted to document the replication processes, in § The effectiveness of the IWG negotiation vis-à-vis City coordination with the City ENRO and the LGA. With consultation was shown by the Cities of Lipa, Tagbilaran adequate information on hand, an purposive assessments to and Cagayan De Oro during the implementation of the EPM upscale experience could be conducted vis-à-vis, the pre- Project, and partially adapted with the 31 other Cities of the conditions, support strategies, and required resources to CDS Project, in identifying and prioritizing bankable sustain the momentum of City progress towards sustainable environment-development projects. There is collective urbanization. The entire documentation will add into the ownership to this decision making process and therefore knowledge base of Cities. commitments are made through the implementation phase. However, a major concern is on “capitalizing” the bankable § One major activity of the mainstreaming process is the projects, especially if a project is requiring levels of integration of EPM into the City development plans. Series investment that could only be sourced outside of the City of consultations with other local stakeholders are undertaken capacity. This is arguing the fact that a highly prioritized to thresh out coordination issues and establish policies and project may not be the most economically feasible for the structures for the integration, resulting to an Integrated City City. Perhaps, some skills on blending technical information Development Planning System and a strengthened City with economics as input into the prioritization activity is ENRO. needed for better informed decision-making.

§ An important component of mainstreaming of the § EPM knowledge is kept by the City through proper SCP/LA21 approach is its translation into educational placement of staff and officers in the City units, and modules or curricula. For example, the Liceo de Cagayan databases (EMIS). It is a reality however, that lateral and University will integrate EPM knowledge, skills and tools in vertical movements of staff and officers in the City happen the curriculum on environmental planning and management. with changes in leaderships. Key EPM officers in the An internship program for students at the City ENRO and a process may be targets of these movements such that some scholarship program equivalency for EPM courses may be forms of shield or design to increase the absorptive capacity developed. The LDC shall link up with other academic of the EPM Unit on perturbations have to be set in place. institutions engaged in curricularizing the SCP/LA21 approach sush as the University of the Philippines - School § Iterative agenda on capacity building should anticipate of Urban and Regional Planning (UP-SURP), the threats and of completing the SCP/LA21 cycle. A Development Academy of the Philippines (DAP), the Asian significant change of attitude/behavior on City governance Institute of Management, College of of UP biased on the framework will ensure that sustainable Los Banos, and other learning institutions. urbanization is attainable. Otherwise, everything will only be a façade. § In up-scaling knowledge on the EPM process, Local Resource Institutions are organized to build linkages and 41 Havana 2005 - Documentation of experience SCP/LA21

§ A major prerequisite for institutionalization is the Coordinating Council (HUDCC) as the base unit for establishment of the City ENRO, and on this regard, sustainable urbanization be initiated as the avenue for the significant inroads must be achieved on policy reform and Philippine Urban Forum to course the results of discourses legislation, with more focus on debating against the on policy and institutional development for sustainable “optional” clause attached to the unit. The DENR’s priority urbanization. A corollary work shall be on framing the on the brown sector should be placed under review, more legislative agenda on sustainable urbanization, committed to importantly on how the Department could effectively assist foster an enabling environment for the different City the City in their EPM processes. A related issue is the stakeholders to engage in systematic and scientific pooling of anchor institutions orchestrated to up -scale urbanization process. The PUF and the NCSC will play current EPM experiences by distilling insights, learning and crucial roles in the campaign advocacies to the general potentials for becoming citywide projects. The deliberate public and government circles, respectively. development of that critical mass of “EPMers” must be an immediate objective of the anchor institutions. To ensure that the Philippines will retain a critical mass of professionals enriched with the SCP/LA21 approach, anchor 7.0 Recommendation institutions from the academic sector will develop curriculum for Local Chief Executives, City Officers, civil Following the successes of the Local EPM Project, society leaders, business and City volunteers. These notwithstanding the weaknesses, the mainstreaming of the curricula and resource materials will be used to train more SCP/LA21 approach in the country will need to leap frog adherents of the process. processes such as the following: § Refinement of the process on prioritization of bankable § To hasten the institutionalization of the SCP/LA21-oriented projects will be necessary to highlight the merging of planning and management, capacity building efforts should environmental protection and economics. These projects result to City dwellers, which are well informed, must be implemented at scales which could create ripples on knowledgeable, and skilled on the requisites of sustainable MDG #7. Examples include solid waste management, human development. For wider application, innovative and coastal resource management, and clean water and health socially acceptable toolkits, which measure good protection. The crafting of specific project concepts will be environmental governance must be developed and used done the “EPM way”, which particularly draws strength in extensively. Training designs and programs, ENR planning positively committing City resources in the project. and management approaches and methodologies, case documentation, and evaluation documents are valuable in § Partnerships may be expanded from the city-to-city in the the synthesis-customization activity. City-City exchanges, Philippines to Philippine city-to-regional city and globally. pooling of resource persons-trainers and the development of Innovative partnership mechanisms may be evolved to Training of Trainers’ approach, advocacy materials and a sharpen approaches, methodologies/tools and even the systematic knowledge management system will have to be paradigm on sustainable urbanization. Shared developed and conducted. All these, contribute to the documentations of experiences and reflections on the opportunity of establishing the City as a center for SCP/LA21 process and framework will be part of the excellence on sustainable urbanization. building of the common future for all peoples of the world. The project will be active in the international discourse on § It is suggested that a National Committee on Sustainable sustainable urbanization. Cities within the Housing and Urban Development

42 Havana 2005 - Documentation of experience SCP/LA21

PHILIPPINES Local Environmental Planning and Management in Lipa City , Tagbilaran City, Cagayan De Oro City

Applications of the SCP/LA21 Approach in connection to the Visayan islands. Travelling towards the central portion of the island about 2 hours away are the muslim Urban Environmental Governance in Three provinces of Lanao Del Sur and Lanao Del Norte, on the north Secondary Cities in the Philippines are the logging and mineral exploring towns and urban center of Surigao City in the provinces of Surigao Del Norte and Sur, and 1.0 Introduction on the south and east are coastal towns of Misamis Oriental and Occidental provinces, mountain ranges where most of the This documentation must be read in conjunction with the national indigenous peoples, muslim communities and settlers from the paper submitted separately as contribution to the Havana global Visayan islands habitate. meeting of SCP/LA21 approach applicators in the Philippines. It covers the experiences of the three demonstration cities of the Politically, the City has had mixtures of executives from Local Environmental Planning and Management (LEPM) Project traditional political families and upcoming and rising (1998-2001). Some current data and information on the Cities’ professionals schooled from universities in the country and performance past the LEPM Project life is indicated, with focus abroad. on the up scaling and mainstreaming efforts of the Cities, otherwise, the woven documentation is about the experience of 3.0 Structure of the document the Cities. The report answered the 9-point guideline in sequence. However, 2.0 The Cities since many of the guide questions are closely linked, reference to earlier answers is cited. In the following sections, more description on the City are provided. 4.0 SCP/LA21 experience of the Cities

Lipa City is west of Metro Manila about 80 kilometers from the Guideline no. 1: Compared with past city management outskirts of the big City. The region is landlocked, but the City “business as usual”, explain how SCP/LA21 activities in your itself is in the slopes of Mt. Malarayat due west and the Taal city have contributed to positive changes (innovations) in the ridge on the north. Coming from the east side (Laguna Lake), the approach applied in various aspect of city management, such as land travel provides a well-graded pediment slopes, which gently stakeholders participation, land use planning, service delivery, undulates and rises until the City center. Further west about 18 environmental management, urban poverty reduction, others. kilometers away is Batangas City, which is a fast industrializing coastal City, so that the shared boundary are some up-stream An updated City Comprehensive Land Use Plan (CLUP) is industries, otherwise, the City is thriving on primary industry required under the Local Government Code (RA7160) for the such as poultry and piggery, and leisure (mainly golf courses) City to transact resource generation activities with the national resorts. With the expanding industrialization in the east, Lipa government like collecting their share of the internal revenue City has become a “service City”. allocation, development loan negotiations, and as basis for investment projects, which are classified as environmentally Politically, the City is typical of other Philippine Cities with critical project or located in environmentally critical areas. The traditional rich and influential clans dominate the political scene, operational policy for this CLUP is a Zoning Ordinance. In the although the City has had present-schooled professionals as CLUP formulation guidelines, the City generates the socio- elected officials. economic profile as reference for the planning process. The environment sector is considered as an economic resource. Figure Tagbilaran City is the premier City of the island Bohol province 1 following illustrates a proposal by the Integrated Environmental which is the 5th largest in the country, in terms of area. It is a Management for Sustainable Development Programme (this was coastal City with an islet connected by a single bridge, which the precursor programme leading to the Local EPM Project) to serves as a major City resort area. Since the province is close to situate, in fact later create a niche for planning and subsequently Cebu where Spain first landed, the City structure still resembles management of the environment in City governance. The old Spanish towns and plaza with imposing churches. Similar to proposal had a stiff opposition from the national government, and Lipa City, it is thriving on primary industry with a couple of up - was unsuccessful to move the publication of guidebooks on stream industries, and is a favorite destination of tourists due to CLUP formulation to actual conduct. its unique biodiversity, beaches and culture. The experience of Lipa City in sensitizing the CLUP on Politically, the City has had executives from both traditional and environment is worth mentioning at this point. The City CLUP present-schooled professionals. was formulated according to a national Memorandum Circular 2001-77 and thereafter 2002-30, however, the City decided to Cagayan De Oro City is a sprawling industrializing City in the enhance further the Plan by treating the environment as a special north-central of the island of Mindanao, serving as a major sector. The timing of entry of the LEPM 43 Havana 2005 - Documentation of experience SCP/LA21

Article I. Provincial Physical Framework Plan/Comprehensive Land Use Plan

POLICY PROTECTED PRODUCTION SETTLEMENT INFRASTRUC- OTHER NATIONAL/ TURE AREAS REGIONAL AREA FRAMEWORK AREAS POLICY AREAS POLICY AREAS POLICY POLICY PLANS

ENVIRONMENTAL IMPLICATIONS STRATEGIC ENVIRONMENTAL PLAN

COMPEHENSIVE DEVELOPMENT ENV AND INSTITU- OTHER OR ACTION NATURAL SOCIAL ECON PHYSICAL TIONAL AGENCY RESOURCES DEV’T SECTORAL PLANS DEV’T DEV’T DEV’T MGT. PLAN PLAN PLANS PLAN PLAN PLAN

ENVIRONMENTAL IMPLICATIONS

IMPLEMENTATION INSTRUMENTS

Local Development Section 1.01 LEGISLATIONS Investment Plan

“SOFT” “HARD”

PROJECTS PROJECTS

Section 1.04 BUDGET Section 1.03 REGULATION MONITORING AND EVALUATION

Section 1.02 EFFECTS AND IMPACTS

Figure 1. Locational Status of Environmental Planning in the City

Project then was perfect, as also there were mounting requests increasing demand for space as well as basic services like water, from City residents to rationalize the land use of the City with the transport, housing and garbage disposal by the growing 44 Havana 2005 - Documentation of experience SCP/LA21 population, business investors and industry. The LEPM Project progressive decision-making on protecting and ensuring that the Deputy Manager was assigned to the task. Currently, the CLUP biophysical environment of the City sustains the input yields of has a clear environmental sector plan (Strategic Environmental resources needed by the population. City dwellers know that data Management Plan) addressing the need for effective and efficient on water, air and land quality are available. garbage disposal and reduction, water sourcing and conservation, City greening among others. A multi-sectoral City Ecological The demonstration projects implemented by the Cities were Solid Waste Management Board is administering the solid earlier identified as priority bankable development–environment wastes, the members of which come from the Task Forces and projects. A common project was on solid waste manage ment, and Issue Working Groups of the LEPM Project. for Cagayan De Oro and Lipa Cities, the demonstration projects The SCP/LA21 approach influenced the planning attitude and were up-scaled. Cagayan De Oro City got additional funds for process of the three demonstration Cities. In both Tagbilaran and wider solid waste management project while Lipa City Cagayan De Oro Cities, the LEPM Project had to convince City established the City SWM Board. executives and officers for the need for a discreet environmental plan, and secondly, on the need to go through a multi-stakeholder Guideline no. 2: Explain local factors that have facilitated planning process. For example, the generation of the or/and obstructed the SCP/LA21 activities in your city to environmental profile, strategy plan, and action plan were all contribute to the changes you explained above. In case they conducted through broad-base and bottom-up processes with were obstacles, how were they overcome? Explain the participation of nearly all sectors of the City. Admittedly, there mechanisms that have been created to support the development was resistance on the participatory process during the initial of these innovations. Analyse if these mechanisms are stages of the planning process, particularly coming from the City sufficient/adequate, and explain how they could be enhanced. planners, technocrats and industry who were concerned on the efficiency of the system, but this attitude was easy to tackle through open negotiations. In the end, outputs were delivered as So that the constraining factors are not taken out of context, a scheduled. There were no dropouts through the planning process brief situation of the environmental management of the Cities is or even when Issue Working Groups were tasked to implement provided. For example, on the system of governance, the the demonstration projects. Philippine Constitution and RA 7160 have devolved more powers to the City for efficient execution, and for effective delivery of Part of the commitment of the three demonstration Cities to the environmental services to constituencies. Particularly, the Mayor LEPM Project was to establish the City Environment and Natural and the Council execute the rights and powers of the local Resources Office (City ENRO) with regular staff and annual government. The City ENRO, on the one hand, formulates and budget. Both Lipa and Cagayan De Oro Cities have functional implements the plan for the environment and natural resources City ENROs while three City units, namely, the City Planning sector. On law and policy making, there is a mix of ordinances on and Development Office, General Services Office and the City environment and natural resources protection in the Mayor’s Office, share the Tagbilaran City’s environmental demonstration Cities, although, Cagayan De Oro City has management function. In other words, the institutional requisite codified ENR-related city ordinances until 1994. On the one for continuing urban environment management is in place. These hand, Tagbilaran City has come up with a draft of a City arrangements suggest the importance given to the environment Environmental Code but has been found to be too genera l and sector, vis-à-vis the City development and conservation land use bias. Lipa City has yet to start preparing its own Code. directions. The general flow diagram of the appraisal, permitting and licensing in the ENR-related City government structure is shown The emphasis on knowledge management techniques like the in Figure 2 below. The LTO and DENR are national executing EMIS provide the City opportunities to systematize agencies. environmental data and information for iterative planning and · Develops and implements procedures and standards for review of business application prior to approval, or prior to issuance by Mayor’s certification · Requires business applications for City Mayor approval or certification for those covered by EIA process to be subjected for review by the City ENRO Permitting and Licensing Division

· Enforces anti-smoke belching ordinance, and provides LTO with a list of violators for non - renewal of vehicle registration · Subjects all vehicles for registration to anti- smoke belching test Land transportation office

· Extends assistance in analysis/ambient monitoring · Requires project proponent to submit analysis of water sources City Water District

City Environment and Natural Resources Office DENR

· Amends administrative orders to increase City ENRO’s role in EIA process as enumerated above, furnishes copies of EIAs reports/ECCs to City ENRO, and activates the Multipartite Monitoring Team with the City ENRO. · Acts as a co -organizer in the scoping process with the project proponent under the supervision of DENR, recommends a city representative/expert as member of the EIA review committee, enforces Cease and Desist Order (CDO) issued by the Pollution Adjudication Board, and recommends local hearing officer, mediator or conciliator from the city to facilitate conflict resolution between project proponent and contesting parties. Figure 2. City ENRO-biased coordination.

45 Havana 2005 - Documentation of experience SCP/LA21

Inadequate funding support and deficient institutional capacity sector, to help overcome its financial constraints. Partnership for environmental management are common realities of the between public and private sectors for environmental protection Demonstration Cities, which pose as threat to what has been has emerged as an alternative mechanism of financial established by the Local EPM Project. However, the Cities could arrangements as experienced by the private sector in Cagayan De exercise full autonomy to secure domestic and foreign grants Oro. without the need for national government approval, and build partnership arrangements among Cities and with the private

Table 1. Priority problems facing the City ENRO in integrating EPM. Prio- Lipa City Tagbilaran City Cagayan De Oro City rity City Units Private Sector Private Sector City Units Private Sector 1 Low public support Low environmental Complex environmental Lack of appropriate Lack of appropriate consciousness protection methods ordinances ordinances 2 Low environmental Low public support Low environmental Low public support Lack of inter- consciousness consciousness organizational communication 3 Inadequate/ Inadequate/unsupportive Lack of inter- Complex environmental Complex environmental unsupportive leadership of departments organizational protection methods protection methods leadership of communication departments 4 Complex Lack of inter- Lack of appropriate Low environmental Inadequate/unsupportive environmental organizational ordinanc es consciousness leadership of institutions protection methods communication 5 - Lack of appropriate Confused over coverage - Inadequate/unsupportive ordinances of environmental leadership of departments protection 6 Lack of inter- - Inadequate/unsupportive - - organizational leadership of institutions communication 7 Lack of appropriate - Inadequate/unsupportive - - ordinances leadership of departments 8 Confused over - Low public support - coverage of environmental protection

While the political commitment of the local chief executive to the to shape a critical mass among the City stakeholders to pursue the LEPM Project may have been critical to the EPM work, SCP/LA21 approach in environmental governance. Such CapB especially during the initial stages, the implementation of the activities were continued, while new modules and training were project was far from being smooth. Among the typical early evolved like the EMIS and bankable project concept packaging. arguments against the SCP/LA21 approach were, (1) the Technical service providers such as the Department of proposed planning is lengthy, too laborious and that data on the Environment and Natural Resources (DENR), Department of environment sector has been adequately handled by the socio- Interior and Local Government (DILG), League of Cities in the economic profiling activity, see Fig. 1, (2) it is expensive to Philippines (LCP), academe, civil society and business were conduct the technical sampling, tests, and assessment on the linked and invited to actively participate through the process. environment, besides not having the budgetary allocation, and Respective Memorandum of Understanding was executed Division Chiefs would not dare tinker with approved budget between and among these institutions and organizations. leaving nothing for non-budgeted introductions such as the LEPM Project, (3) there are too many sectoral plans of the City, The three Cities differ in their process of institutionalization of and an additional plan adds to the confusion of implementers, and the City ENRO. Even the case of Cagayan De Oro City, which is (4) the City Planning and Development Office does not have the the most advanced among the demonstration Cities is in the environmental expertise for the demands of the exercise. In process of completing the phases of institutionalisation, although response, the LEPM Project had to thoroughly explain the a City ENRO is already existing. The four-process benefits by showing experiences of Cities worldwide and institutionalisation was discussed during the implementation of continuously advocate for the need for such an intervention in the the LEPM Project, as follows: City environmental governance. LEPM champions had to be located and mobilized for greater pressure on the City § Clarification/redefinition of the role and status of City government to connect and eventually apply the SCP/LA21 ENRO within the context of the Local Government Code approach to planning and management. Capacity building especially the devolved ENR functions, and the challenges activities like orientation-workshops, training, exposure and cross imposed by the key environmental issues identified in the visits, attendance to international conferences, CapB needs City Environmental Profiles and related project documents. assessments, education module development and training, institutional and policy studies, and provision of supply and § Definition of the new structure of City ENRO that can be equipment support along with special training were programmed gradually filled-up in terms of personnel complement over a 46 Havana 2005 - Documentation of experience SCP/LA21

period of time (i.e., 3-10 years) to allow the City management, and explain how the policy, legislative and government to raise funds for personnel salaries and related administrative instruments are being developed, improved and benefits, and for regular maintenance and operating used to institutionalise such innovations. Review also how these expenses. The specific functions of each division and innovations are bei ng integrated in the daily way the various section in the new structure were clearly spelled out by local actors conduct their business. taking into account the redefined role of the City ENRO. The main office tasked to orchestrate and sustain the EPM § Identification and definition of staffing requirements for momentum in the City is the Environment and Natural Resources each division and section of the City ENRO, along with the Office, along with support from the civil society organizations. minimum qualification standards (i.e., education and Conceptually, the Issue Working Groups, which have multi- experience) for each position. As the ideal size of the sectoral representation is the fora for which the EPM discourse personnel may be difficult to be financially supported right continually grow with changes occurring in the City. at the start of restructuring implementation, it is more realistic to adopt a phased approach to personnel (a) Cagayan De Oro City ENRO recruitment. Currently, the Cagayan De Oro City Environmental Office have § Legitimization of the new organization, role, staff and seconded staff or loaned from various Departments and Divisions budget support for the restructured City ENRO with a status of the City government. There are indications that the Office will of a regular department via the issuance of a City ordinance be regarded as a regular unit of the City government in the next to cover all these elements. year or so. With the GO-FAR national project of the DILG (see national paper), which utilized the experience of the three Guideline no. 3: If you think of the positive changes SCP/LA21 barangays of the LEPM Project, the institutionalization of the activities in your city have contributed as innovations, explain Office will be given substantial push. how such innovations have been documented, disseminated and recognised by various city-development partners. The City EPM Project was able to leverage funds for mainstreaming solid waste management with support from the Firstly, the Cities of Lipa, Tagbilaran and Cagayan De Oro are , but the greater impact is that the City members of the League of Cities of the Philippines, which hold SCP/LA21 experience is used as national model for replication annual City sharing of experiences and other conferences and (GO-FAR, see national paper). As regards budgeting, the City meetings. Essentially, this is the venue for the three Cities to has spent for environmental protection and management such as inform and expand to other Cities within the concept of City curbing smoke belching, drainage, pollution management, complementarity’s. In these meetings and conferences, greening, fishery development and others in 1995, and continues brochures, reports and large scale or simple documentation on the to allocate funds for the said purposes until today. This behavior experiences are distributed. Also, there is the DILG, which of allocating resources of the City indicates the high level of provides documentation services to the Cities. environmental consciousness of the City Officers.

EPM news spread through the advocacies of civil society (b) Tagbilaran City Environmental Office organizations, which remained active after the termination of the project. For example, the PUSOD Foundation, which produces The City environmental management tasks are presently lodged BALIKAS, a local newsletter on environment, has been the with the CPDO. Earlier, a City-Environmental Management venue for disseminating the EPM process framework and Office was located with the Office of the Mayor and seconded methodologies. Subsequently, these views are picked up by the several staff from the various departments. participating academic institutions like the De La Salle University in Lipa City, Xavier University and Liceo De Cagayan Taking off from the initial efforts of the Local EPM Project, an in Cagayan De Oro and University of Bohol in Tagbilaran City up-scaled solid waste management design is being implemented and used as examples in classroom teaching and student research. by the City, substantially reducing the scale of a sanitary landfill as provided by law. A private sector investment was tapped to The following documentation of the Local EPM Project were manage the solid wastes with essential services like promoting distributed widely in the Cities concerned. segregation at source, dump site, and hauling of wastes to dump site are counterparts of the City. Anot her important effort is the § City Environmental Profile of Lipa, Cagayan De Oro and creation of an uptown site of the City, the plan of which is being Tagbilaran Cities formulated using techniques and methods of the SCP/LA21 § CLUP Cagayan De Oro integrated with environmental approach. information and plan § Issues working papers (6 in Lipa City, 5 in Tagbilaran, 5 in (c) Lipa City ENRO Cagayan De Oro) § Environmental Strategy Plan of Lipa, Tagbilaran and The City ENRO was established as a line department with a Cagayan De Oro Cities budget, and composed of the, (a) Environmental and Waste § Packaged development project concepts as demonstration Management Division from the former Public Services Division, projects (2 in Lipa City, 3 in Tagbilaran City and 3 in and (b) Parks, Protected Areas, Wildlife, and Mining Cagayan De Oro City) Division. However, only the EWMD is functional and § Synthesis of EPM City experience, Phase1 (every City) concentrated on solid waste management. It is coordinating, in § City Action Plan fact serving as the secretariat of the Ecological Solid Waste Management Board. Guideline no. 4: Review how the innovations you explained above are being integrated/applied into the daily routine of city 47 Havana 2005 - Documentation of experience SCP/LA21

A continuing EPM work is being done in the City Planning and City governance. However, they keep very close coordination Development Office (the Local EPM Unit was housed in this with the City Mayor, Administrator, ENR and planning offices. department), particularly focusing on the integration of The Task Force projects that as soon as the formulation process is environmental concerns and ensuring the SCP process in completed, they would have gathered wide support from planning activities. stakeholders and “pressuring” the City Council to legislate the strategy plan. Such a technique grew from the solid waste Apart from the efforts of the formal structures, a creative way of management experience when they convinced the village LGU to pursuing the SCP/LA21 approach has evolved as a response to issue a resolution on solid waste management, which was then the political intramurals within the City government. A Task picked up by the City Council. The box following is a section of Force on Strategy Planning composed of “EPMers” which the ordinance on two levels, while written in the vernacular for participated in the Local EPM Project is leading the formulation wider understanding of the City population, is attached to of a 7-year Strategy Plan without formally locating itself in the emphasize the approach taken by the LEPM Project.

48

Republika ng Pilipinas Lungsod ng Lipa BARANGAY 6

SIPI SA KATITIKAN NG PANGKARANIWANG PAGPUPULONG NG SANGGGUNIANG BARANGAY NG BARANGAY 6, LUNGSOD NG LIPA NA GINANAP SA TAHANAN NG PUNONG BARANGAY NOONG IKA- 14 NG NOBYEMBRE, 2004 (Minutes of meeting and resolution passed by village Council).

MGA DUMALO : (present) HINDI DUMALO: (absent)

Sa mungkahi nina Kgg. Violeta D. Reyes at Kgg. Enrique F. Mayo at pinangalawahan ni Kgg. Jaime U. Matanguihan, buong pagkakaisang napagpasiyahan ng mga kasapi ng Sangguniang Barangay ng Barangay 6 ang mga sumusunod (motion to approve resolution):

KAUTUSANG BILANG 01 - SERYE 2004 (Instruction No.)

KAUTUSAN NAGTATAKDA SA MALAWAKANG PAGBUBUKOD-BUKOD NG MGA BASURA MULA SA PINANGGALINGAN AT MAGKAHIWALAY NA PANGONGOLEKTA NG MGA ITO PARA SA MGA MAMAMAYAN, MGA BAHAY-KALAKAL, MGA INSTITUSYON, MGA ESTABLISIMENTONG KOMERSIYAL SA BARANGAY 6 NA NAAYON SA ITINAKDA NG BATAS REPUBLIKA BLG. 9003 (ecological management of solid wastes).

... BUONG PAGKAKAISANG PINAGTIBAY NGAYONG IKA-15 NG NOBYEMBRE, 2004. (approved)

AKING PINATUTUNAYAN ANG KATUMPAKAN NG SIPI SA KATITIKAN NG PINAGPULUNGAN NG SANGGUNIANG BARANGAY NG BARANGAY 6 NA GINANAP SA TAHANAN NG PUNONG BARANGAY NOONG IKA-14 NG NOBYEMBRE,2004 (date and place). HEIDELIZA M. SILVA Kalihim ng Barangay (Secretary) Nagpatotoo : (approved) Signed by members of the Council

REPUBLIKA NG PILIPINAS LUNGSOD NG LIPA ( City Of Lipa)

ORDINANSA BLG. ____. SERYE 2004 (Ordinance No.)

KAUTUSAN SA PANGMALAWAKANG PANGKAKALIKASAN NA PAMAMAHALA NG MGA BASURA SA LAHAT NG BARANGAY, MGA BAHAY-KALAKAL, MGA INSTITUSYON, MGA ESTABLISIMENTONG INDUSTRIYAL AT MGA LUGAR NA PANG-AGRIKULTURA SA LUNGSOD NG LIPA NA NAAYON SA ITINAKDA NG BATAS REPUBLIKA BLG. 9003 (Title: implementing solid waste management according to Republic Act 9003).

PANGKAT 1 (Article 1) Pamagat ng Ordinansa

Seksiyon 49. Pasisimulan. Ang ordinansang ito ay ipapatupad sa sandaling sinang-ayonan ng Sanguniang Panglungsod at na ipalathala sa mga opisyal na pahayagan sa lahat ng Lungsod at Munisipalidad sa buong Probinsiya ng Batangas sa loob ng sampung araw. (Effectivity)

Pangkat 12 Mga Panghuli Iba Pang Mga Takda

Buong pagkakaisang pinagtibay ngayong ika-_____ ng ______, 2004 sa Lungsod ng Lipa.

LYDIO B. LOPEZ Presiding Officer Pinatutunayan ni (attested):

MICAH MARALIT Secretary Sanguniang Panglungsod Pinahihintulutan ni (approved):

VILMA SANTOS RECTO City Mayor

Guideline no. 5: What type of technical inputs has been received from support institutions to enhance the innovations § Training - Regional NEAs like DENR, DILG and DepEd you have explained above, and where has it come from? provide training inputs in relation to their mandate. National Explain which additional support would be required and programs and international organizations also conduct through which mechanisms local actors could contribute to orientation-seminars. However, from initial discussions with define them. City officials, training on the SCP/LA21 tools and instruments have been stalled from the time that the Local On the main, the technical support to the Cities come from local EPM Project terminated. The City ENROs felt that they still institutions such as the academe, civil society, and business. need supervision to conduct the training themselves, except Regional offices of National Executing Agencies also provide for some areas on the EMIS, stakeholders participation, and inputs. The range of inputs comes in the form of the following: group dynamics which they have developed expertise.

§ Specialist advise – working concepts and skills to implement § Advocacy education – the civil society groups are active on specific development projects are volunteered by academics, this essential task, sustaining the level of awareness of the professional consultants, and practitioners living in the City. population on the SCP/LA21 approach to sustainable The proposals are either institutional or individual, by urbanization. nature. The key groups providing inputs are the following: § Development projects – most of the projects are supported § University of Bohol (Tagbilaran City) – City by international organizations such as the UN bodies and planning for the uptown site development others. These are mostly for capacity build up, but those § Xavier University (Cagayan De Oro City) – Solid from loaning institutions are usually a combination of waste management capacitation, infrastructure and economic venture. § Liceo De Cagayan (Cagayan De Oro City) – River protection Guideline no. 6: What type of national policy, legislative and § De La Salle University (Lipa City) – City planning administrative support has been received to enhance the § Associations of Professional Engineers, Architects, innovations you have explained above, and where has it come Nutritionists, Environmental Planners from? Explain which additional support would be required and through which mechanisms local actors could contribute to The concept of shaping institutions with specialist advise to define them. “anchor the SCP/EPM process” in the City is relevant in ascertaining that capacity building on the methods, tools and It is difficult to establish the connection between the City EPM instruments shall be continuing and evolving with the efforts and provision of national policy environment. In fact, urbanization demands of the City. The Asian Institute of these appear discontinuous at times. There is of course the Management, University of the Philippines-School of Urban and League of Cities in the Philippines where the Cities could use as Regional Planning, and Liceo De Cagayan are identified as venue for advocacy, but it will only be through their respective anchor institutions of the SCP/LA21 approach. However, an representatives to congress that the Cities will be able to pass expanded concept is being studied (see national paper) to proposals for national legislation. NEAs, on the one hand, could categorize anchor organizations as follows: issue policy guidelines on existing laws, but they need to be directly involved in the SCP/LA21 City efforts to reflect national § Anchor institution for capacity building – this institution policy guidelines for use by the Cities. will facilitate the development of curricula on broad base and bottom up governance (operationally, in planning and In the national paper, the National Support Program on ENR management) for sustainable cities, both for formal and non- Planning and Management of the DENR, which was supposed to formal education, and develop pools of SCP/LA21- provide the policy and technical support to the Cities was knowledgeable and skilled planners, policy makers and discussed, although unfortunately, the program was short lived. If managers of cities. the concept is revived, it is important to re-cast the framework within the identified national mainstreaming facility of the DILG, § Anchor institution for mainstreaming in city government – which is the GO-FAR project. this institution will facilitate the formulation of standards for sustainable cities, operationalization of the SCP/LA21 Guideline no. 7: Urban governance is characterised by various approach to urban governance, with particular emphasis on aspects such as sustainability, subsidiarity, equity, efficiency, building capacity of city government officials and staff, and transparency and accountability, civic engagement and supervision monitoring of implementation of SD projects. citizenship, and security. How have the SCP/LA21 activities in your city contributed to improvement in each of these aspects? § Anchor institution for advocacy and stakeholder mobilization – this institution will facilitate sustained IEC Subsidiarity, participation, transparency and accountability – At on the SCP/LA21 approach, policy discourse on sustainable the national level, even after the termination of the LEPM urban governance, and in the mobilization of the different Project, the demonstration Cities have been continually tapped by city stakeholders to undertake the governance approach. the DILG and the LCP to share their experiences to other Cities, although this effort has not been made purposive or systematized. § Investment – local business, regional and national As stated earlier, the GO-FAR Project took off from the corporations have shown interest in putting up ventures on experience of Cagayan De Oro City, and most likely the development projects. The environment for directed City ‘EPMers” of the City will be invited as resource persons by the growth must have provided the encouragement. other replicating Cities.

Cagayan De Oro City – growing industrial estates As a criteria of good urban governance, it is believed that the Lipa City – growing chains of retail industry and food participatory and collaborative processes have encouraged City Tagbilaran City – growing leisure and resorts units to synergize more by exchanging data and information, and Havana 2005 - Documentation of experience SCP/LA21 sharing expertise on governance, somehow creating cracks in the sustainable urbanization. The current arrangement of the UN “turfs” for more interaction and thus collective action. The scenes Habitat to “assign” an anchor institution to a City is a welcome that involved multi-stakeholders discussing issues and agreeing intervention, since there was a gap of support since the closure of on solutions together, raise the governance awareness for the LEPM project in 2001. transparency and accountability, especially when roles and tasks are shared by the development players. Such wider space for 5.0 Post note more players in urban governance is unusual to the technocratic top -to-bottom City governance. Just how far will this type of The experience of the demonstration Cities shows the potential governance will be pursued remains a challenge for those for wide scale application of the SCP/LA21 approach to convinced on sustainable urbanization as a goal attainable only sustainable urbanization. The building of capacities and the through the concerted actions of the City collectivity. setting up of mechanisms and structures on EPM within the City government should open opportunities for implementing the It is early to gauge the other criteria on governance. United Nations Development Assistance Framework for the Philippines (2005-2009) in Cities, and eventually attaining the Guideline no. 8: How have SCP/LA21 activities in your city millennium development goals until 2015, particularly MDG#7. addressed global agendas such as urbanisation (among other There will be resistance to this shift of governance approach. For the Habitat Agenda), environment (among other the Agenda 21 example, the process-orientation of the SCP/LA21 approach is and International Environmental Agreements), poverty (among considered by some local chief executives as counterproductive other the MDG)? since it requires so much time to deliver the end-results, which local chief executives would want achieved within their three- On several occasions, the Cities were invited to participate in year period in office. The attitude suggests that the priority of international meetings and conferences wherein they were these politicians is to leave a name or legacy just in case there requested to share their experience in addressing global concerns would be no second term of office, so that outcomes like learning by acting locally. Usually, the papers carry actions taken on the through the process is not valued as desired output. This issues on environmental degradation, poverty, equity, governance worldview is personally motivated, but real in City politics, and and other global problems. International commitments to anti-developmental. The implication of this very opposing conventions and agenda are part of the study materials that are perspective is on the mainstreaming of the EPM -type of approach discussed in the City, so that relating the local actions with global in City governance. It is possible that the succeeding phase of the development goals are always connected. Further enhancing this SCP/LA21 framework will involve only the “more matured” globalizing effort is the presence of UN Habitat and UNDP, Cities and leaving the rest, therefore possibly creating an which are on stand-by to provide the international context of the imbalance in growth of Cities. City actions. Several EPM tools and methods have been developed or Guideline no. 9: Explain the type of support SCP/LA21 customized. These must be reprinted and disseminated to City activities received from global/international facilities so as to stakeholders, and studied by relevant City units. Training on the address the global agendas described above. Explain which use of tools and methods is encouraged, and this may be additional support would be required? conducted in collaboration with the LCP, DENR and DILG. Meanwhile, the ENR Offices must be supported in developing The three Cities are recipients of projects supported by the World toolkits and methods to refine further their functions as EPM Bank, Cities Alliance, USAID, UN Habitat, and UNDP, JICA units. The anchor institutions will play major roles in these tools and other international donors, which employ similar approaches and methodological development while the academics translate on City governance, although not necessarily completing the experiences into education modules, both for the formal and non- SCP/LA21 process framework, thereby creating patches of SCP- formal types of training. LA21-type of processes. In other words, these projects have discreet objectives and methodologies, thus establishing The mainstreaming of the SCP/LA21 process framework, the processes, which may or may not be parallel to the SCP/LA21 Cities stressed should include implementation of bankable approach, in fact confusing at times the City stakeholders. projects as identified by their environmental strategy plans, although the process of preparing the project concept, planning The space for participation and collective action established by and implementing the project conforms with the SCP/LA21 the SCP/LA21 process will be sustained with a strengthened City approach. They believe that other Cities must be recipients of ENRO. Assistance to this unit will be pivotal in pursuing the support, thereby replicating the experience. processes defined by the framework as necessary in attaining

51 Havana 2005 - Documentation of experience SCP/LA21

SENEGAL Programme national d’appui aux Agendas 21 Locaux

El Housseynou Ly, Institut Africain de Gestion Urbaine, IAGU

Modes de gestion traditionnelle de la Ville au partir de processus participatifs qui va de l’élaboration de profils environnementaux, des consultations locales aux produits issus Sénégal et les apports innovants de l’Agenda des résultats des groupes de travail testés et validés par les 21 local en termes de logiques opératoires forums communautaires. (Identification des besoins, Programme d’activités, Projets, Partenariat institutionnel, Participation L’ Agenda 21 complète, et poursuit les mêmes objectifs citoyenne, Accès aux services sociaux de Base, Réduction de la opérationnels des instruments traditionnels de planification Pauvreté, Identification et Traitement des priorités dans les unités urbaines comme les Plans d’Investissement environnementales etc.). Communaux (PIC) et les Plans de Développement locaux (PLD) tout en élargissant et en institutionnalisant l’implication des Tous les plans susmentionnés souffrent de la prise en compte de populations et de la société civile dans le processus la dimension sociale notamment de la prise en compte des d’identification des besoins et le choix des options de besoins populaires, de l’implication des populations dans la mise développement local urbain. en œuvre des activités et de l’appropriation des citoyens. L’agenda 21 offre des leviers puissants à la participation de ses Les PIC et les PLD sont des exercices qui aboutissent à des modes d’implication et de suivi des acteurs. Cette dimension a documents de planification économique et sociale à moyen terme été fortement soulignée lors de la mise en place du comité 21 de de la Ville. Ils présentent pour l’entité urbaine la situation la ville de Saint Louis en Décembre 2004 et dans la note adressée économique et sociale, les objectifs et stratégies de au nouveau ministre de l’Urbanisme et de l’Aménagement du développement et les projets à réaliser durant la période du plan. territoire par le conseiller spécial en charge de l’agenda 21. Dans Le PIC bénéficie d’un partenaire financier à travers l’Agence de cette note, le conseiller insiste beaucoup sur l’innovation de Développement Municipal (ADM), ce qui lui garantit un taux l’agenda 21 par rapport aux exercices traditionnels en mettant important d’exécution au contraire du PLD. En plus de l’accent sur : l’implication des acteurs non conventionnels, l’agenda 21 § La dimension sociale susmentionnée ; promeut un système de communication participative basé sur une § L’implication et l’intégration des groupes sociaux non interaction dynamique et constante entre les appareils conventionnels ( associations de base, société civile, groupes municipaux et les autres acteurs du développement local à travers minoritaires, Ongs, pouvoirs périphériques etc.) dans la la construction de coalitions autour de centres d’intérêt de la Ville conception et la mise en œuvre de ces plans qui se révèlent, avec une mobilisation des ressources communautaires d’avant dans leur pluralité, comme des exercices technicistes et tout. ascendantes ; § La communication participative pour le développement Le projet d’appui à la formulation des Agendas 21 ocauxl urbain ; renforce et garantit la dimension sociale des plans d’urbanisme § La participation citoyenne ; traditionnels au Sénégal. Il en existe de plusieurs selon le degré § L’appropriation sociale la responsabilité et la transparence d’élaboration et de précision. Il s’agit du Schéma Directeur § La prise en compte des discours et des pratiques dans la d’Aménagement et d’Urbanisme (SDAU), du Plan d’Urbanisme mise en œuvre et le suivi des plans du fait de la prise en de Référence (PUR) et du Plan directeur d’Urbanisme (PDU). compte des agendas et des intérêts souvent différents Les plans d’urbanisme tracent les axes de développement à long terme de la ville concernée par une bonne utilisation de l’espace, dans une perspective de développement harmonieux. Le caractère Eléments motivateurs et Facteurs bloquant techniciste de ces plans continue de mettre en ligne beaucoup de suspicions et de réserves dans la communauté des professionnels des innovations promues par l’Agenda 21 au de l’urbain qui voient en l’outil agenda 21 une opportunité pour Sénégal résorber l’expression d’une insuffisance dans les systèmes traditionnels de planification urbaine au Sénégal. Facteurs nationaux qui ont facilité l’intégration des innovations dans le cas spécifique de la ville de Louga D’un autre coté, l’agenda 21 alimente les documents de planification sectorielle notamment ceux qui intègre les aspects « § La large diffusion du succès de la ville de Louga a travers la décentralisation » dans leur mise en œuvre : C’est le cas du Plan presse et le lobbying des élu(e) s de la ville, de ONU National du Développement Sanitaire (PNDS) en rapport avec le HABITAT, de l’IAGU au niveau national et international Plan de Développement du District Sanitaire (PDDS) et le Plan comme le Programme de Gestion Urbaine (PGU). Le projet Régional de Développement Sanitaire (PRDS). On retrouve cette de la ville de Louga a pu arrimer beaucoup d’institutions et même logique dans le Programme National de Lutte contre le d’organisations nationales et internationales dans l’exercice. Sida (PNLS) en rapport avec les plans départementaux et C’est le cas de l’ADM, du PADELU, des entités de régionaux, et aussi dans la mise en œuvre du Programme l’USAID comme le FHI, et le DISC, et des ONG comme National d’Actions pour l’Environnement (PNAE). A partir de le Gadel, l’Aquadev, sahel international etc. Qui plus est, ces instruments de politiques, les collectivités locales doivent les documents issus de l’agenda ont servi de référence pour élaborées des projets et programmes à mettre en œuvre et le d’acteurs intervenant dans la ville. Il faut aussi noter processus Agenda délivre des données intéressantes collectées à l’appropriation du projet par les élu(e) s, les autorités 52 Havana 2005 - Documentation of experience SCP/LA21

administratives et le mouvement associatif local et régional. § Les incompréhensions et les mésententes sur la répartition Ces différents acteurs sont présents dans toutes les instances des rôles et des responsabilités dues à l’absence d’un régulières du projet (comité de pilotage, groupes de travail protocole d’accord entre IAGU et la Municipalité. Seul etc.) ONU HABITAT avait signé avec la Mairie de Louga. § Un engagement du Maire, des élus et du conseil municipal ; § La coïncidence du démarrage du projet avec les § Un soutien des autorités publiques, coutumières et celles consultations nationales entre 2000 et 2002 (élection religieuses ; présidentielle, élections législatives ; référendums, élections § Une méthodologie structurée ; municipales etc.). Ces élections ont retardé le projet avec § Des sessions de formation et de planification qui a permis à les changements successifs au niveau du personnel politique tous les acteurs d’avoir une compréhension commune des et dans les administrations. outils et des objectifs partagés du projet ; § L’absence d’un ministère d’ancrage du projet pour le § Une large implication du mouvement associatif, des services compte de la participation du gouvernement du Sénégal. déconcentrés de l’Etat, du secteur privé et des ONG § L’absence de projets démonstratifs financés par l’Agenda 21 compte non tenu des initiatives de l’ONG Aquadev et celles Facteurs nationaux qui ont facilité l’intégration des de Onu Habitat dans le domaine du Vih Sida. innovations dans les nouvelles villes (Tivaoune, Guediawaye, Matam et Saint Louis) Facteurs négatifs qui bloquent et/ou ralentissent l’intégration des innovations promues par l’agenda 21 dans toutes les villes § Une forte tradition de planification dans les villes comme (Tivaoune, Guediawaye, Matam, Saint Louis et Louga) celles de Saint louis et de Guediawaye ; § Une forte volonté politique des administrations municipales § La modicité des ressources municipales en rapport avec et des élu(e) s en dépit de certaines carences liées aux l’ampleur des problèmes soulevés dans les secteurs moyens disponibles ; transférés (Si la ville de guediawaye a un budget de 1,4 § Une disponibilité d’une expertise locale facilement milliards de francs CFA, la ville de Tivaoune bouge avec un mobilisable dans toutes les villes élues dans le programme ; budget de 284 Millions de francs CFA, celle de Matam a un § L’existence de projets à caractère participatif impliquant la budget inconsistant de 400 millions de francs CFA) ; municipalité au premier degré comme institution § Le taux élevé d’analphabétisme des élus et leur faible bénéficiaire ; capacité de maîtrise des textes qui organisent la § Les arrêtés municipaux qui institutionnalisent les unités du décentralisation ; projet au niveau local ; § L’empressement des élus et des populations à voir des § La signature d’un protocole d’accord liant l’IAGU et les actions concrètes en termes de projets ou de programmes municipalités a travers l’AMS d’activités ; § La lassitude des acteurs au terme de processus participatifs Facteurs institutionnels qui ont facilité l’intégration des longs ; innovations Facteurs institutionnels qui bloquent et/ou ralentissent § La décentralisation au Sénégal au travers de la loi 9607 du l’intégration des innovations promues par l’agenda 21 22 Mars 1996 qui stipule le transfert d’un certain nombre de compétences aux municipalités dont (1) l’environnement et § La tentation des élus et des conseillers municipaux à vouloir gestion des ressources naturelles, (2) santé, population et circonscrire toutes les activités de l’A21 sur l’horizon action sociale (3) jeunesse, sport et loisirs (4) Culture (5) temporel de leur mandat électif ; éducation, (6) planification (7) aménagement du territoire, § Le défaut d’une bonne circulation de l’information sur les (8) domaines et (9) urbanisme et Habitat. guichets de financement et les conditions d’éligibilité des § Une culture démocratique qui donne l’opportunité aux projets ; citoyens de se prononcer sur les options de développement § Les rivalités politiques à l’échelle des conseils municipaux local à travers plusieurs canaux de communication dont des composé de plusieurs partis politiques et de coalitions organes de presse libre et indépendante et des cadres de changeantes au gré de l’actualité et des rapports de force mobilisation sociale et politique entre les differents partis politiques. § Le choix d’un ministère d’ancrage du projet représentant le § L’absentéisme des maires et des conseillers municipaux qui gouvernement du Sénégal et assurant sa contrepartie en le plus souvent sont installés dans la capitale ; termes de Participation de l’Etat § Le partage inégal de l’information au niveau des differents § La mise en place des comités de développement de quartiers acteurs du développement local ; ; § La réticence des municipalités à inter agir avec les ONG au § Le soutien des autorités religieuses et coutumières ; niveau local et vice versa ; § L’existence des documents de gestion urbaine (PIC, PDL ; § Le clientélisme politique et les préoccupations immédiates Plans sectoriels etc.) ; des élus ; § L’existence d’ONG et la massivité du mouvement associatif (OCB, GIE, GPF, ASC etc. ; Solutions réussies/prévues § L’existence de structures de coordination du secteur public à l’échelle des collectivités locales au Sénégal ; § Toutes les villes sont liées à l’IAGU par un protocole d’accord largement discuté et partagé.Ce protocole est parrainé par l’AMS .Sa signature a fait l’objet d’une Facteurs négatifs qui bloquent et/ou ralentissent l’intégration cérémonie officielle. Les dispositions se trouvant ont été des innovations promues par l’agenda 21 dans la ville de largement commentées par la presse. Louga § Le MUAT a été choisi comme institution représentant le gouvernement dans le projet 53 Havana 2005 - Documentation of experience SCP/LA21

§ Les élus et les cadres des collectivités sont formés par projets y relatifs en parrainant les requêtes de financement ENDA ECOPOP dans divers domaines de la gestion et de la au niveau local et/ou national. planification des collectivités locales sur la base des modules portant sur les finances locales, le leadership, le Les autres ministères sont faiblement et timidement impliqués partenariat, la communication sociale, les finances publiques dans le projet. Il s’agit exactement : etc. § Il est prévu la mise en place d’un comité 21 national dans la § Du Ministère de la Décentralisation et des Collectivités perspective d’institutionnaliser l’agenda 21 dans les Locales qui a fourni des documents de référence qui ont politiques et les pratiques municipales servi de substrat à la formation en direction des élus et va § Il est prévu d’élaborer une cartographie des guichets de s’impliquer à la mobilisation des services déconcentrés et la financement sous forme de guides et/ou de manuels qui mobilisation des ressources pour la mise en œuvre des plans seront mis à la disposition des municipalités et de l’AMS d’actions. § La poursuite et l’institutionnalisation des forums communautaires vont sûrement contribuer à l’intégration des § Du Ministère de l’Environnement et de la Protection de la groupes non conventionnels dans les systèmes de Nature qui doit participer à la validation des profils gouvernance des villes et à pacifier les rapports sur la base environnementaux à l’échelle de ses services déconcentrés de la promotion de sentiments d’appartenance commune et participe aux événements clés du projet transcendant les clivages politiques et sociaux. § La mise en œuvre de projets démonstratifs va prévenir les § Du Ministère du Plan et du développement Durable logiques de démobilisation sociale et de lassitude nouvellement installé suit le projet, au niveau le plus élevé, après avoir contacté IAGU et doit être impliqué dans les Appui technique pour l’intégration et le événements clefs du projet et dans la mobilisation des ressources pour l’expérimentation sociale des plans développement des innovations des agendas d’actions. La direction de la planification dudit ministère 21 locaux avait activement participé à l’exercice de LOUGA notamment au panel des partenaires. § L’IAGU fournit une partie du financement et fonctionne comme institution d’ancrage avec les responsabilités d’être Tous les ministères susvisés participent timidement aux activités un centre de référence documentaire pour les villes et les des comités 21 locaux es qualité de membres mais reçoivent de institutions partenaires. L’équipe de l’IAGU met en place la part de l’IAGU et de ONU HABITAT des informations sur le les unités de coordination du projet et les moyens en projet de manière régulière. La remobilsation de ces ministères partenariat avec les villes (comité 21, assistant technique, est une priorité au travers des consultations locales, de la mise en plateforme technique etc.) et assure les sessions de place du comité 21 national. formation sur les outils de l’Agenda 21 local de même que le suivi technique et administratif des activités du projet. Appui additionnel prévu et/ou nécessaire L’IAGU fait des commentaires sur les documents produits et appuie les administrations dans l’organisation des § L’IAGU envisage en relation avec ONU HABITAT, et événements clés du projet tout en y participant. L’IAGU va l’AMS de produire un document campant la cartographie de contribuer à l’identification et à la mobilisation des tous les guichets de financement sur le plan national, partenaires et la mobilisation des guichets de financement régional et international. Ce document qui sera conçu sous potentiellement intéressés à la mise en œuvre des plans forme de Guide devrait dérouler les guichets de d’actions et à la réplication du projet dans d’autres villes du financements, la texture de leurs propositions, les secteurs Sénégal. prioritaires, les conditions d’éligibilité etc.

§ ENDA ECOPOP œuvre au renforcement des capacités des § Le MUAT qui est l’institution d’ancrage du projet pour le élus dans la maîtrise des textes qui organisent la compte du gouvernement du Sénégal qui vient d’avoir une décentralisation et dans les domaines connexes comme le nouvelle équipe suite à un remaniement ministériel; Leadership, la communication sociale, le partenariat, la envisage à la faveur d’une demande expresse de l’IAGU de levée de financement etc. réunir tous les secteurs ministériels impliqués en vue de la mise en place d’un comité 21 national au sein d’une « sous § L’Association des Maires du Sénégal (AMS) est un commission Développement urbain » de la Commission partenaire stratégique du projet qui a signé avec l’IAGU le Nationale de Développement Durable. Le MUAT devrait protocole d’accord le liant autres villes. L’AMS participe davantage appuyer la liaison du projet d’appui à la aux événements locaux et nationaux, internationaux, à la formulation des A21 locaux avec les autres programmes mobilisation des ressources et à la diffusion des résultats au nationaux (DRSP, OMD, PNAE etc.) au travers d’une plan national. stratégie clairement partagée avec l’AMS et les autres ministères. § Le Ministère de l’Urbanisme et de l’Aménagement du territoire (MUAT) facilite l’appui politique et institutionnel § L’AMS devrait bénéficier d’un appui de ONU HABITAT du Gouvernement du Sénégal et mobilise l’ensemble des et de l’IAGU pour le renforcement des relations de partenaires nationaux en relation avec le projet. Le MUAT coopération décentralisée entre les villes sénégalaises et les contribue au suivi technique du projet a travers ses missions villes du Nord notamment celles travaillant sur un Agenda avec l’IAGU et le HPM de ONU HABITAT, à la 21. préparation des événements locaux, nationaux et internationaux et à la mobilisation des guichets de financement pour la mise en œuvre des plans d’actions et les 54 Havana 2005 - Documentation of experience SCP/LA21

Documentation et diffusion des pratiques 06 au 08 Juin 2005) de la ville de Tivaoune a été faite en Wolof. Tous les papiers et les conclusions des ateliers ont été déroulés innovantes des l’Agendas 21 locaux au en Wolof avec la mobilisation d’un modérateur expérimenté, Sénégal directeur d’un projet national de développement rural implanté dans ladite ville. Le succès de la réplication, l’ancrage et l’institutionnalisation de l’agenda 21 dépendent en grande partie de la documentation et de La production d’articles de vulgarisation sur l’agenda 21 dans le la diffusion des résultats. Cette dimension qui est ressortie de premier numéro du bulletin électronique de ANUMI sur manière proéminente suite à la première expérience de la ville de l’expérience de Louga par un chargé de programme de l’IAGU Louga est massivement pris en compte dans le projet d’appui à la en janvier 2005 et celle parue dans le dernier numéro de la revue formulation des Agendas 21 locaux qui concerne 4 nouvelles du MUAT par un conseiller technique du Ministre dans le villes en plus de louga ou des activités de renforcement sont courant du mois de février 2005. prévues. En effet l’expérience de louga a été largement disséminée en direction des ministères, des ONG nationales, des L’IAGU a en perspective une conception d’un dépliant sur établissements scolaires, des organisations de société civile, le l’Agenda 21 local et une documentation du cas de Louga. secteur privé et les ambassades et autres organismes consulaires. Aspects des approches Agenda 21 Sur le plan local et national les rapports d’activités, les rapports de consultation locale, les forums communautaires, la difficilement applicables au regard des participation à des rencontres nationales, la participation à des conditions particulières du Sénégal émissions radiophoniques à Louga, guediawaye et Dakar, les conférences organisées a l’échelle des établissements scolaires Les approches difficilement applicables au Sénégal sont : par les unités de coordination de LOUGA ont largement contribué à la dissémination des résultats de l’expérience de § Une mobilisation continue des acteurs sur la base du louga et celles des autres villes nouvellement impliquées dans le bénévolat (réunions, forums, mobilisation de l’expertise projet. Il faut aussi souligner la mobilisation de la presse locale etc.).L’expérience de louga renseigne que la nationale au cours de tous les événements clés de l’exercice motivation des acteurs (remboursement des frais de présente et celle antécédente de Louga (forum de lancement, transport des acteurs) a été un levier de la participation consultation locale, forums communautaires, panel des bailleurs communautaire. A preuve, le programme Vih Sida et de fonds etc.). La communication de la ville de louga a beaucoup Gouvernance locale sur financement du PGU a souffert de influé sur le succès de l’exercice, mais elle s’est faite sans plan de l’indisposition de ce montage dans le budget. communication énonçant les étapes majeures, les produits par cibles .C’est pourquoi, l’IAGU a mis en place un plan de § Une présence physique des maires dans les réunions communication, pour la réplication nationale, sur la base des importantes du fait du poids des charges sociales et leçons et enseignements de l’expérience de LOUGA. Un politiques.Les maires au Sénégal occupent, dans leur consultant a été recruté sur toute la durée du projet. Son rôle est écrasante majorité, d’autres fonctions administratives dans de concevoir des dossiers de presse pour les journalistes à la le secteur public ou celui du privé. Ils sont pour la plupart veille de chaque événement, de mobiliser les journalistes, de des maires non résidents installés dans la capitale. Une cordonner les interviews, de s’assurer de la qualité des récente mesure prévoit, à long de les sédentariser par la mise informations produites, de préparer des press book etc. à disposition de salaires à la place des indemnités.

L’AMS a bénéficié d’un séminaire de sensibilisation sur les § Une participation financière des municipalités dans les frais outils, techniques et expériences de l’Agenda 21 local. Elle de fonctionnement des unités de coordination (frais de participe à l’organisation de tous les ateliers et séminaires téléphone, fax, déplacement des assistants techniques, nationaux prévus dans le cadre du projet et aux évènements documentation etc.) est difficilement mise en œuvre. Les majeurs au niveau international liés à l’Agenda 21 local. municipalités ont de réelles contraintes à procéder à des décaissements a cause de la lourdeur du contrôle à posteriori Le Secrétaire exécutif et le chargé de programme en charge de et de la lenteur de la mise à disposition des fonds de l’agenda 21 ont plusieurs fois été invités à présenter l’expérience dotation. du Sénégal en matière d’agenda 21 dans les ateliers au plan national et international durant ces 2 années. Les derniers en date § Un dialogue constant et régulier entre les associations des sont les ateliers organisés durant le mois d’Avril 2005 élus et les ministères impliqués dans l’exercice du Sénégal. respectivement par la ville de Dakar en partenariat avec l’Institut L’AMS est à la recherche d’une légitimité sociale et International pour le Développement Durable de Vancouver ( institutionnelle devant les résistances issues de la tradition Canada) et celui de l’Ecole Nationale d’Economie Appliquée en jacobine de la gestion des affaires publiques dont le partenariat avec la coopération française. L’expérience du couvercle résiste encore à la décentralisation, en dépit des Sénégal a été présentée lors du forum mondial sur la Pauvreté avancées significatives qui ont été notées ces dernières Urbaine tenue à Marrakech en 2001 et lors du Symposium années. international sur les méthodes participatives organisé en Juin 2002 à Niamey au Niger par la coopération belge et l’ONG Aquadev.

L’utilisation du WOLOF comme langue de travail dans les exercices de planification des groupes de travail et lors des ateliers et forums communautaire a largement contribué à l’acceptabilité sociale de l’Agenda 21. La consultation locale (du 55 Havana 2005 - Documentation of experience SCP/LA21

Adaptation et intégration des innovations au est de susciter la création d’une sous commission collectivités locales au sein du CNDD. niveau national § Le rôle du HPM est de faciliter les liens entre les Municipalités et AMS programmes nationaux et l’agenda 21 et il participe à toutes les activités du projet et les réunions avec les partenaires de § Le projet d’appui à la formulation des agendas 21 locaux IAGU et de ONU HABITAT. vise à doter les municipalités d’un plan stratégique de développement urbain et permettra au Sénégal de se doter Structures universitaires des modalités institutionnelles de production et de gestion d’Agendas 21 locaux et de mettre en place des modalités § Le projet envisage de développer des modules de formation pérennes d’appui aux collectivités locales dans le domaine en partenariat avec l’ENEA et L’ISE. Ces modules seront de la planification participative appliqué aux problématiques administrés dans le secteur universitaire pour construire une de l’environnement. communauté de spécialistes en Agenda 21 local et des sessions spéciales seront organisées en direction des § Le projet vise à soutenir le développement des capacités des associations d’élus, des ONG nationales, et des mouvements collectivités locales et de leurs partenaires dans des villes associatifs. secondaires du Sénégal, pour conduire des processus participatifs de préparation d’Agendas 21 locaux, monter § Les discussions avec l’ISE et l’ENEA sont en cours et il est des projets prioritaires et mobiliser les ressources prévu la signature de protocoles d’accord pour sceller de nécessaires à la mise en œuvre des plans d’action de ces manière administrative les liens avec le programme en Agendas 21. attendant de finaliser la revue et l’adaptation de tous les manuels du programme « cités durables » dans le contexte § le projet renforcera également les capacités de l'Association francophone. des Maires du Sénégal à participer à l’élaboration et la mise en œuvre des volets urbains des stratégies nationales telles que le Document Stratégique de Réduction de la Pauvreté ( Adaptation et intégration de la démarche au DRSP) et le Plan National Action sur l’Environnement ( niveau mondial PNAE) et à accompagner les pouvoirs publics dans la mise en œuvre du plan d’action et des recommandations issus des § Les acteurs nationaux de l’Agenda 21 local sont très deux campagnes globales sur la sécurité de l’occupation engagés dans les débats internationaux. Par exemple on foncière et immobilière et la gouvernance urbaine. Le projet peut citer la communication du ministre de l’Urbanisme et aidera les municipalités à élaborer une stratégie de de l’Aménagement du territoire lors du sommet mondial sur développement (élaboration d’un plan stratégique de le développement durable à New York en Avril 2005, qui a développement urbain). porté en partie sur l’agenda 21 au Sénégal. L’IAGU a été approche pour la préparation de ce sommet, par le ministère ONG et organisations de la société civile du Plan et du développement durable pour disposer de toutes les informations relatives au projet, lesquelles ont été § Le projet appuiera l’IAGU et ENDA à se doter d’une transférées au Directeur de la Planification. C’est lors de ce capacité d’appui aux municipalités pour conduire ces sommet que l’IAGU a été contacté par le maire de Bissau processus. via le conseiller technique du MUAT qui suit le projet et qui est intervenu dans les débats pour énoncer les objectifs Le MUAT et les autres Ministères opérationnels et la philosophie du programme de ONU HABITAT au Sénégal. La Primature et cinq ministres ont § Le MUAT envisage d’articuler les plans traditionnels (PUR, participé à ce sommet (MUAT, Santé et Prévention, SDAU, PDU) avec les agendas 21 locaux dans une logique Assainissement, Plan et développement durable et de complémentarité. Cette Vision a été clairement énoncé Environnement). par le nouveau ministre de l’Urbanisme et de l’Aménagement du Territoire qui est très sensible à § Les thèmes environnementaux prioritaires des villes l’innovation du projet avec l’implication des groupes sénégalaises en rapport avec les agendas mondiaux sont : la communautaires et tous les acteurs de développement gestion des déchets solides et celle dangereux, l’érosion des urbain. cotes en relation avec les changements climatiques, l’accès à l’eau potable et à l’assainissement, l’habitat irrégulier, les § Le rôle de l’A21L dans la mise en œuvre des campagnes sur inondations, la mobilité urbaine dans la capitale et les chefs la gouvernance urbaine et la tenure foncière est de lieux de région, la désertification et le péril plastique. documenter les problématiques dans chacune des villes élues par le programme et de sédimenter cette § L’état des objectifs sur le millénaire pour le développement documentation en une seule pièce qui servira de contribution et les priorités sur les DRSP ont été intégrés autant que faire à la campagne. se peut et selon les logiques du canevas adopté dans les profils environnementaux des villes concernés par le § La mise en place du comité 21 national est sous de bons programme de même que les indicateurs sur la gouvernance auspices avec les discussions engagées avec le MUAT par le urbaine dans les chapitres IV des profils des villes. HPM et l’IAGU. Le MUAT envisage de convoquer tous les ministères impliqués dans le projet pour adresser cette § Les types d’appui reçu au plan international de la part des question et visiter les modalités pratiques de la mise en place mécanismes internationaux sont : les guides produits qui de ce comité 21 national en partenariat avec l’AMS. L’idée servent de référence (PNUD pour les OMD, ONU 56 Havana 2005 - Documentation of experience SCP/LA21

HABITAT pour les OMD notamment le focus sur la Cible ONUSIDA , du BIT et de l’UNICEF dans des programmes 11, le financement pour la production des rapports nationaux qui se rapportent à l’enfance, à la santé diagnostic sur la tenure foncière et la gouvernance urbaine maternelle, au Vih Sida et au travail décent qui sont des par ONU HABITAT et celui de l’état des lieux des thématiques importantes inscrites dans les agendas indicateurs sur les OMD pour tous les secteurs par le PNUD. mondiaux. Il faut aussi noter le financement des problématiques prioritaires définies par le nouveau plan de développement Le type de soutien additionnel requis est et les documents sectoriels y afférent. On peut citer le § d’appuyer davantage les municipalités à s’impliquer dans les DRSSP par la Banque mondiale, qui assure aussi le differents volets des programmes nationaux ; financement de la Mobilité Urbaine dans la capitale dans le § L’implication des élus dans les politiques nationales par cadre du Programme de Mobilité Urbaine (PAMU). Le l’amélioration des connaissances et des savoirs, PNLS et le Programme eau à long terme sont aussi financés § le renforcement des capacités de négociation avec les par la Banque Mondiale. La lutte contre le paludisme est guichets de financement, l’Etat et les ONG financée par le fonds mondial Vih sida, tuberculose et § la production de documents sectoriels locaux (OMD, DRSP, Paludisme. Il faut aussi noter la présence qui va Campagnes mondiales sur la gouvernance et la tenure s’accroissant de ONU HABITAT dans les domaines de la foncière etc.) devrait permettre aux municipalités d’être des planification participative, l’assainissement urbain, le acteurs à part entière dans la mise en œuvre des politiques renforcement de la décentralisation par la formation des nationales. élus, la restructuration foncière. Le Programme d’Appui à la § La participation des élus aux réunions internationales Réduction de la Pauvreté (PAREP) est mis en œuvre grâce organisées par Onu Habitat, le PNUE, la Banque Mondiale au concours financier du Pnud dans le contexte de son notamment celles portant sur des thématiques de soutien au DRSP de même que le Programme National de développement durable, sur les objectifs du millénaire, sur Bonne Gouvernance qui s’inscrit dans le même cadre les accords internationaux et les conventions internationales stratégique. Il est aussi à souligner la présence de l’OMS, de

57 Havana 2005 - Documentation of experience SCP/LA21

LOUGA, SENEGAL Agenda 21 Local de Louga

Equipe de projet

Contexte général de l’agenda 21 local Cette dynamique a permis de mobiliser les populations lors des Le processus agenda 21 de louga, grâce à sa démarche innovante consultations locales pour l’élaboration des projets du PADELU, a permis aux différents acteurs qui ont travaillé autour du notamment dans les domaines de l’éducation, de la santé et de la programme d’adopter d’autres stratégies plus pertinentes, mieux voirie communale. élaborées caractérisées par une dimension communautaire de la gestion de la cité à travers l’identification, la priorisation et la En résumé, le processus agenda 21 local de Louga est une mise en œuvre des actions. Cette démarche a permis à des acteurs réussite grâce à l’engagement des populations à travers les traditionnellement peu liés dans le passé d’entrer en contact, groupes de travail et l’assistant technique. Dans sa démarche, d’échanger et de travailler pour une même cause. l’agenda 21 a beaucoup innové avec l’implication des Cela a permis la naissance d’initiatives locales grâce à populations dans la formulation des projets après avoir identifié l’interaction entre les populations elles mêmes et les consultants les problèmes. Cette démarche participative a beaucoup aidé la locaux recrutés par la municipalité. municipalité auprès des partenaires au développement. C’est le même mécanisme qui a été utilisé dans le cadre des projets du PADELU. Rôle de la Mairie dans la mise en œuvre du processus Coordination du programme au niveau local

La Mairie, grâce à la mise en place d’un dispositif a concouru à Le poste d’assistant technique est un maillon qui manquait dans la bonne marche de l’agenda 21 en recrutant un assistant le dispositif municipal. Interface entre la municipalité et technique qui a fini par être intégré dans l’équipe municipale l’ensemble des acteurs communautaires, l’assistant technique dans laquelle il assure les fonctions de chargé des projets et de la constitue un élément d’appui au maire, au secrétaire général et est planification. Par ailleurs, l’institutionnalisation des cadres de un réceptacle pour tout citoyen désireux d’avoir certaines concertation aussi pertinents que le comité de pilotage et les informations sur les projets de la commune en termes de groupes de travail a favorisé et permis de rendre dynamique la réalisation, de perspectives etc. La création du poste constitue en démarche, en ce sens que les membres desdits cadres se sont soi une bonne chose. Mais il y a une différence entre créer un sentis investis d’une mission. poste et doter ce poste des moyens adéquats pour bien remplir sa mission. Dans la pratique, avec la complicité consciente ou Toutefois, le processus a accusé du retard à cause de la non inconsciente du partenaire technique, l’assistant technique a implication des conseillers municipaux qui n’ont pas eu une joué quasiment le rôle de Coordinateur, ce qui, en son temps a bonne compréhension du programme. Cela est dû aux nombreux terriblement frustré celle qui était préposée à cette tâche. Dans changements d’équipes municipales. A cela s’ajoutent des son travail, l’assistant technique n’a pas bénéficié de l’appui de rapports conflictuels entre certains responsables administratifs de toute l’équipe municipale. A un moment donné, il a travaillé dans la municipalité, qui ont déteint négativement sur sa mise en des conditions très difficiles (pas de téléphone, pas Internet). œuvre. L’élargissement des compétences de l’assistant technique est une responsabilité qui doit aller avec des moyens qu’il n’avait Grâce aux différentes mesures prises par l’autorité municipale, la toujours pas et d’un autre point de vue. Toute convocation ou démarche a été formalisée et chaque acteur a pu savoir et jouer le invitation à une réunion de groupe de travail ou à un séminaire rôle que l’on attendait de lui. Malheureusement, un déficit de est suspendue à la signature d’un adjoint au maire qui n’est pas communication avec les populations a causé une difficulté pour toujours présent et disponible à temps, ce qui occasionne des les populations de s’approprier le programme. retards énormes dans l’envoi de tels documents. La dissémination du message auprès des OCB est certaines fois Communication autour de l’agenda 21 assez difficile parce que leurs représentants ne font pas toujours les restitutions qui s’imposent pour une meilleure mise à niveau Certes, il y’a eu le forums communautaires avec, à la clé, une de leurs mandants, d’où la nécessité d’initier des sessions de traduction orale en wolof des travaux. Ce qui a permis de mieux formations à leur intention en techniques de communication et faire passer le message. Il est dommage que cette traduction se organiser de plus en plus des forum communautaires. soit limitée à la parole et non à l’écrit. Pour les partenaires, la diffusion par la presse écrite et la presse Partenaires oeuvrant dans le programme parlée ainsi que la fourniture des rapports et documents liés au programme a aidé à la mise en évidence des activités et des Ce projet est porté conjointement par Enda TM/Ecopop, le réalisations de l’agenda21 dans la commune. Ministère de l’Urbanisme et de l’Aménagement du Territoire, l’Institut Africain de Gestion Urbain (IAGU) et le Programme L’agenda 21 a réussi la prouesse de mobiliser les populations des Nations Unies pour l’Habitat (ONU Habitat). Institution autour de thèmes centraux ayant trait à la gestion de la commune d’ancrage, l’IAGU assure l’encadrement technique des différents et représentant les préoccupations réelles et actuelles de la agendas 21 locaux, au moment où Enda s’occupe de la communauté. 58 Havana 2005 - Documentation of experience SCP/LA21 composante formation et renforcement du leadership des maîtrise d’œuvre sociale mise en place par ENDA pour les autorités locales à l’élaboration d’agendas 21 locaux. projets du PADELU constitue une innovation de taille pour une association et une participation responsables des L’ensemble de ces activités ont surtout répondu à des besoins de populations qui doivent bénéficier des projets municipaux formation qui malheureusement ne profitent pas toujours à la § Par voie de suite, la gestion desdits projets et programmes cible. Relativement aux élus locaux, il est regrettable de noter que en devient plus transparente, parce que à plusieurs niveaux, la plupart du temps, un élu sur deux convoqués assiste à ce genre les populations représentées par les OCB, ont un droit de de rencontre au moment où les acteurs des OCB insistent pour y. regard sur le processus. Par ailleurs, l’appui matériel aussi est à mettre à l’actif des partenaires tel que l’IAGU qui a renouvelé le matériel Pour réduire la pauvreté de moitié à l’horizon 2015, l’Etat informatique de l’assistant technique qui est du même coup sénégalais a décidé de mettre en place de manière soutenue, une connecté à Internet. politique économique et sociale permettant de relever 6. Concours de l’Etat significativement ses performances socio-économiques et de placer le pays sur un sentier de développement humain durable. L’implication de l’Etat à travers le Ministère de l’Urbanisme et A cette fin, le Sénégal a initié en 2000 un processus participatif de l’Aménagement du Territoire dans la mise en œuvre de de préparation d’une stratégie de réduction de la pauvreté fondée l’agenda 21 local constitue une initiative très importante qu’il sur une croissance distributrice et la satisfaction des besoins de conviendrait de reproduire avec d’autres ministères tel que celui base des populations pauvres. Le consensus autour de cette de l’environnement. stratégie met l’accent sur la nécessité d’une mobilisation des L’organisation de tables rondes de bailleurs aussi est décideurs politiques, des acteurs nationaux et des partenaires au d’importance capitale pour la prise en charge des besoins et développement pour lutter contre la pauvreté et l'exclusion à budgets arrêtés pour la mise en œuvre des plans d’actions travers l’établissement d’un lien étroit entre la réduction de la identifiés dans le cadre des forums communautaires et pauvreté, le progrès économique et le renforcement des capacités. consultations locales. Cela permet une synergie des actions des La démarche participative retenue par l’Etat du Sénégal pour différents bailleurs. élaborer le DSRP a impliqué aussi bien au niveau local que national l’ensemble des acteurs du secteur public, du secteur Agenda 21 et stratégies de développement privé, de la société civile et les partenaires au développement. Cette même démarche participative a prévalu dans le cadre de La mise en œuvre de l’agenda 21 entre en droite ligne de la l’agenda 21 dont les 3 thématiques principales cadrent déclaration de Dakar qui prône de nouvelles stratégies et parfaitement avec les grandes problématiques mondiales démarches pour l’atteinte des objectifs de développement du (mobilité urbaine/réduction de la pauvreté), (déchets/gestion de millénaire. Spécifiquement à Louga, l’agenda 21 a permis l’environnement) et (vih/sida/santé des populations) l’implication de certaines couches populaires qui n’avaient jusque là jamais été impliquées dans des processus de Agenda 21 local et initiatives internationales développement surtout sur les 3 thématiques identifiées que sont le vih/sida, les déchets et la mobilité urbaine. Aujourd’hui, des L’organisation de forums et de rencontres internationales telles OCB revendiquent leur implication, leur participation et leur qu’Alexandrie 2003 et la Havane 2005 constitue des moments collaboration à l’agenda 21 local. Cela fait plaisir de voir que des forts de partage entre acteurs d’agenda 21 d’horizons divers. populations veulent intégrer les cadres de concertation de Mieux que tout cela, des échanges d’expériences, à travers des l’agenda 21 pour participer à l’effort communautaire et municipal voyages, entre les différents agendas des pays ayant en commun d’une gestion concertée et citoyenne des préoccupations des ce programme serait une initiative pertinente de capitalisation populations. Cela induit plusieurs conséquences : d’expériences. A titre d’exemple on peut citer la ville de Bayamo § Les responsables politiques locaux impliqueront à Cuba et Louga au Sénégal sur la problématique de la mobilité nécessairement les populations s’ils veulent la réussite des urbaine qui est au cœur des préoccupations des populations. projets et programmes mis en œuvre ; § L’efficacité est plus garantie puisque les bénéficiaires des projets et programmes sont impliqués. A cet effet, la

59 Havana 2005 - Documentation of experience SCP/LA21

GUEDIAWAYE, SENEGAL Agenda 21 Local de Guediawaye

Assistant technique

Les activités A21L devraient permettre aux citoyens d’œuvrer Le programme A21L est encore dans sa phase d’implantation à pleinement à l’amélioration de leur cadre de vie du fait de leur Guédiawaye toutefois, le développement des innovations qu’elles implication parfaite et de la mise à leur disposition d’outils de prônent, est facilité dans la ville par la mise en place d’un certain planification adaptés et opérationnels. nombre de mécanismes d’appui.

De plus, l’innovation majeure, à Guédiawaye sera la recherche D’abord, la création d’un poste d’Assistant Technique du projet concertée de solutions durables pour la préservation des dans l’organigramme des services de la ville et son implication à ressources environnementales facilitée par l’élaboration et la toutes les activités de développement et tâches de gestion initiées mise en oeuvre d’un plan de communication couplé à la mise sur dans la ville. pied de cadres de coordination (comités21 de ville et d’arrondissement) regroupant les différents acteurs de la Ensuite, l’innovation majeure à Guédiawaye demeure être, la gouvernance urbaine locale (Etat, Municipalités, Organisations mise en place dans les cinq (05) communes d’arrondissement, de communautaires de base, ONG, Privé,…) « comités21 d’arrondissement », prolongement et clone du comité 21 de la ville. Ces structures ont été légalisées par des Les facteurs locaux favorables à l’intégration de l’A21L, à arrêtés pris par les différents Maires d’arrondissement. Guédiawaye, demeurent être principalement : l’existence, depuis 1994, d’un projet de ville dont la démarche d’élaboration a été Ces structures d’appui devraient se renforcer avec l’amélioration participative et très similaire à celle de l’A21L ; l’existence de de leurs stratégies de communication, (restitutions publiques dans Plans Locaux de Développement (PLD) dans les différentes les quartiers ; points de presse périodiques ; création de bulletins entités locales de la ville ; un tissu associatif très développé ; d’information ou de radio- communautaire.) ; l’accroissement de l’inexistence de plans de gestion des risques environnementaux leurs moyens didactiques, financiers et techniques ; la prise en (inondations, gestion de la bande de filaos, l’extraction du sable compte de leurs recommandations par les conseils municipaux marin,…) ; le manque d’un cadre de concertation permanent et dans leurs programmations des tâches de gestion. transversal ; une volonté politique manifeste pour trouver des solutions durables ; l’existence d’une expertise locale disponible; L’appui technique pour la mise en œuvre des activités A21L au la subdivision de la ville en communes d’arrondissement niveau de la ville de Guédiawaye sont du ressort de deux permettant l’élaboration de politiques sectorielles pouvant institutions : l’IAGU et ENDA/ECOPOP. engager différents niveaux de citoyens. L’IAGU a en charge la conduite des aspects purement techniques Cependant, malgré l’existence de nombreux paramètres du programme : mise à disposition à la ville d’outils pour favorisant l’intégration du processus A21L, force est de constater l’élaboration du profil environnemental, l’organisation de la que, les obstacles à son assimilation sont légion et, nous pouvons consultation de ville, montage de groupes de travail pour en citer notamment :la lassitude manifestée par les populations l’élaboration de projets,…Il assure aussi un appui- conseil et un dans les programmes ; les difficultés à dérouler un plan de suivi des tâches exécutées par l’Assistant Technique. communication local ; les difficultés de faire assurer le portage politique par des élus, à majorité analphabètes et peu formés ; les Cette institution- d’appui apporte une innovation à la manière de difficultés de s’appuyer sur un personnel municipal pas ou peu planifier la résolution des problèmes environnementaux avec une formé et mal équipé ; l’absence et/ou le manque d’organisation démarche concertée, séquencée et menant à des solutions des archives municipales ; le manque de coordination et de durables. concertation dans les actions ; les rivalités et clivages entre L’appui est conséquent mais, il gagnerait à mêler tous les hommes politiques ; l’absence d’un Système d’Information partenaires techniques de la ville et à renforcer davantage le Géographique (SIG) ; la faiblesse des moyens financiers, plateau technique du projet. matériels et humains. ENDA/ECOPOP est chargé du volet formation de l’A21L ; Toutefois, ces obstacles pourront être surmontés par la mise en notamment le renforcement des capacités des acteurs locaux du œuvre d’actions telles que :le renforcement des capacités des comité 21 local. différents acteurs locaux (élus, techniciens, agents municipaux, Ses modules de formation répondent à certains besoins identifiés OCB,…) ; la création de certains services dans les municipalités par les acteurs toutefois, ils demeurent insuffisants face à (des archives, un SIG,…) ; la formation des acteurs locaux en l’ampleur de la demande. techniques de communication et mise en place de médium (radio communautaire, bulletins d’information) ; la mise à disposition Les aspects de la gouvernance urbaine que l’A21L devra de moyens financiers, logistiques et humains suffisants à l’équipe permettre d’améliorer dans la ville de Guédiawaye seront les chargée de piloter les activités du programme AL21 ; la mise en suivants : œuvre effective des projets qui seront retenus comme prioritaires lors de la consultation de ville. § la durabilité : Guédiawaye est une ville où les activités commerciales et les programmes de développement foisonnent mais les impacts sur les ressources sont très 60 Havana 2005 - Documentation of experience SCP/LA21

souvent négligés ou simplement ignorés. L’innovation dans manières de susciter un intérêt majeur et un engagement la gestion urbaine induite par les activités de l’A21L peut sans faille des populations. amener une prise de conscience sur la nécessité de mener des activités qui ne puissent pas compromettre la survie de § la sécurité : Les activités de l’A21L participent à la la communauté et celle des générations futures. compréhension des interrelations entre l’habitat et le cadre de vie et permet ainsi, d’éviter des propositions de solutions § l’équité : La gestion des affaires locales est exclusivement ponctuelles qui cachent souvent mal les germes d’une du ressort des élus locaux; par conséquent, une frange insécurité. importante de la population risque de ne pas se retrouver dans les décisions prises pour la gouvernance locale. Les Le Profil Environnemental de la ville de Guédiawaye fait innovations induites par l’A21L encouragent l’implication ressortir essentiellement les thèmes et les problématiques ci-après de divers acteurs et la recherche collective de solutions : la gestion côtière, l’eau et l’assainissement, la pollution, la durables partagées unanimement. santé, l’habitat, la pauvreté. En effet, le cadre environnemental de la ville est marquée par une destruction aigue et prononcée des § l’efficacité : Le modèle A21L ne se limite pas seulement à ressources environnementales (pédologiques et forestières), le identifier les besoins, à les prioriser et à définir des phénomène cyclique des inondations, la contamination des eaux stratégies d’action mais, il permet aussi, l’élaboration de souterraines, la pollution, le développement de maladies projets et la mise en œuvre de certains d’entre- eux. Un tel (paludisme, choléra, etc…), l’existence de quartiers spontanés où procédé annonce une rupture d’avec les prévisions irréalistes règne une extrême pauvreté, les risques de glissement de terrains et irréalisables du passé. relatifs aux maisons bâties sur des talus de dunes.

§ la transparence et la responsabilité: La transparence est Ces problèmes sont devenus tellement aigus et partagés par un garantie par l’approche qui permet à chaque acteur de nombre important de nations et d’êtres humains que des agendas participer et de disposer des informations voulues à tout d’actions mondiaux contre leur éradication ou leur réduction sont moment car la structuration du programme entraîne de facto, élaborés, notamment : les Objectifs du millénaire pour le le partage. Développement (recommandations 1 ; 6 et 7 cadrent avec les problématiques décelées dans le profil), les recommandations du § Le partage entier des informations et l’implication totale de Sommet Mondial pour le Développement Durable de tous aux différentes étapes du processus devront découler Johannesburg en 2002, le DSRP pour la réduction de la pauvreté vers la responsabilité pleine et entière des acteurs. à l’horizon 2015, les campagnes mondiales sur l’insécurité foncière et immobilière, le Programme pour l’Habitat,… § l’engagement civique et la citoyenneté : La livraison de données pertinentes d’analyse de la situation environnementale et la création de cadres de concertations élargies à tous les démembrements de la ville (comités 21 de ville et d’arrondissement, consultation locale) sont de belles

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MATAM, SENEGAL Agenda 21 Local, Matam

Assistante technique de Matam

La mise en œuvre du projet Agenda 21 Local a été l’occasion attentes des populations et de les intégrer dans la vulgarisation dans la ville de Matam, de créer une rupture dans la stratégie de des politiques de développement et de prendre en compte leurs gouvernance urbaine. En effet, la gestion des affaires urbaines préoccupations afin de les intégrer dans ces programmes, mais dans la commune est du ressort de la municipalité. Cette gestion aussi, de permettre à tous ces groupes d’acteurs d’échanger sur est marquée par un cloisonnement des activités avec une leurs visions du développement urbain. multitude d’acteurs qui se côtoient dans ville mais en l’absence de toute logique communautaire. Avec la promotion de la A travers la supervision des activités du programme, chaque participation communautaire qui est un des principes clé du membre du comité, représentant un organisme a apporté une programme, la participation citoyenne sera une réalité à travers la contribution à la réalisation du profil environnemental. Les mise en œuvre de mécanismes permettant à la municipalité réunions du comité local se sont tenues pour apporter des d’intégrer les visions des citoyens dans ses programmes solutions à des problèmes ponctuels rencontrés dans le cadre de prioritaires. C’est également l’occasion de mettre en ouvre des l’élaboration du profil environnemental. Bien que crée par arrêté mécanismes de planification urbaine dans la mesure où Matam municipal, la participation du comité local est théorique et est marquée par l’absence de tout document de planification passive et il serait salutaire de mettre en œuvre des mécanismes comme les Plans locaux de développement (PLD) ou les plans de permettant au comité de prendre des décisions dans un cadre développement urbain (PDU). Le profil environnemental, légal. diagnostique environnemental de Matam permettra à la municipalité de mieux cerner les problèmes environnementaux de L’équipe de projet mise en place rassemble l’assistante la collectivité et en accord avec elle d’y apporter des solutions. technique, le coordonnateur et l’adjoint au maire. Cette équipe coordonne les activités de l’agenda et définit les orientations et La ville de Matam est marquée par une volonté commune des les moyens à mettre en œuvre pour la réalisation des activités : populations d’œuvrer pour le développement d’une ville qui du profils, consultations. temps de la colonisation jouait un rôle prépondérant aussi bien sur le plan économique qu’administratif. Avec l’érection en 2002 Dans le cadre des appuis à l’élaboration de l’agenda 21, des d’une nouvelle région dont Matam est la capitale régionale, les structures ont apporté leur concours à la municipalité. Il s’agit de espoirs de la population se sont cristallisés. Le désir commun de : voir la ville tenir son rang dans la stratégie nationale de développement et de lutte contre la pauvreté a permis de susciter L’appui de l’institut africain de gestion urbaine (IAGU) l’adhésion et les espoirs de la population, qui s’est engagée à L’IAGU intervient dans le domaine de la gestion et de la œuvrer pour la réussite du programme Agenda 21 Local. De plus, planification environnementale, de l’aménagement urbain et de la les organisations communautaires de base sont très bien gouvernance locale entre autres. Elle a eut à capitaliser une implantées et ont acquis au fil du temps l’expérience nécessaire à grande expérience dans la conduite des processus de la participation aux actions de développement. consultations locales, outils de planification stratégiques participatives au niveau municipal. Comme institution d’ancrage Toutefois, la multiplicité des convictions politiques de ces du projet, l’IAGU est chargé par ONU-Habitat de l’appui acteurs, de même que leurs intérêts divergents les conduit technique et institutionnel pour la mise en ouvre du programme. souvent à œuvrer à contre-courant de la municipalité. Ce qui constitue un obstacle pour une bonne mobilisation sociale. Mais Dans le cadre de la mise en œuvre des Agenda locaux, les la multiplication des actions de sensibilisation sur les enjeux du équipes de projet ont suivis des sessions de formation de IAGU programme permettrait de mieux contourner ces facteurs. Le portant sur les méthodes d’élaboration du profil environnemental problème le plus important reste l’absence de données à l’échelle et des consultations locales. A cela s’ajoutent les documents mis de la commune. L’inexistence d’une base de données urbaines et à la disposition des équipes et qui servent de support pour la d’une cartographie de la commune a réellement constitué un frein réalisation des profils. Cette institution, chargée d’apporter un à l’élaboration du profil environnemental. appui technique aux équipes pourrait dans des cas comme celui de Matam caractérisé par une absence notable de documentation, La mise sur pied d’un comité de pilotage pour la supervision au s’impliquer dans la recherche de solution à ce problème niveau local des activités du programme a constitué un déclic. particulier qui a considérablement ralenti l’élaboration du profil Non seulement par la diversité des intervenants : représentants environnemental. Un meilleur appui technique est nécessaire des OCB : association des commerçants, GIEs de femmes, GPFs, dans la réalisation du programme. A cela s’ajoute la faiblesse des Clubs de solidarité, association des usagers du fleuve ; des moyens financiers dont dispose l’équipe de projet. services déconcentrés de l’Etat : Développement social, aménagement du territoire, agent voyer et des Association ENDA Ecopop chargé de conduire le volet renforcement des d’appui au développement : ADOS, ADECOM et la presse. Les capacités des élus locaux (par ONU-Habitat) dont l’objectif est services techniques et les OCB qui s’étaient toujours sentis de mieux outiller les élus locaux pour une meilleure prise en marginalisés par l’institution municipale, se sont vus impliqués. charge des affaires de la ville. Apres une évaluation préalable des Cette mise en synergie d’acteurs de différents horizons va besoins en formation qui a permis de déterminer en rapport avec permettre à la municipalité de mieux mesurer les aspirations et le contexte local et national, la tenue de deux sessions de 62 Havana 2005 - Documentation of experience SCP/LA21 formation : sur les textes de la décentralisation et sur le Le thème de la réduction de la pauvret é est prépondérant dans la leadership des acteurs. Les résultats ne se sont pas faits attendre ville. En effet, à Matam, 70% de la population vit des activités au sein de l’institution municipale avec la redynamisation des agricoles. Ce secteur, face aux aléas climatique de ces dernières commissions au sein du conseil municipal jusque la léthargiques. années, à l’appauvrissement des terres et à la baisse des Mais au delà, les conseillers sont devenus plus conscients du rôle rendements, a subi de graves bouleversem ents. Les qu’ils auront à jouer dans la mise en ouvre de l’agenda. aménagements hydro agricoles réalisés sont une réponse mais la faiblesse des superficies aménagées limite la portée de l’action. Sur l’initiative du maire appuyée par Enda Tiers Monde//Ecopop, la mise sur pied du comité de suivi des actions de la commune La pauvreté urbaine est très importante dans la ville avec un taux (CSAC), composé des délégués des unités communautaires de d’activité des population d’environ 22% en 1993. De ce fait, développement (UCD) des différents quartiers de la ville a comme beaucoup d’études l’ont montré, les atteintes à permis à la municipalité d’instaurer les jalons d’un dialogue avec l’environnement demeurent très importantes. C’est ainsi que la la population pour la prise en compte de ses préoccupation mais couverture végétale ne cesse de régresser victime à la fois des aussi de vulgariser les actions de la commune à la base. Dans la actions anthropiques et des rigueurs du climat. A ce titre, comme mise en œuvre de l’Agenda 21, cette structure joue un rôle recommandé par le plan national d’action pour l’environnement prépondérant car appelée à servir de relais dans la diffusion de (PNAE) et le plan national d’action de lutte contre la l’information pour réussir la participation citoyenne. désertification (PAN/CLD), la région de Matam s’est dotée d’un plan d’action forestier régional (PAFR) qui constitue un cadre Matam est marqué par un faible degré de participation des légal de mise en œuvre des différentes actions de lutte prévues populations dans l’élaboration des politiques. La municipalité, par les conventions et traités internationaux dont le Sénégal est seule responsable de l’efficacité des actions entreprises, doit signataire. lutter contre l’exclusion de certains groupes sociaux (particulièrement les femmes) pour assurer une gestion efficace La mise en œuvre de l’Agenda 21 local tout en promouvant le des affaires locales. L’agenda 21, dans le souci d’améliorer la développement économique urbain, reposera sur la préservation participation citoyenne dans les affaires de la commune, par le des ressources naturelles. Un des principaux axes de la stratégie mécanisme des consultations locales, permettra d’interroger les de préservation de la biodiversité nationale reste le renforcement préoccupations de la population en matière de gestion urbaine et de la prise de conscience des acteurs sur la nécessité de la de problèmes environnementaux. L’implication de toutes les préservation mais aussi sur le rôle joué par ces acteurs sur le catégories d’acteurs dans le comité local 21, est une garantie de phénomène de dégradation et de disparition de la biodiversité. A transparence dans la conduite des actions au sein de la ce titre, le programme Agenda 21 local se pose en contribution municipalité. dans la mise en œuvre de cette action.

63 Havana 2005 - Documentation of experience SCP/LA21

SAINT-LOUIS, SENEGAL Agenda 21 Local de Saint-Louis

Mamadou Dia, Assistant Technique Emilie Cabo, Stagiaire

L’Agenda 21, une innovation au service de la ville : une groupements d’intérêt économique (GIE) pour mieux se prendre meilleure interaction entre les différents acteurs du en charge. Ce vaste phénomène social a concerné toutes les développement local et la sensibilisation à la durabilité ? couches de la population. La participation de ces structures associatives au développement de leur localité a favorisé En responsabilisant les différents acteurs de la ville et plus l’émergence de nouveaux acteurs porteurs d’une nouvelle particulièrement les élus, l’approche PCD/A21L participe à faire citoyenneté. Ces citoyens de types nouveaux ont investi le rencontrer, dialoguer, des acteurs qui, jusqu’ici, travaillaient de champs urbain en développant un discours novateur : la gestion manière sectorielle. de la ville doit se faire avec et pour les citoyens de la ville.

En effet, la démarche consiste à amener différents acteurs à Ce discours émis sur la ville a été fortement entendu par les partager une vision commune sur la situation actuelle autorités politiques et administratives de la ville. En effet, des (diagnostic) et à venir (sous forme de plan d’actions) de la ville. pratiques hardies d’implication des différents acteurs dans L’approche A21L va dés lors au delà de la simple consultation l’animation du développement de la cité ont été initiées. Nous en entre acteurs en introduisant des changements de comportements voulons pour preuve la volonté affirmée des autorités durables chez eux en ce qui concerne la gestion de la ville. municipales manifestée par la mise en place de l’Agence de Développement Communal (ADC) qui a pour mission entre Dans un passé récent, la ville de Saint-Louis a connu une autres l’installation de Conseils de Quartiers dotés d’outils de démarche partagée de planification urbaine lors des Assises de planification locale comme les Plans de Développement de Saint-Louis en 1998, avec l’élaboration du Programme de Quartiers (PDQ). Ces Conseils de Quartiers constituent de Développement Communal (PDC). Par contre, les projets véritables écoles d’apprentissage de la démocratie locale. (Pour identifiés n’ont pas intégrés l’implication des acteurs dans la mise de plus amples informations visiter le site de la Commune de en œuvre. Saint-Louis à l’adresse suivante : http : //www. communedesaint- louisdusenegal.com). L’approche Agenda 21 Local, nous a semblé innovatrice en ce sens que grâce à l’élaboration du Profil Environnemental A cela s’ajoute un fort maillage du territoire communal par les (Document diagnostic sur la ville), elle interroge l’ensemble des services déconcentrés de l’Etat, les ONG et autres programmes acteurs sur des questions de durabilité, de citoyenneté d’appui au développement de la ville. participative, d’équité et de justice sociale, de pauvreté urbaine et de gouvernance locale. Désormais les acteurs comprennent aussi Cependant, ce fort potentiel d’acteurs et de pratiques de gestion que la gestion des ressources naturelles, fortement exploitées par urbaine ne risque-t-il pas de poser des problèmes de mobilisation les activités humaines, est au centre de l’interrogation sur la durable des acteurs autour de l’Agenda 21 Local ? C’est en ayant survie de l’espèce humaine en ce début de troisième millénaire. toujours cette interrogation à l’esprit que nous nous sommes évertués, lors de rencontres ou de restitution du PE avec les Dans une ville comme Saint-Louis, ville d’eau, de forte pression acteurs locaux, d’expliciter en quoi la démarche Agenda 21 Local foncière qui connaît un faible niveau d’activités économiques (le est novatrice tant par les problématiques soulevées que par les tissus industriel y est presque inexistant), l’approche Agenda 21 structures chargées de son animation. Local peu innover en favorisant la prise en charge par l’ensemble des acteurs des questions liées à la gestion de l’environnement Le renforcement des acteurs locaux grâce à une nouvelle et à la réduction de la pauvreté urbaine. organisation

Saint-Louis : une ville propice à une C’est ainsi que dans la mise en œuvre du processus A21L différentes structures ont vu le jour au niveau local. Dans un démarche Agenda 21 Local premier temps, une équipe projet, composée d’un Assistant technique et d’un Coordinateur a été mise en place. La ville de Saint -Louis fut l’une des premières villes de l’Afrique Occidentale à mettre en pratique des outils d’organisation et de L’Assistant technique a été choisi au sein de « l’équipe gestion de l’espace urbain dans des domaines aussi variés que environnement » de l’Agence de Développement Communal de l’aménagement du cadre urbain ou encore l’installation et la la ville dans un souci d’ancrage institutionnel du projet A21L et répartition d’équipements collectifs. de mise en cohérence avec les autres programmes de Suite à la perte de son statut de capitale, en 1959, la ville de développement de la ville. Entièrement mis à disposition du Saint-Louis a développé différentes stratégies de gestion urbaine. projet, il est de fait l’une des pièces opérationnelles du dispositif Elle s’est notamment appuyée sur la coopération décentralisée, local. avec la ville française de Lille, effective depuis vingt ans dans la gestion municipale, à travers l’association « Partenariat avec Le Coordinateur, Directeur de cabinet du Maire assure, en Saint-Louis et sa région ». Parallèlement, le tissu associatif local dehors de ses missions d’appui à l’assistant technique, une bonne s’intensifie et se densifie. Les populations se sont ainsi organisées en réseaux d’entre-aide (tontine), en associations et en 64 Havana 2005 - Documentation of experience SCP/LA21 institutionnalisation du projet dans les structures de la Commune La coordination entre structures d’appui (IAGU et Enda/Ecopop) et autres institutions de la ville. peut être améliorée dans le planning de leurs activités afin de poser moins de contraintes aux équipes projet. Cependant, compte-tenu de l’ampleur du travail à effectuer et des délais très serrés, il serait judicieux de renforcer en personnel Sur ce volet qui concerne le renforcement des capacités des l’équipe technique et de tenir plus régulièrement les réunions de acteurs, il faut noter l’intervention remarquable des services coordination interne (au sein de l’équipe projet) pour faciliter les locaux des Impôts et du Trésor public qui ont formés les élus, échanges et développer la communication autour du projet. sur sollicitation de l’équipe projet, sur les stratégies de mobilisation de la fiscalité locale et sur le processus Par la suite un Comité 21 Local, chargé du pilotage du projet est d’élaboration et d’exécution du budget. Cette formation a été mis en place par Arrêté du Maire. Ce comité de 18 membres est financée par le Partenariat avec Saint-Louis et sa Région et composé d’élus, des chefs de services communaux, de services l’Agence Régionale de Développement (ARD). déconcentrés de l’Etat, de responsables de la société civile et de personnes ressources. Ce Comité s’est réuni deux fois, lors de Cette forme de mobilisation de financements et d’expertises au l’atelier d’évaluation des besoins de formations et de son niveau local mérite d’être renforcée pour mieux valoriser les installation officielle lors de laquelle une restitution de la compétences locales dans le cadre de la démarche Agenda 21 première version du PE leur a été faite ; et deux fois pour la Local et l’exercice d’une gouvernance urbaine de qualité. préparation de la Consultation Ville. Une gouvernance locale à renforcer L’efficacité réelle de ce Comité doit être renforcée à la vue des missions qui lui sont confiées. A titre d’exemple et par souci En ce qui concerne la ville de Saint-Louis, le processus A21L d’articulation avec le niveau national, les Ministères devraient peut renforcer la gouvernance locale sur les aspects comme la adresser des lettres circulaires aux autorités administratives durabilité, la transparence, la responsabilité et l’engagement locales, pour mieux asseoir leur participation au processus. citoyen.

Un appui technique extérieur pour consolider En effet, la mobilisation des acteurs se fait suivant une logique de la démarche A21L projet sans vision sur le long terme. Elle épouse la durée des projets et souvent le citoyen ordinaire (même bénéficiaire) ne se Par ailleurs le dispositif d’appui technique (formation, sent pas concerné par le suivi et l’appropriation une fois que les renforcement de capacités, équipements) va considérablement partenaires financiers sont partis. L’une des raisons aussi de non aider les acteurs dans l’exécution de leurs différentes missions. participation des acteurs à l’action municipale, est liée à l’absence de transparence et/ou d’accès à l’information. En effet, pour assurer une participation de qualité des différents acteurs et rendre efficientes les structures du projet, des sessions Adaptation et intégration de la démarche au de renforcement des capacités ont été exécutées par deux ONG niveau mondial Sénégalaises : l’Institut Africain de Gestion Urbaine et Enda/Ecopop. La ville de Saint-Louis, située dans l’estuaire du fleuve Sénégal connaît jusqu’à nos jours des difficultés d’aménagement de La session de formation organisée par l’IAGU autour de l’espace urbain. En effet, l’espace urbanisable est régulièrement l’élaboration du Profil Environnemental a permis une inondé. En dehors de l’île, zone aménagée depuis la période compréhension claire du projet et de ces différentes étapes. coloniale grâce à d’énormes efforts de remblais, la majeure partie des autres quartiers de la ville est bâtie sur d’anciennes vasières L’IAGU, en tant qu’institution d’encrage, par l’équipement avec un habitat souvent de type précaire. Des actions de informatique du projet et sa connexion Internet au haut débit restructuration et de régularisation foncière sont des a apporté de meilleures conditions de travail en facilitant les préalables à l’amélioration du cadre de vie des populations. échanges et la recherche d’informations. La structure d’encrage local (ADC) du projet se trouve ainsi renforcée, ce qui augure La ville de Saint-Louis est aussi soumise aux influences de la une bonne institutionnalisation du processus dans les zone sahélienne. Elle est exposée aux effets cumulés du déficit institutions municipales. pluviométrique et de la désertification. A cela s’ajoutent les difficultés d’assainissement. Le réseau d’évacuation des eaux L’intervention d’Enda/Ecopop dans le renforcement des usées, s’il existe dans certains quartiers, reste d’accès difficile capacités des acteurs locaux est partie d’un atelier d’évaluation aux populations à cause de la cherté des coûts de branchements. des besoins de formations en rapport avec le processus Agenda 21 Local. Lors de cet atelier interactif, les membres du Comité 21 Par ailleurs, l’élaboration du PE a permis de mettre en évidence ont pu arrêter des types de formations clés pour chaque type l’acuité des problèmes de gestion de l’environnement marin et d’acteurs. côtier. En effet, la ville est nichée sur les flancs de l’Océan Atlantique dont elle est séparée par un mince cordon littoral, Cependant, à Saint-Louis, des besoins de formations, exprimés appelé la Langue de Barbarie. Ce fragile cordon littoral, seul par les élus sur la maîtrise des outils de gestion urbaine comme le rempart naturel de la ville contre l’Océan, est soumis à toutes Code de l’eau, le Code de l’environnement, le Code foncier…ne sortes d’agressions : extraction du sable marin, destruction de semblent pas être intégrés dans les prévisions de formations peuplements de filaos, forte pollution. Cette zone mérite plus même si à l’évidence elles peuvent participer à aider les élus dans d’égard compte tenu de la richesse et de la diversité de son l’exercice des compétences transférées. écosystème.

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Sur le plan économique, on a pu constater que les activités de la de qualité, faible niveau d’instruction constaté dans les ville se sont fortement tertiarisées. Le secteur informel contribue couches de populations les plus vulnérables. pour une bonne partie à la formation du Produit Local Brut. Cependant c’est un secteur qui échappe pour une part non Cependant de réelles potentialités de développement négligeable à la fiscalité locale et ne contribue pas à la création économique existent, notamment dans le secteur de la pêche. d’emplois durables. L’activité industrielle y reste marginale. Pour cela il s’agira entre autres, d’assurer une gestion durable et la restauration des ressources halieutiques, la formation des Selon le DSRP, la prévalence de la pauvreté est très forte au acteurs du secteur et la mise à disposition d’instruments Sénégal et touche 57,9% de la population. Saint-Louis n’échappe financiers accessibles et susceptibles de favoriser des pas à cette situation. En effet, la majeure partie de la investissements privés. population est frappée par la pauvreté. Les conséquences sociales sont visibles : difficultés d’accès à des soins de santé

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TIVAOUANE, SENEGAL Agenda 21 Local de Tivaouane

Assistant Technique de Tivaouane

Mode de gestion traditionnel de la ville : cadre § L’existence d’enjeux communs comme les questions d’insalubrité, de risques urbains, de détérioration des justificatif de la mise en œuvre d’A21L services communs de base et de conflits entre acteurs dans l’utilisation des ressources de l’environnement. La gestion de la chose publique incombe à l’équipe municipale § Les problèmes de développement et d’environnement dont les domaines de compétence ont été élargis à la gestion de ressentis par la plupart des populations et qui sont liés à des l’environnement, à la planification urbaine, aux domaines, à actions anthropiques : dégradation de l’environnement, l’éducation, à la jeunesse, à la culture, à l’aménagement du difficultés dans l’aménagement et l’exploitation des territoire, à la santé et à l’urbanisme et l’habitat. ressources, mauvaise occupation de l’espace urbain, accès inégal aux services publics etc. Toutes ces compétences poursuivent des objectifs de développement économique, de développement culturel et Les facteurs défavorables sont : éducatif et de développement sanitaire et social. C’est dire que le § Le défaut d’une culture de la citoyenneté du en partie à développement local, dans tous ses aspects doit être pris en l’analphabétisme et au manque d’instruction mais aussi aux charge par les acteurs et élus locaux. représentations socio-culturelles vis- à - vis du pouvoir et de l’autorité et aux rapports non républicains de la plus grande Les actions promues dans le cadre d’A21L ont offert majorité des acteurs à la chose publique. l’opportunité de mieux s’engager dans la prise en charge de ces § Niveaux inégaux d’information : l’information est différents domaines de compétence et d’ébaucher des inégalement partagée entre les différents acteurs civils, comportements nouveaux dans la gestion de la chose publique administratifs, politiques, économiques et autres. Chaque par : institution se comporte comme une forteresse et les § La mise en interrelation des acteurs et institutions à travers échanges d’information sont limités, dérisoires. Les des ateliers et séminaires. membres du Conseil municipal se situent eux aussi à des § La mise en place d’un cadre de concertation et d’actions niveaux inégaux d’information et entre l’équipe municipale collectivement élaborées et planifiées et les acteurs à la base, l’information et la communication § L’élaboration d’une carte analytique du développement et de sont toujours biaisées par les comportements stratégiques l’environnement urbain, support dune bonne planification du des uns et des autres. développement urbain durable. § Logique politicienne des élus : les préoccupations immédiates des élus locaux sont d’abord d’ordre politicien Facteurs favorables et/ ou défavorables à c’est-à-dire s’inscrivent dans le cadre de la recherche l’intégration des innovations promues par d’allégeance des d’acteurs individuels et collectifs et dans l’entretien d’une clientèle électorale qui passe par les A21L réseaux familial, parental, économique, amical et autres. § Mode de gestion traditionnel : Le mode de gestion L’intégration des innovations promues par A21L se heurte à traditionnel de la ville hérité du pouvoir et des compétences quelques facteurs limitants même si l’existence de facteurs traditionnelles de l’équipe municipale associe mal les favorables est à noter. acteurs à la base et demeure impuissant dans la prise en charge des compétences dévolues au niveau local. La Parmi les facteurs dits favorables, il faut distinguer ceux qui sont concertation est rare dans la gestion de la chose publique relatifs aux conditions favorables à l’opérationnalisation du accaparée par l’équipe municipale. En plus les structures processus A21L de ceux relatifs à la justification de la mise en municipales mises en place laissent en rade beaucoup de œuvre d’un processus A 21L dans la Commune de Tivaouane. domaines de compétences qui tardent à être intégrées dans les préoccupations de la gestion urbaine. Les comportements Pour les premiers on peut retenir : hérités du mode de gestion et des prérogatives traditionnels § L’existence de groupes d’acteurs politiques, institutionnels, des élus locaux restent défavorables à l’innovation et au économiques, sociaux (partis politiques, équipe municipale, changement dans la gestion des affaires courantes du fait de famille maraboutique, familles nobiliaires, organisations la volonté de pouvoir des élus. communautaires de base, organisations socio- professionnelles etc.). § La décentralisation qui stipule le transfert d’un certain Les mécanismes mis en place pour appuyer le nombre de compétences aux collectivités locales et qui offre développement des innovations promues par le cadre politique, juridique et institutionnel de l’AG21 responsabilisation des élus et acteurs locaux dans la gestion de la chose publique et dans la promotion du développement La mise en œuvre du Processus A21L a permis de mettre sur pied économique et social. des structures dont les rôles et les modes de fonctionnement sont de nature à apporter des changements dans le mode de gestion Pour l’autre catégorie de facteurs il faut retenir :

67 Havana 2005 - Documentation of experience SCP/LA21 des affaires courantes de la ville car y associant les divers acteurs qui permet le fonctionnement des structures mises sur place et à la base.. qui aide à l’opérationnalisation du processus A21L.

Le recrutement d’un Assistant technique, membre de l’unité de L’institut Africain de Gestion Urbaine fournit le plateau coordination a permis de travailler à temps plein sur A21L et de technique et logistique (recrutement d’un assistant technique, faciliter son opérationnalisation dotation en matériels informatiques, connexion à Internet, Un comité 21local est aussi mis sur place, chargé du portage du formation des membres de l’unité de coordination sur les étapes Programme et composé de notables, de conseillers municipaux, du processus, budget de fonctionnement, documentation etc.). de présidents de groupements et d’associations socioprofessionnels Le comité 21local constitue un premier Toutes ces actions répondent à des besoins que le budget plateau de personnes-ressources qui s’occupent aussi et surtout de municipal ne permet pas de satisfaire. la validation sociale et politique des actions envisagées. Les déplacements et donc la mobilité nécessaires de l’unité de Seulement le fonctionnement de ce comité se heurte à coordination souffrent de moyens. Un appui additionnel est l’irrégularité des rencontres et de l’absentéisme des membres. Il nécessaire en termes de facilitation de la mobilité de l’unité de en est ainsi car en dehors des activités promues dans le cadre coordination et en termes de ressources permettant de mobiliser d’A21L, le comité 21local n’est guère associé par l’équipe de façon régulière les membres du comité 21 local et du groupe municipale dans la gestion et la gouvernance locales. consultatif.

Face à la difficulté de réunir tous les membres et de manière C’est à travers cette mobilisation que les acteurs locaux fréquente, des entretiens et consultations individuels sont initiés pourraient avoir l’occasion de participer à la définition des depuis par l’unité de coordination qui utilise les membres du besoins et au renforcement des mécanismes de fonctionnement comité pour recueillir des informations sur les réalités socio- du processus A21L. économiques et environnementales de la ville. Un groupe consultatif est aussi mis sur pied, composé de L’équipe ecopop d’ENDA TM intervient dans le cadre du techniciens des services déconcentrés, des responsables d’OCB, renforcement des capacités des élus et acteurs locaux au moyen d’experts locaux etc. de sessions de formation centrées sur les textes et lois de la décentralisation, sur la communication et la mobilisation sociale, Ce groupe est chargé de la validation technique ainsi que du suivi sur le plaidoyer et la gestion des conflits et aussi sur la des plans et actions envisagés. Des groupes de travail sont planification et la gestion urbaines. Ces formations se déroulent identifiés à travers les ateliers et séminaires déjà tenus. sous forme d’ateliers qui offrent l’opportunité de réunir toutes les Le groupe consultatif aussi n’est utilisé que dans le cadre de la catégories d’acteurs autour des problèmes de développement et mise en œuvre du processus A21L. de gouvernance de la ville.

Ce groupe fonctionne néanmoins et contribue considérablement à L’apport d’ENDA consiste à aider les élus et acteurs locaux dans la conception et à la planification dans le cadre d’A21L. l’élaboration et la formulation d’agenda 21 local.

L’unité de coordination reste la seule structure qui fonctionne à Les autres appuis techniques sont fournis par les divers services temps plein. déconcentrés qui interviennent au niveau départemental et qui sont basés à Tivaouane. Seulement ces appuis sont limités par les Le problème fondamental auquel se heurtent le comité 21local et moyens dérisoires de ces services et par les limites du budget le groupe consultatif demeure l’inappropriation du processus qui municipal. fait que ces structures n’existent et ne fonctionnent que sous l’impulsion de l’unité de coordination et à l’occasion des Renforcement de la gouvernance urbaine à réunions et ateliers. Elles ne prennent pas d’initiatives qu’elles attendent toujours de l’unité de coordination. travers A21L

Le renforcement de ces structures est indispensable et passe par A21L offre l’opportunité de renforcer la gouvernance locale dans la multiplication des rencontres et ateliers qui requiert des ses divers aspects. moyens financiers (restauration, perdium). Ce renforcement passe aussi et surtout par la reconnaissance effective de ces structures Durabilité : En réunissant tous les acteurs autour des réalités et par une définition claire et acceptée de leurs modalités environnementales de la ville et en les responsabilisant dans la d’intervention et de participation dans la gestion des affaires gestion et la sauvegarde des ressources qu’ils utilisent dans le courantes. Ces structures sont certes créées par décret municipal cadre de leurs secteurs d’activité respectifs, A21L offre les outils mais leurs prérogatives se limitent dans le cadre des activités du et les mécanismes pour renforcer et rendre efficace la Processus A21L. Elles n’interviennent pas dans la gestion des gouvernance locale dans le sens de la promotion de la durabilité affaires courantes. C’est dire que leur intégration effective dans le économique et urbaine qui passe par une utilisation rationnelle système de gestion et de gouvernance locales doit être promue et des ressources épuisables. Une mauvaise connaissance de facilitée par l’équipe municipale. l’écologie urbaine et l’absence d’un cadre de réglementation et de gestion de l’environnement demeurent à Tivaouane les principales causes de l’utilisation néfaste des ressources du Rôles et apports des institutions d’appui milieu. A21L offre l’opportunité de corriger ces défauts.

Les institutions d’appui comme l’Institut Africain de Gestion L’équité : L’accaparement de la chose publique par une minorité Urbaine (IAGU) et l’équipe écocop d’Enda TM apportent un élitiste (religieuse, politique, administrative etc.) constitue la concours d’ordre technique, matériel, financier et pédagogique principale source du traitement inégal des populations et de leur 68 Havana 2005 - Documentation of experience SCP/LA21 accès inégal aux services publics. C’est pourquoi l’association Aussi les volets habitat, environnement, réduction de la pauvreté des divers acteurs à la gouvernance urbaine promue par A21L et durabilité sont-ils pris en charge dans le cadre des activités peut bien promouvoir l’équité étant donné que chaque catégorie A21L. d’acteur économique, politique et social a l’opportunité de se faire représenter au sein d’un cadre de concertation, de décisions Le développement urbain d’ailleurs concerne tous ces volets qui et d’actions visant à promouvoir une démocratie participative. entretiennent des relations d’interdépendance très étroites.

La transparence et la responsabilité : Les mécanismes créés La dégradation de l’environnement (recul du potentiel agro- offrent en même temps des moyens de contrôle, de suivi et pastoral, destruction de la mangueraie) est la principale source de d’évaluation via le comité 21 local, le groupe consultatif et l’appauvrissement d’une partie très importante de la population l’unité de coordination. Ils garantissent en même temps le partage de Tivaouane de même qu’une mauvaise planification de l’espace des responsabilités entre les différents acteurs qui se contrôlent urbain y pose des problèmes d’habitat et d’insalubrité. La mutuellement et favorisent la coordination et la communication surutilisation des ressources et des équipements collectifs (scolaires, sanitaires, commerciaux) constitue le principal L’engagement civique et la respo nsabilité : L’acceptation par obstacle à leur durabilité. les membres des structures des objectifs visés, qui sont d’ordre communautaire, suffit à montrer que l’engagement civique et la Les questions relatives à l’assainissement, à la mobilité urbaine, responsabilité peuvent être promus. En effet l’expérience déjà aux ressources foncières, hydrauliques et végétales, à la pollution acquise dans le cadre d’A21L permet d’affirmer que la atmosphérique ainsi qu’aux risques environnementaux, responsabilisation des populations est un moyen efficace industriels et urbains sont toutes prises en charge dans d’obtenir qu’elles s’engagent au profit du bien collectif et public. l’expérience de Tivaouane.

Mais ces attentes supposent une reconnaissance et une définition L’élaboration du Profil Environnemental de la ville a d’ailleurs au préalable des modalités d’intervention des structures comme le permis de recenser un certain nombre de problèmes Comité 21 local et le Groupe consultatif. environnementaux parmi lesquels le rabaissement du niveau de la La transparence et la responsabilité ainsi que l’engagement nappe, les risques de salinisation des eaux souterraines, civique et la citoyenneté peuvent aussi être promus à travers l’insalubrité, la destruction des sites de végétations naturelles etc. A21L. Seulement cette promotion suppose des moyens financiers et matériels supplémentaires qui permettent de multiplier les Les principaux facteurs et agents de la destruction de rencontres, réunions et ateliers. Elle suppose aussi et surtout une l’environnement sont aussi établis ainsi que les modalités de volonté manifeste de l’équipe municipale allant dans le sens de l’action de chaque acteur et agent. partager le pouvoir et les responsabilités. Les questions relatives à la gestion et la gouvernance urbaines Adaptation de la démarche au niveau mondial sont aussi soulignées par le P.E. Ces questions sont très largement débattues lors des ateliers et des séances de formation Les activités A21L, dans la ville de Tivaouane s’inscrivent dans sur la gouvernance et le Leadership locaux organisés dans le le cadre de la promotion du développement social et économique cadre d’A21L et mobilisent l’attention des participants toujours via une meilleure planification de l’utilisation des ressources très motivés à en débattre. environnementales, un meilleur aménagement de l’espace urbain ainsi que des ressources potentielles et une meilleure Toutes ces questions rejoignent les préoccupations des agendas appropriation par les acteurs de la gestion de la chose publique. mondiaux dans les quels s’intègre l’expérience de Tivaouane.

69 Havana 2005 - Documentation of experience SCP/LA21

SRI LANKA Sustainable Sri Lankan Cities Programme

K. A. N. Perera, Executive Director MArGG

INNOVATIONS This pilot projects has demonstrated that the composting is a sustainable method of reducing waste. The rate of acceptability of Several innovations were tried out initially in Colombo, Kotte this method is very high. However, being a program that needs and Dehiewala Mount Lavinia through a series of small- scale total participation of the residents, participatory methodologies demonstration projects. These experiments tried to address the 3 such as this require greater involvement and follow up by the full key issues mentioned above. time staff to educate and motivate the end users.

Issue No.1- Solid Waste Biogas The MC initiated a demonstration project to experiment on the Prior to the launch of SCP program, almost all Sri Lankan cities viability of using the market waste for generation of biogas. considered land-fill as the only Method of solid waste Market waste constitutes about 10-12% of the total volume of management. The practice adopted for disposal of solid waste city garbage. In 2001 a biogas unit with 4 cubic meter capacity was to collect and transport the household and commercial waste was installed at an orphanage run in a Buddhist temple close to to collection points along the main roads and then dump at the Municipal Council. The ITDG provided the technical advice landfill sites. The waste disposal was done through some slow while an NGO with the support of the WG facilitated the launch paced externally funded Projects. Almost all these cities by then of the project. The MC provided market waste to the site. The gas considered collection and disposal at land fill sites was “The chamber has the capacity to hold 8 metric tons of market waste Solution” to the problem of solid waste Management. Public which is sufficient to produce gas for a period of six months. displeasure and organized protests were growing against increasing volumes of uncollected urban waste and the frequent The Impact of this demonstration was high. The orphanage has transport of waste through their human habitats. As a result of a been able to reduce the energy cost (US$ 280 per month) non-governmental legal action, the Supreme Court has been incurred in cooking for 345 people by 30% and the MC its’ directing the major municipal councils to search for more transport cost by US$ 688 per annum for not having to take the comprehensive options to address the problem. waste to a far away dump site.

Through mutual consultations, the working groups and Recycling - Community Based Waste Collection and Sorting stakeholders were able to convince the Local Authorities that the Centre at Badowita landfill is not the only solution to SWM and that it requires more The Dehiwala-Mount Lavinia Municipal Council (DMMC) innovative and non traditional strategy based on the 3R principle worked closely with a re-settled low-income community at a new i.e. Reduction, Re-use and Re- cycling method if a viable and township called Badowita and set up a community-managed sustainable solution is to be found for the problem. waste separation centre.

The SCP guided the councils to adopt new technological UN-Habitat helped send a team of community leaders and alternatives. One of the examples is Kotte, the administrative municipal functionaries to Thailand and the Philippines on a capital of the country. During 2000 -2003, it experimented with study tour to learn new innovative methods of addressing the home-level separation of waste and composting. It also solid waste issues through community initiatives. The WG set up introduced an experimental bio-gas plant to use market waste. a waste re-cycling centre in the heart of the settlement. The SCP continued the solid waste management experimentations in households were motivated to separate non- degradable waste other cities too with similar success. and sell them to the centre. The waste-recycling centre is now fully managed by the community organisation and has become a The local authority (SJKMC) identified two middle-income model for replication. It has proved to be an excellent residential areas and introduced home level composting bins to demonstration on community managed pilot project on waste 600 households at subsidised rates as a demonstration project. segregation & recycling. Residents were educated on the objective and the advantages of the project. They were convinced that composting methodology It has helped reduce around 30% of waste previously thrown out will help produce compost required for their home gardening and for municipal collection. The quality of the environment, roads that there is no need to throw away the bio degradable waste. and canal in the area has improved significantly. It has provided Subsequently, the number was increased to over 2000 extending permanent employment for 3 persons. Each participating family the service to several other localities . earns minimum US $1 a month from recyclable waste sold to the centre which is adequate to pay the water bill and local rates. Subsequent evaluations proved that it had resulted in a substantial The Centre is now a replicable model visited and emulated by reduction of the volume of kitchen waste entering the main many other cities. stream of waste collected by the MC. It is estimated that 50% of the waste generated by those households who received a compost bin has ceased coming into the main stream proving that if the entire 30,000 households can be mobilized to use compost barrels, the overall volume could be reduced at least by 40%. 70 Havana 2005 - Documentation of experience SCP/LA21

Issue No. 2 - Environmental & Health Development Corporation (SLLRDC) Open University, and three NGOs. Green Star Project The Municipal Council of Colombo launched an innovative The project helped to make an overall improvement of project called The Green Star Homes (GHSP) in July 2001. It environmental and sanitary conditions through reduction of Solid was a city-wide environmental sanitation project covering the waste through Compost bins, provision of metered individual entire residential population of the city. The immediate objective water connections at subsidised rates ,avoidance of water was to combat the cyclic Dengue Fever epidemics. The stagnation through clearance of open drains with community methodology was to visit, educate and encourage every home to participation, removal of unauthorised constructions with be environmentally safe. Through follow up visits all well community consensus, improvements to infrastructure by maintained residential premises were declared as environment- repairing the damaged culverts through ‘self help’ programs friendly “Green Star Homes” using a six (6) point indicator initiated by the youth of the area and resultant flood prevention system. Within two months, the Department was during heavy rain. able to reach out to 43,000 homes with mass support from other department, agencies, NGO and Schools. Urban Air Quality Management (UAQM) Project Traffic congestion and deterioration of air quality has rendered The project was launched after giving written notice to all the health of the residents of the city as well as that of commuters households adequately explaining the six criteria for strict vulnerable. is an inevitable consequence of rapid compliance followed by comprehensive media coverage. The urbanization, but it could be kept at an acceptable minimum level teams revisited the houses to ensure that people understood and if the urban authorities are prepared to enforce the environmental applied the transmitted messages. Where the households had standards and to educate citizens and persuade them to cooperate. failed to meet the set criteria, the teams followed up, educating them further. Those who failed or refused to conform were first The SCP initiative in Colombo called the Urban Air Quality warned and then charged under the municipal regulations on the Management (AQM) Project was a technical initiative to improve prevention of vector-borne diseases. the air quality of Colombo city. Like the GSHP, this project too was successful in engaging the attention and commitment of all The project proved effective in enhancing the environmental the related agencies. Through extensive collaboration, the project conditions of the city reducing the vulnerability to mosquito created public awareness on air quality and the adverse effects of breeding. It also created an unprecedented civic awareness and the leaded petroleum products and the emission of fumes from commitment to clean environments. motor vehicles. Many corrective measures were taken to vigorously implement the pollution rules and regulations. After It also proved that successful implementation of environment the implementation of this project, a study revealed that the lead projects need mass public support, community participation and level in the blood samples of traffic police men has come down strict law enforcement and Inter-sectoral approaches, institutional by 86% compared to 1992.The sale of leaded petrol has partnerships and community participation is the key for completely ceased. sustainable development. As a result of the demonstration, the initiative was soon The Green Star Home Project was a “Gold Winner” at the transferred from the CMC to a national level Taskforce under the International Green Apple Awards for Environmental Best Ministry of EnvironmentThe AQWG was re- named in 2001 as Practices in 2003. The contest was conducted by the Green Clean Air Initiative (CAI) to fall in line with the Clean Air Organization of the UK and the awards ceremony was held in the Initiative for Asian Cities. of UK. Issue No.3 - Low income Settlement’s water supply Welligodawatta Community Development (WCD) Project The WCD Project was an effort to improve the social cohesion Non Revenue Water Wastage Reduction Project (NWRD) and environmental sanitation within a large slum settlement in Supplying water to poor groups is a major municipal the North of the Colombo city. Based on the places of origin responsibility. For many decades, the Colombo Municipal from where the different ethnic and social groups migrated to this Council has been providing safe drinking water to the poorer colony a generation ago, the community remained divided. Each settlements free of charge through public stand posts. This group vied to protect its identity and distance from each other and service was called “non- revenue water” because water supply therefore, collective bargaining at the municipal level for basic did not bring any revenue to the MC. However, due to lack of services was not possible. ownership, these public taps are untended. Water continues to leak throughout the day resulting in a huge loss of costly water. This project demonstrated the organizational capacity of the poor, These taps meant for the poor are often used by the non-poor for help federate different resident societies into one, in the end washing their vehicles and for construction of roadside buildings, becoming a voice and force that the municipal system would thereby causing a considerable loss of revenue to the reckon and trust. Community action planning was done and municipality. major environmental issues that need be addressed were identified. The respective municipal departments were mobilized The Non Revenue Water Wastage Reduction (NRWR) Project to help implement the plan. was introduced by SCP to reduce this colossal waste. The project demonstrated that, with attractive subsidies, participatory & The demonstration project was initiated after forming issue interactive decision-making, effective public awareness creation specific working groups which included the relevant departments and proper motivation, the poor communities could be persuaded of the CMC, Weligodawatta Community Development Council to obtain metered water connections to their private homes (WCDC), National water supplies & drainage board (NWSDB), without depending on the road side stand posts. National housing development Authority (NHDA), Sri Lanka 71 Havana 2005 - Documentation of experience SCP/LA21

Through working group mechanism the projects aimed at different set of skills and attitudes the programme attempted to educating and encouraging them to obtain their own water build Local Government Capacities in three stages. connections that they too perceived would, increase their legality of ownership, social status and privacy. Working with nine (9) In the first two years, the project organized a series of training communities in different locations, the project organized and programmes on participatory methodologies. Until 2002 the mobilized a total of 277 households into resident associations. orientation training in EPM Process was given by the SCP The residents volunteered their free labor in digging the trenches Project Support Services team under the leadership of the NTA. and helped the council workers in laying the pipelines thereby reducing the construction costs. Un-metered stand posts were A subsequent training needs survey conducted revealed that the gradually withdrawn. capacity building must be a comprehensive exercise and that it needs an action plan which calls for more intensive and long term Projects Initiated and Abandoned training. As a result the SCP Capacity Building on a strategic plan was started in January 2003. Eventually this initiative Despite success stories outlined above there were a few projects resulted in a national level training programme being developed which did not take off the ground due to various reasons. So me with the EPM process is built into the training modules. projects were abandoned half way through. Two such projects are given below. The SCP Project Support Team (PST) identified two key national level training institutions, i.e. the Sri Lanka Institute of Local Solid Waste Management (SWM) Project - CMC Governance (SLILG) and Centre for Urban and Regional SWM project launched by CMC was short lived. Due to a lack Planning (CURP) to assist in the training work. SLILG focused of motivation of its leader, it suffered from teeter-totter on building technical capabilities including the training in EMIS. syndrome, i.e., instances of great enthusiasm followed by The CURP specialized in training on social mobilization and indifference and lack of involvement. The project was abandoned participatory methodologies. after several well-attended initial meetings. UGSP Training Instead, the department on solid waste management directed a parallel experimentation using the CMC funds assigned to With the expansion of the programme to 18 cities and the demonstrate the efficacy of the home composting system to broadening of its scope to cover good governance and poverty reduce the volume of waste coming out of private homes for issues, SCP was renamed in 2004 as Urban Governance Support municipal collection. There was no formal working group Programme (UGSP). There was a growing demand from local involvement but, a small group of departmental personnel met on authorities for staff training. The participatory mechanisms that and off to discuss the progress. were being introduced required training in social mobilization skills and sensitivities. As a result, in January 2004, the UGSP 600 composting barrels were distributed. However, there was no launched a strategic plan aimed at further improving the design, social preparation before the issuance of the barrel nor was there quality and the content of the capacity building progrmame. sufficient follow up to ascertain what really happened. No proper evaluation was done and the initiative did not gather momentum. The Institute for Housing and Urban Development Studies (IHS), consultants of The Netherlands provided the technical services to Perhaps, the failure can be attributed to the fact that the CMC develop the new capacity building strategy. The new strategy has was negotiating with a local private Sector Company to outsource been based on the draft of SCP initiated National Policy and the collection and disposal of waste. The company had been Strategy for Capacity Building of Local government formulated insisting on a guaranteed daily volume of 500 tons as their break in 2003. As the new strategy follows the guidelines of the even. Presumably, time was not right to attempt any reduction of National Strategy, it could play a supportive role in the waste through composting. implementation of the National Policy.

Under the UGSP program a comprehensive curriculum that Re -Ordering of Low Income Housing on a Designated includes 10 well-structured workshops with new and improved Beachside - DMMC modules has been developed. The strategy aims to empower The Beach Project initiated by the DMMC had a very promising trainers on EPM, Good Governance, Poverty Reduction and start but came to a halt after the local government elections and Gender Parity through Training of Trainers (TOT). For this consequent change in municipal leadership. After many meetings purpose, the design, methods and content of training modules and good planning when the area-plan and the structure model were newly developed. The new strategy has also set a target to were ready, the project lost its steam as the Mayor who increase the share of women’s participation in training programs spearheaded the initiative was replaced at the 2002 Municipal at least to 40%. Elections. The New UGSP training program is demand driven. The local Urban Governance Support Programme (UGSP) authorities are free to decide the type of training they need for Training & Capacity Building their staff. The response is encouraging and the LAs are making the best use of it. Please refer annex 1 for more details of the The Background UGSP training program.

The project focused on building local government capabilities to promote and sustain cooperative efforts, consultative processes and public private partnerships. To most of the local authorities, working group and participatory mechanisms were a totally new concept. As working with communities requires a completely a 72 Havana 2005 - Documentation of experience SCP/LA21

Mainstreaming The Innovations At Local sectoral approach advocated by the SCP. Without this approach, it would not have been possible to launch projects of this nature Level which requires extensive cross sectoral support. The green Star Home project has been successfully replicated at Matara which is Following the success of these innovations, the micro a non SCP city located in the Southern Province. experiences were up-scaled in own towns and replicated in other cities. The lessons from these experiences have begun to inspire SCP process was instrumental in activating municipal interest in local leaders of municipal administrations. Many local authorities looking at urban issues and inter-agency partnerships in a undertook study visits to these successful demonstrations and positive manner. The AQM and Green Star projects were shining emulated the experience. In many cities, the successful SCP examples. It is evident that the SCP process was instrumental in micro experiences were up-scaled with funds from the Council activating municipal interest in new issues and looking at the budget. Many of these councils use the working group urban issues in a new light. The AQM is a collaborative effort mechanism when they require local stakeholder participation. between the CMC, Central Environmental Authority (CEA), the Department of Meteorology, the Department of Police and media. The Environment Planning and Management (EPM) process The CEA provided technical leadership and the others bear introduced by SCP has been gaining ground gradually. The implementing responsibility. process is now active in 18 cities. Several positive results are already evident. The working groups have been the most effective tool to bring the different stakeholders such as NGO’s and the private sector The Positive changes of SCP into a collaborative partnership with the local authorities. The Working Group meetings are well attended by the stakeholders. Improved Municipal Approaches In some cities, the management has given the Working Groups a The SCP helped the municipalities understand the value of considerable degree of autonomy in deciding on mainstreaming scientific data collection and analysis as a starting point to the demonstrated strategies. The working groups have been the formulate creative responses. Data management has improved in most effective tool for NGO’s and the private sector to become the SCP cities. Preparation of the City Environment Profile as involved in the process of city management. The engagement of required by the EPM process called for a detailed situation Sevanatha, MaRGG and Arthacharya as national partners has analysis. The initial assessment of the core environmental been possible due to this. In the replication cities the problems affecting their cities created the need for detailed collaboration between the council and the national agencies analysis of the situation Therefore, information collation and appears to have improved considerably. The monthly city analysis has now become a felt need. To that extent, SCP development meetings at Kotte, Ratnapura and several other local registered its first victory in changing the mindset of the authorities are well attended by the stakeholders. municipal administrators and planners The attitude of the senior management of the participating SCP helped create the facilities for Environmental Management municipalities towards the involvement of stakeholders in Information System (EMIS) in 2003 set up at SLILG under the municipal management is changing. Understandably, the process auspicious of the UNDP in 2003 with an improved training is slow. Though there are no legislative measures yet to package for Municipal Councils. In some municipalities it has consolidate the working group mechanism, senior managers at already made a discernible impact. The European Union funded local and central level have become more amenable now to “Management Information for Local Environment in Sri Lanka” involving community and stakeholders as partners in the EPM (MILES) project furthered the local government interest and process. potential to employ information management systems. It has resulted in better dissemination of information and therefore, an Integration of lessons from the demonstrated strategies in city increased awareness among municipalities about the necessity of development plans and budgets reflects the new commitment of having a profound data base. urban administrations to upscale the experiences. In many instances the municipal councils have integrated the proven SCP demonstrations were instrumental in convincing many innovations developed in their annual plans and municipal doubting Municipal Councils of the efficacy and usefulness of budgets. Integration of new strategies in city development plan social mobilization and community action planning as vital and budget reflects the interest of the administration to up scale ingredients to address urban issues. The Working Group system the experience. In several cases the municipal councils have and participatory planning processes were the contributing factor. integrated SWM strategic approaches developed under SCP in Municipal councils ventured out to address the urban issues the city development plan and municipal budget. through social mobilization and community action planning as a The Public Health Department of Colombo City has integrated vital strategy option. The planning was done more at community the Green Star Home project in the department’s policy and level meetings than at the city hall. Occasionally, the strategies budget, replacing previous health programmes. that the groups initially opted for were not technically sound. In such cases, the related CMC departments guided them. In DMMC and Kotte the SWM Working Groups have been integrated into the municipal council’s solid waste management SCP demonstrations were instrumental in convincing many strategy within the National Solid Was te Management Strategy doubting Municipal Councils of the efficacy and usefulness of framework. social mobilization and community action planning as vital ingredients to address urban issues. The Working Group system Badowita recycling (DMMC) center experience has been and participatory planning processes were the contributing factor. replicated in other locations such as Kollonnawa, Kotte and CMC was able to develop Green Star Home project and the Ratnapura with council funds. The project costs are included in Urban Air quality Management Projects addressing health, the Council budgets. The home composting project and new environment and social issues because it adopted the cross recycling center projects too, have been developed under the 73 Havana 2005 - Documentation of experience SCP/LA21

SWM Working Group mechanism in Kotte are financed through city with local authority funds. Not only that it was up scaled, but the municipal budget. also its scope and the content too were expanded making it a settlement based project as against a home based project and was The innovations at Beddagana, Kotte and Badowita at DMMC later re named to read as “Green Settlement Programme”. were aimed at building linkages with local level institutions that could takeover the onerous responsibility of educating large low After 3 years the Project continues with annual public awareness income settlements to adopt new alternative methods. Again campaigns. While the sticker scheme has not shown Ratnapura and Kandy Municipal council and several other cities sustainability having lost the initial penchant that the residents have followed their example and the replication has begun. had for it, the Public Health Department is continuing with the public education and awareness work throughout the year using In this context, the demonstration projects on solid waste the departmental cadres of the Public Health Education Unit and management initiated by Kotte and Dehiwala- Mount Lavinia the Curative Health Department. This year the project continues municipalities have proved that there are alternate methods to with schools as centre points. The students check all premises mere disposal, which has resulted in the development of a located within the radius of 50 meters for cleanliness. municipal solid waste management strategy in Kotte and DMMC. EPM process has made an important impact in this respect. There As a sequel to the GSHP the Healthy School Campaign funded are positive signs that this will be emulated by the other by WHO was initiated in January 2003. municipal councils in the near future. The Air Quality Management project made a deep impact on the The issue-specific Working Group mechanism has made a environmental and health concerns. A mass awareness campaign tremendous impact on improving the co-ordination between the under the slogan “Smoke Kills” was organised jointly with Air departments. Since solid waste and sanitation were found to be MAC, Rotary club, Ministry of Transport, Ministry of priority problems in most of the local authorities coordination Environment & natural resources and the CAI working group of and interaction between the Public Health and Engineering SCP to make general public aware of the adverse impact of the Departments are generally observed to be good as they are jointly vehicular emission on health. responsible for SWM and sanitation. UGSP training The Heads of Department Working Group was an instrument that Increased Demand for Training SCP introduced at the city level not only to review its Officially MDTUs of the Provincial Councils are responsible to implementation but also review the progress of all other major provide training facilities for the local authorities. 4% of the projects and programmes of the city. This arrangement has annual budget of the local authorities has been allocated for this helped galvanize the interaction between projects and purpose. MDTUs are responsible for developing a training action programmes and make them interdependent as part of an plan for LGs depending on their needs and train the staff. But in integrated city development strategy. In a few replication cities, practice this is being done only in the Central Province where a the management has given Working Groups a considerable separate Local Government Training Unit had been set up. autonomy in deciding on new strategies through demonstration projects. The City Development Committee in Kotte has proved In this context , the capacity building training programme initiated to be more effective in interdepartmental co-ordination. by SCP has created a tremendous demand for training in the local authorities. EMIS/GIS unit set up at SLILG under the MILES The SCP lessons in the capital city of Kotte inspired the Council project further strengthened the UGSP training programme. to become the first ever local authority in Sri Lanka to develop a Several municipal councils like Kotte and Kandy were given the citywide integrated SWM Strategy with a long term vision under opportunity to follow the GIS training which has produced the Basic Urban Services (BUS) program sponsored by UN- commendable results. Habitat and IRC International Water and Sanitation Centre, Delft, The Netherlands. The New UGSP training program is a demand driven project. The local authorities are free to use their discretion and decide The demonstration projects have helped to augment the the type of training they need for their staff. The response is deficiencies by providing, through the working groups, practical encouraging and the LAs are making the best use of it. The examples and solutions for improved municipal solid waste demand is so great that the UGSP was compelled to introduce the management. This resulted in a solid waste management strategy system of Training of Trainers (TOTS) for capacity building in Kotte and DMMC being replicated in several other partners to meet the demand and strengthen the repertoire of municipalities. training resource personnel.

Moreover, large scale private sector manufacturers have now Critical Look At traditional Approaches entered the market to produce compost bins in mass scale. Even though the EPM process is not a daily routine in the SCP’s promotion of home-based composting has attracted new Municipal Councils yet, the SCP has laid the foundation for the partners from the private sector. Many leading private Municipal Councils to critically look at their organizational manufacturers have now entered the market with quality compost deficiencies and the validity of their traditional approaches to bins. The Project has necessarily created a new Municipal urban issues. This is amply manifested through the frequent propensity to promote composting. requests made by the councils for training in Performance Improvement, Public Relations, EMIS and Strategic Planning. In Colombo the integrated approach of addressing multi faceted UGSP training program 2004-2005 will help local authorities to issues has been a path finder for institutional coordination understand the value of EPM process better and support its implementation. The Green star homes project (GSHP) of CMC became an attractive initiative and soon it was up scaled covering the entire 74 Havana 2005 - Documentation of experience SCP/LA21

Change of Attitude The attitude of the department heads and senior management Support of the National level training Institutes towards the involvement of stakeholders in municipal Involvement of two national level agencies, i.e. the Sri Lanka management is changing. But understandably, the process is Institute of Local Governance (SLILG) and Centre for Urban and slow. Though there are no legislative measures to consolidate Regional Planning (CURP) in the training work has helped the working group mechanism, senior managers at local and implementing the UGSP Capacity Building Strategy. central level are convinced to a considerable extent about the Involvement of two national level organizations, i.e. the Sri importance of involving community and stakeholders in the EPM Lanka Institute of Local Governance (SLILG) and Centre for process. For example, the Colombo MC is experimenting with Urban and Regional Planning (CURP) to assist in the training participatory budgeting, benchmarking and E-governance. Their work facilitated the implementation of SCP Capacity Building Partnership Promotion Programme is an important mechanism to plan. The former is a state-sponsored organization with a promote attitudinal change towards participatory planning, which mandate for local government capacity building with direct could serve as an example for replication cities. access to local authorities while the latter is the training arm of a professional non -governmental body -Institute of Town and Factors that facilitated and/or obstructed the SCP Activities Country Planners of Sri Lanka. These two agencies were assigned with the task of implementing the Capacity Facilitating Factors Development Action Plan. While SLILG focused on building technical capabilities including the training in EMIS the CURP Background specialized in training on social mobilization and participatory There are many reasons for these early successes. One of the methodologies. main reasons is that SCP was introduced at an opportune time when the local authorities were under Supreme Court direction to Urban Governance Facilitation Committee (UGFC) search for more effective solid waste management strategies. The The Urban Governance Facilitation Committee (UGFC) has been Interest shown by the Supreme Court in urban environment established under Phase II of the programme at the Ministry of issues was also a blessing in disguise. It has created the necessary H&PI and is chaired by the Ministry Secretary who is also the leveling of field to sow the seeds of change. The creation of a National Project Director. The Secretary of MHAPC&LG is also Solid Waste Management Authority and the consequent co-chairman of UGFC and actively participates in UGFC preparation of a National SWM Strategy too have helped attract meetings. . This has resulted in a better flow of information and municipal interest to attract innovations. Secondly, it was better collaboration. One good example of improved introduced at a time when a new cadre of provincial municipal collaboration between ministries and the decision to assign a leaders was being elected to guide local development. They were senior Director to assist the SCP implementation undertaking to brimming with enthusiasm to initiate new things. There were visit the local authorities allotted to him by the implementing other factors too. ministry.

State Support The role of the UGFC is to promote and support good urban State Commitment to the program during the phase II was a great governance functions at Provincial and Municipal levels through strength. The Ministry of Housing and plantations Infrastructure dissemination and promotion of good urban management recognizing that ‘learning by doing approach’ of SCP falls in line practices. It does not only review SCP progress, but co-ordinates with its core role of urban support started playing a leading role support from all major national projects at the Municipal level. It in SCP implementation. Concurrently the Ministry of Home also monitor, document and synthesize policy/legal implications. Affair, Provincial Councils and Local Governments UGFC meets quarterly to review the progress of each partner (MHAPC&LG) too, increased its support to the program. organization and to clear national level constraints. Cadre needs and budgets are regularly reviewed at the UGFC meetings. The Early in its implementation, the Ministry of Urban Development UGFC has proven to be quite effective in terms of political and Water Supply recognized that the ‘learning by doing support to the SCP and promoting good urban governance approach’ of SCP falls well in line with the Ministry’s own principles. Through the UGFC the cabinet paper for vision and core role as an urban governance support agency. The institutionalizing good urban governance in local government has Ministry has assigned a Senior Director and several technical been submitted for approval of the Cabinet. In addition the officers to oversee the SCP implementation on full time basis. Ministry of Policy Development & Implementation and Ministry Similarly, the Ministry of Western Regional Development, too of Housing & Plantation Infrastructure (MHPI) developed an assigned a Senior Director on part time basis to coordinate SCP Urban Policy Framework for better coordination between implementation. The team was made responsible for guiding and ministries, departments and agencies in urban sector. The coordinating the programme. It works very closely with the National Capacity Building Strategy is being finalized now and Ministry of Provincial Councils and Local Government has already been discussed with all stakeholders in the UGFC. (MPC&LG). This cooperation is one of major strengths facilitating the SCP process. Municipal Urban Governance Units (UGU) In the 3 Municipalities Urban Governance Units (UGUs) have Involvement of the ministry during the early years was limited. been set up, but at this moment it is only operational in Colombo There was a lack of clarity about the role of the ministry. The and Kotte. The Urban Governance Unit at the DMMC is still not general attitude of the ministry was based on the small budget operational. Also Gampaha, Kandy, Negombo and Kollonawa that the SCP programme was associated with. However, after have set up UGUs now. Office space, e-mail/internet and convincing the objectives of the programme and its inherent computer facilities have been provided for all these nature of being a process aimed at effecting far reaching and Municipalities. However, except for Colombo no special staff sustainable impact on local government capacity building and personnel have been assigned to manage the UG unit. Good governance the importance of the SCP process was convinced. 75 Havana 2005 - Documentation of experience SCP/LA21

Project Support Team (PST) authorities. However the training is impeded by their inability to In the second half of 2003, the PST employed two additional release staff for longer training periods due to inadequate staff project officers, and is now operating with a total of 3 project numbers. Hence the training courses had to be sized down to officers, who have been allocated a number of SCP cities each. short courses. The fact that local authorities have always been These project officers visit the SCP cities assigned to them and understaffed due to fiscal constraints, have prevented them from follow up the various activities such as the Working Group finding suitable substitutes to help release the permanent staff for meetings, demonstration projects, training programmes etc. longer periods of training. Their presence gives strength and confidence to the MC staff. The PST gets first hand information of what is happening. They Depletion of Initial Support given by the Western Provincial also co-ordinate the activities of the NGO partners and the Council training institutes responsible for the implementation of the SCP The programme initially received great support from the programme. Provincial Council in the first 2 years. This initial interest in and support suffered a set back when high ranking GIS/EMIS Training people who supported the programme in its initial stages retired Although important as a first step in the SCP process, a few and were replaced by people. Commissioner Local Government factors constrained optimal use of GIS/EMIS training facility. (CLG) was transferred to the Ministry of Home Affairs The staff of the three municipalities was given training in 2001, Provincial Councils and Local Government, from where he still but due to in sufficient facilities (except for Colombo) and lack of supports the SCP programme. Since then the Urban Governance resources they were unable to put into practice the knowledge Unit at the Western Provincial Council has remained inactive. gained through training. Also the training itself was too short for This proves that the SCP/EPM process needs to be effective application. Limited access to GIS/EMIS facilities at institutionalized in the local government system to ensure its own municipal councils is another drawback. This was because the sustainability and prevent it from being susceptible and senior official trained by SCP, was apparently not willing to subjective to whims and fancies of individuals. This is important freely share the facility and information from other municipal as WPC’s role in SCP is to facilitate and support municipalities, departments. urban councils and their local partners to adopt good urban governance principles and practices in the development process. Even though the GIS/EMIS facility is still in its initial process, It is responsible for the province-wide replication and up scaling the awareness of the need for good information and expertise is of demonstration projects. However, the PST has taken over this there. In addition the introduction of computers, email and role. Internet facilities by SCP has been an important step in Ineffective improving information technology and communication facilities. Ineffective Linkages between the LAS and the Ministries of Factors obstructing the implementation WPC. The Municipal Councils have no effective linkages with the Weak institutional capacity of Local Authorities Ministries of the WPC. It has been difficult for them to channel A main draw back to the implementation of this program was the all communications to higher authorities through the WPC. weak institutional strength of the Local authorities with limited Although the WPC has a training arm, which could be very staff who lacked professional skills. The moratorium on useful for training of local government staff, there has been not recruitment imposed by the central government in 2002 further much support for the SCP programme from the WPC. Although aggravated the problem as it prevented the filling of vacancies approval had been granted to provide WPC funds for local created by transfers, resignation and retirement of staff. government training in 2002 and 2003, in practice it has been very difficult to obtain necessary funds due to bureaucratic Weak institutional capacity is a persistent drawback to good constraints. governance of the local authorities. In most cities the local government staff lacks professional orientation to new and Documentation and Dissemination of SCP Experiences emerging urban issues and the skills to tackle them. It is Then the documentation of demo-projects and their dissemination commendable that despite these drawbacks the SCP programme at the SCCP National Replication Workshop (October 2001), the has been able to register such an impressive array of Provincial Replication Workshop (December 2001), the National achievements in such a short period on such a shoestring budget. Mayors Forum (July 2002) and the National Seminar on Good We are hopeful that the new IHS capacity building strategy will Urban Governance (July 2002) are important aspects in national- help overcome this problem level “functions. Furthermore, dissemination takes place through leaflets on Good Urban Governance, as well as the new Sri Lanka Shortage of Staff SCP toolkit promoting Good Urban Governance. In the event of a transfer of the municipal commissioner or the deputy commissioner who normally spearheads the program, At the end of Phase I in 2001, the initial experience in the three there were instances where the program had temporary suffered core cities was documented and shared with mayors and senior due to the ignorance of the successor about the SCP process. officials of other urban local authorities at a National Replication These Problems were overcome through constant monitoring and Workshop. The documentation was helpful in getting the orientation programs initiated by the partner agencies facilitating the program implementation. The appointment of project officers Documentation and Dissemination of SCP by the partner agencies at local level has contributed immensely in closely monitoring the work and assists the Local authorities. Experiences

Constraints to training programs Western Provincial Council to replicate the SCP process in Human resource development training is an essential pre- several other cities in the Province during 2002-3. Subsequently, requisite for the promotion of the EPM process in local in 2004, with UN-Habitat assistance, the Institute for Housing & 76 Havana 2005 - Documentation of experience SCP/LA21

Urban Development Studies (IHS) of the Netherlands prepared a related sub sectors, which will eliminate inconsistencies in sub comprehensive voluminous documentation on the experience of sector policies and activities within the frame work of common the first two Phases of SCP. These documents together helped goals of the urban sector. the Government understand the potential of the programme in enhancing the quality of municipal management on a shoestring World Bank mission that undertook a review of Urban Sector budget. The experience in these cities were documented and later Policy recommended early preparation of a coherent National shared with a large number of mayors and senior officials of Urban Sector Policy framework and Operational Strategy for other urban local authorities at a National Replication Workshop urban upgrading and institutional strengthening. The 14 member held toward the tail end of Phase I. This was complemented by a high level task force appointed by the government of Sri Lanka similar workshop organized a month later in December 2001 by for the formulation of the framework included the SCP National the Western Provincial Council which resulted in a path-breaking Technical Advisor (NTA) and the UN-Habitat Program Advisor. decision to up scale the application of SCP process in the Western Province by adding more urban local authority areas The Ministry of Policy Development & Implementation with within the province during 2002-3 Ministry of Housing & Plantation Infrastructure (MHPI) developed the Urban Sector Policy Framework. The Government The implementation of the SCP programme in the 3 Core- City used SCP experts in developing the Urban Sector Policy area MCs i.e. Colombo , Kotte and Dehiwala Mount Lavinia and Framework. It is one successful example in which SCP played a its experiences have now been comprehensively documented by catalyst role in its contribution to the development of the Urban the Institute for Housing & Urban Development Studies (HIS) Sector Policy Framework. The Netherlands supported by the UN –Habitat. The document series is available in the following titles: The framework was developed through working groups in the following sectors and incorporating good governance and § “Documentation of lessons learnt in the Sustainable Sri stakeholder participation as their approach: Lanka Cities Programme - capacity Building on a Shoestring” § Urban economy, urban planning & stakeholder consultation; § “Documentation of lessons learnt in the Sustainable Sri § Urban governance & Local government institutional Lanka Cities Programme - capacity Building on a strengthening; Shoestring” with Annexes § Urban Land; § Capacity Building review of the Sustainable Sri Lanka § Urban Housing, Upgrading & Service Delivery; Cities Programme § Urban Environment; § Proposed Capacity Building Agenda 2004-2005 § Urban Finance § Annexes to the Report Capacity Building review under SSLCP & capacity Building Agenda 2004-2005- The USPF provides the necessary policy framework in which § Sustainable Sri Lanka Cities Programme-Phases I & II Self City Development Plans will have to be developed and therefore Evaluation Report April 2004 will support municipalities to implement their new roles and § Sustainable cities Program- SCP Sri Lanka – Demonstration responsibilities. SCP through its promotion of Good Governance Projects has been the catalyst for this policy framework and will have a major responsibility in supporting implementation of the USPF in Mainstreaming Innovation at National Level Local Authorities, through the UGFC. The USPF is currently in its final stage of completion and approval. Please refer annex 2 SCP has had an impressive share of influence on national for det ails. planning strategies. Its demonstrations were a useful anvil to sharpen the national strategies. It was instrumental in setting up Concept paper on capacity Building for local Government four important cross-cutting national facilities. They are (i): the Urban Sector Policy Framework, (ii) the National Strategy on SCP’s capacity building initiative has helped the two Ministries Local Government Capacity building the Cabinet paper on understand the importance of developing a full-pledged institutionalizing the Principles of Good Governance in Local programme of local government capacity building. Hence, the Authorities, (iii) the National Strategy on Solid Waste Ministries have now formulated a Local Government Capacity Management and (iv) In addition, the SCP experiment in AQM Building Strategy which will soon come into effect. SCP has evolved into a national exercise with a National Action Plan successfully engineered the development of the draft National 2007 for AQM formulated by the Central government. strategy for Local Government Capacity Building that is supposed to be placed before the Cabinet of Ministers soon for National Urban Sector Policy Framework (USPF) approval.

Background The SCP, under the direction of the UGFC, established a “core The absence of a National Urban policy Framework has Capacity Building Working Group” in 2002, with the view to contributed to the lack of coordination between the Ministries, bringing together all available Capacity Building inputs, tools Departments and agencies functioning in the urban sector. and training materials from various projects and programmes in Formulation of an urban Policy framework to provide for more the urban sector. In March 2003 SCP partner agency MaRGG, integrated, sustainable and equitable urban development capable volunteered to prepare a concept paper on capacity building for of addressing the economic and social needs of the nation was an local authorities in response to a request made by the Ministry of urgent need. It is a key policy priority to improving urban Housing and Plantation Infrastructure. governance while encouraging people’s participation and civic engagements. The main objective of this exercise was to The paper sought to offer a comprehensive scope, strategy and formulate an urban sector policy framework which embraces all approach to capacity building at Local Government level enabling the local authorities to improve the quality of 77 Havana 2005 - Documentation of experience SCP/LA21 administration and service delivery under the decentralized § Strategic Administration enforcement and financial government structure. The concept paper has been prepared management: Office management systems, administrative taking into account the changing role of the local authorities and mechanisms, role and responsibility of main officials, result the major deficiencies in the local government of Sri Lanka. oriented management and performance review, recording and reporting meetings, mechanism for stakeholder Changing Role of the Local Authorities participation and investment, reliable public complaints The concept paper has placed emphasis on the changing role of management, institutional discipline, appropriate use of the Local authorities they are no more the sole provider of information technology: GIS/EMIS systems. services. Private sector and non governmental organizations are beginning to engage in poverty reduction and in the delivery of The concept paper has also stressed that the municipalities basic urban services. The emerging new trends have modified the develop training strategies and set up a Training unit in their own role of authorities from being the traditional provider to be a organizations and plan training programmes in keeping with the facilitator of private and civil society actions in delivery of urban actual training needs. services and in social development. The local administrations are becoming more and more visible and challenged by citizens and The report emp hasizes the important role which the Provincial civil society vigilance groups more than ever before. The local Councils Management Development Training Units can and authorities must therefore, consider capacity building a one of should play. The strategy proposes the setting up of a National their prime responsibilities. The new local government Coordination Committee on Local Government Capacity empowerment processes ask not only for technical expertise but Building and also the preparation of an Annual Implementation also socio-political knowledge and skills in human dynamics and Plan jointly by the major training institutions relations Cabinet paper on Institutionalisation of Good Governance Major Deficiencies in Local Government in Local Authorities The concept paper has been prepared after a careful assessment The principle concepts of good urban governance has been of the key deficiencies in local authorities to which a acknowledged and accepted by the government of Sri Lanka and comprehensive capacity building strategy should respond to as the political hierarchy. The Ministry of Provincial Councils and well as the new role that they have to play in the changing local Government will be the executing agency through which conditions. These deficiencies are elaborated in detail in the the concept would be introduced into the local authorities. concept paper (page 8 – 10) and can be summarized as follows. However, although there is a wider acceptance of the concept of good governance, due to the weak institutional structure and § Low productivity & impact systems existing in the local authorities, implementation of the § Insensitivity to public needs programme has not been effective. § Unresponsive structures, processes and procedures § Weak rule of law The current local government systems in Sri Lanka do not permit § Inadequate resources stakeholder involvement at the municipal level. There is no clear § Weak Human Resources mechanism for civil society stakeholders to participate in local § Lack of orientation to development authority decision-making processes. Neither do the municipal ordinances and allied legislation promote municipal-private The most of the deficiencies outlined above corresponds with the sector partnerships. There is also exists various restrictions to deficiencies identified at SWOT analysis’ conducted by SCP in donor assisted projects and therefore does not allow the the second half of 2002 and during the workshop (March - 2004) municipalities to gain the maximum output from these projects. on the institutional constraints for implementing the SCP training There is also no clear mechanism for stakeholders to be active programme. The concept paper has discussed the capacity participants in local authority decision making. development needs in the local government under five critical headings outlined below. SCP was involved in formulating a Cabinet Memorandum to § Decentralization & Devolution This includes Institutionalize the Principles of Good Governance in Local Constitutional provisions for devolution, statutory Authorities. The Ministry of Provincial Councils & Local limitations, methods and functions of decentralization, local Government (MPCL&LG has already submitted a Cabinet government role and responsibility, ways and means of memorandum for institutionalization of Good governance. It aims carrying out the role functions. at institutionalizing the identification and participation of § Good Governance: Difference between government and stakeholders in addressing key urban issues through participatory governance, major attributes of governance, indicators of working group system. governance, methods to measure the level of governance( surveys ,report cards etc ) The ministry of Provincial councils and local government is § Development Planning & Management: Envisioning , currently updating the Municipal Council BY Laws to structure planning, area development planning systems and incorporate the practice of good urban governance. methods, community organization , Until such time the bye laws are adopted the ministry has devised § mobilization and engagement, mechanisms for stakeholder a plan of action for all local authorities, and in particular the participation , facilitation of economic investments and municipalities to strengthen and institutionalize good urban growth, municipal bonds management governance through the following principles. This will be § Service Delivery Planing and Management: Ward level implemented in close collaboration with the respective provincial planning systems , convergence of basic services, Councils. community action planning , monitoring and management, local area resource mobilization through local government § Identification and participation of stakeholders finance management system, introducing technical and § Identifying key issues of management and environment managerial innovations, public-private partnership building. § Coordination with national agencies 78 Havana 2005 - Documentation of experience SCP/LA21

§ Transparency and accountability new policy and national level decision-making and legislation the § Participatory budgeting Air Resource Management Centre (Air MAC) of the Ministry of § Gender Equity Environment & National Resource undertook to get the national level support for the implementation. As a result the air quality The Ministry of Home Affairs, Provincial Councils and Local action plan is being implemented through Air MAC at national Government (MHAPC&LG) in collaboration with the SC P level and through CAI at local level. The Air MAC under the project support team, formulated a cabinet paper for approval by auspicious of the Ministry of Environment & National Resources the Cabinet of Ministers set up an agenda of action for municipal have finalised the national action plan 2007 for AQM. and urban councils to take steps to institutionalize good governance principles. This cabinet paper therefore is an Non Revenue water immediate action plan to strengthen the process of public Following the success of the Non-revenue water reduction project participation and good governance in municipal and urban initiated by the special project titled “Randiya Non- Revenue councils until the MHAPC&LG has updated the legislation Water Project”, Randiya means “valuable or golden water” to process of bye laws and ordinances, incorporating the practice of provide individual water connections to low income settlements good governance. Recommendations were accepted by Cabinet in urban areas. It is now being replicated nationally. and are now being developed into guidelines and regulations, for enactment. Please see the annex for the full text of the cabinet Experience in Setting up Cross cutting memorandum. National Support facility to assist Cities in National Strategy for Solid Waste Management (NSSWM) Capacity Building. SCP expertise provided the technical and conceptual directions for the preparation of The National Strategy for Solid Waste SCP has been successful in instilling a new “Work Culture” in Management formulated by the Ministry of Environment & the local authorities through EPM promoting private public sector Natural Resources in 2002. The work done by SCP in the field of partnerships and cooperation. It has been witnessed in the Green solid waste management has strongly influenced the government Star Home project and the Air Quality Management projects strategy on solid waste management. It is interesting to note that carried out by the CMC where the council was able to rally the the SCP approach to solid waste problem i.e. waste avoidance, cross sectoral support effectively , which included all relevant reduction, re-use, re-cycling and thereafter disposal of the Government Agencies, private sector organizations, NGO residual waste in an environmentally sound manner is enshrined partners, schools ,CBOs, community and other stakeholders. It in the National Strategy was also able to impose law and order strictly for environmental improvement thereby proving that the mobilization of cross The NSSWM was developed by the Central Environmental sectoral support is possible when you are committed to address Authority (CEA) in 1999 and was finalized during a 3-day the urban issues with the consensus of all parties concerned. workshop in 2002 with stakeholder participation. The CEA The UGSP training is carried out with the active participation of therefore organized a second workshop in July 2003 for all the local training institutes and the local resource personnel. SCP stakeholders and with participation of SCP as a response to the has been able to successfully replicate the project in 15 other lack of implementation of the strategy, as well as the growing cities during the last 3 years due to ready support it has got from concern of SWM, which has lead to civil society taking action the various quarters of the Sri Lankan society. against municipalities for improper disposal of solid waste. The workshop was meant to achieve commitment from all stakeholders at local, provincial and national level to implement Use of Innovations explained above by the Academic Sector the strategy and Municipalities were ordered to submit their own to Improve Training Curricula SWM strategy. The CEA, being fully aware of the work SCP had done in the field of solid waste management at municipal level, Use of SCP Innovations to Improve Training Curricula invited the SCP to take the lead in supporting the Municipalities in implementing the SWM strategy.It is relevant to quote the SCP demonstrations are attracting a fair level of academic observations made in the National strategy for Solid waste interest. A national level training institution –SLLG - has already management (page11) stressing the need for a well designed used the experience and revised its training curricula into 10 strategy for solid waste management. interactive modules based on lessons taken from the ground level SCP activities. The demo sites continue to serve as living Quote “Recent analysis of data pertaining to solid waste reveals laboratories proving the effectiveness of the EPM process. SCP that the real problem associated with solid waste at present lies to experiences have been extensively documented and therefore, the a great extent with the present haphazard disposal practices more trainers and the academic sector have easy access to use them as than with the rate of generation. However, rate of generation of reference sources. solid waste is also increasing with the increase of population, technological development and the change of life styles of the The academic sector or in other words the training resource people. Therefore policies should be formulated to encourage personnel entrusted with the tasks of developing training modules solid waste management practices through waste were not familiar with the EPM process at the initial stages. They avoidance/reduction, reuse and recycling, and thereafter final were briefed about the process but it was not adequate for them to disposal in an environmental sound manner.” Unquote Please grasps this new concept in its correct perspective. The refer annex 2 for details and the framework of NSSWM. theoretical knowledge exchanged and imparted was not enough to produce far reaching results. However, when the demo National Air Quality Action plan 2007 projects started gaining ground and showing positive results they Air Quality Management (AQM) has become a recognized issue. were directed to visit the sites and see the effects by themselves It has now reached a point when the government agencies have and interact with the community members and the other taken over the management of AQM. As AQM strategies involve stakeholders who are directly involved in the implementation for 79 Havana 2005 - Documentation of experience SCP/LA21 first hand information. In this regard the demo sites serve as Environmental Issues living laboratories proving the effectiveness of the EPM process. MILES Program – “The European Union funded “Management Now of course, the experiences have been extensively Information for local Environment in Sri Lanka” is in operation. documented, the resource persons and the academic sector have easy access to use them as source of reference to improve Millennium Development Goals training curricular. The government of Sri Lanka has pledged its support to the millennium declaration at the UN – habitat millennium summit Mainstreaming Innovations at Global Level and is committed to realize the set goals before 2015. SCP will implement the program at local level to initiate programmes to Sri Lankan delegates to numerous regional and international realize the objectives of the programme. As only national level meetings have regularly presented the SCP’s local experience at statistics are available SCP has already delegated the these parleys generating interest and discussion. The experience responsibility to local NGO partners to develop a data base on in expanding the SCP focus and scope to encompass issues other millennium issues on local level. than environment such as governance and poverty has received wide acclaim and influenced strategy revisions and reforms in Poverty Reduction other countries though we have no documented evidence. In the early years the SCP focus was mainly on the Delegates from other countries often acknowledged the environmental Issues. As they were the pressing problems that usefulness of the experience of SCP innovations leading to and the cities faced at the time of introducing the SCP it is natural for influencing policy and strategy development at the national level. local authorities to give priority for such issues and apply the newly introduced EPM process to solve them. Poverty reduction On the other hand, SCP had been able to mainstream some of the was only an eventuality and not a planned action during this innovations at the global level such as the Agenda 21 and MDGs. period. Some of the cities during the phase III of the program As mentioned earlier, the SCP demonstrations in implementing have undertaken to address the poverty issues and formulate pro the Agenda 21’s emphases on extending water supply to the poor poor plans for poverty reduction. The Millennium Development in a sustainable manner has now received national level Goals (MDGs) have recognized the eradication of extreme recognition and acceptance. The National Water Supply & income poverty as the number one goal. Proportion of population Drainage Board has incorporated the lessons of the SCP below national poverty line is 22.2 as at 2004.The Millennium experiences into their Water Supply Delivery strategy. Similarly, Development Goals (MDGs) have set the target to bring this in a recent move, SCP has joined the national campaign to down to 13 by 2015 and the SCP cities will be involved in the streamline the Millennium Development Goals (MDGs) by process through EPM. localizing the promotion and monitoring of MDGs through the local government authorities. Documentation of Experiences The Institute for Housing and Urban development studies (IHS), Urban Issues The Netherlands, supported by UN-habitat has developed a Basic Urban services (BUS) Initiative of UN –habitat is now research framework to evaluate the SCP program in Sri Lanka being implemented in two local authorities i.e. Kotte and Wattala and has documented it. UC. The project is supported through specialized technical inputs from the IRC International Water & sanitation center in the Other Netherlands. In addition SCP plays a key role in implementing several other projects such as The Lunawa lake rehabilitation project and Post Tsunami rehabilitation program

80 Havana 2005 - Documentation of experience SCP/LA21

TANZANIA Implementation Of The Sustainable Cities Programme In Tanzania

Martin Kitilla, National Programme Coordinator James Sauramba,Technical Adviser

1.0 Background to the SCP in Tanzania 2.1 Contribution To National Urban Development Policies & Processes Sustainable Cities Programme was launched in Tanzania under the auspices of Sustainable Dar es Salaam Project (SDP) in the In the case of Tanzania, Dar es Salaam city’s entry objective was Dar es Salaam City Council in 1992 which engaged its to apply the EPM process to prepare the city's Strategic Urban stakeholders in managing the growth and development of the city Development Plan (SUDP) that would "replace" the city's Master through the Environmental Planning and Management (EPM) Plan whose planning period was expiring in 1999. Subsequently process. every effort and focus was on the preparation of such a plan. This approach revolutionised urban planning from the traditional Prioritized issues tackled under the SDP were Solid Waste, spatial Master Plans to the more integrated SUDP’s which take Upgrading of Unserviced areas and Servicing City Expansion, cognisance of the social, economic and spatial land-use Open spaces, Recreational areas, Green Belts and Urban considerations. Agriculture and City Economy and Integration of Petty Trading. Others were Air Quality and Urban Transportation, Surface In order to strengthen the replication and the implementation of Water and Liquid waste, Coastal Resources and Coordinating the EPM process, the government through the Ministry of Lands City Center renewal. Through the EPM process, SDP became the and Human Settlement Development (MLHSD) is utilising the best project among the Phase I worldwide demonstration cities capacity of the staff previously working with SDP and others and was nominated the best UNDP Project in Tanzania in 1994. who have been trained by UASU to replicate the approach in medium and small towns in Tanzania. The MLHSD established Some of the successfully implemented action plans developed its Strategic Urban Development Section (SUDS) which received around the above issues include Privatisation of solid waste technical support and capacity building from UASU. Urban management, parking facilities and pit emptying services. Others centres supported so far through the SUDS include Shinyanga were the establishment of the central up-country bus terminal at (municipality), Songea and Kibaha (Regional Townships), Ubungo, Initiation of a pilot Non Motorised Transport (NMT) Karatu, Lushoto, Vwawa, Masasi and Makambako (district project, Improvement of some open spaces, recreational areas and centres) and Tunduma (small upcoming centre). The Ministry has city horticultural gardens, Privatisation of public toilets, also prepared and issued guidelines pertaining to the preparation Changing some of the streets into one-way street system, of SUDP’s through the EPM process to assist these and any other Contracting of cleansing of city roads/streets, Construction of centres requiring technical assistance. small scale traders markets, Provision of infrastructure and services in Hanna Nassif, Kijitonyama and Tabata through The successful piloting of the SDP culminated in the initiation of community participation, Reorganisation of petty trading the replication of the Sustainable Cities Programme’s EPM activities along the streets through the use of agreed “structures” approach to ten other cities and municipalities in mainland for displaying/storing various goods/items for sale to effect space Tanzania and Zanzibar in 1997 namely: Arusha, Dodoma, Iringa, sharing. Mbeya, Morogoro, Moshi, Mwanza, Tabora, Tanga and Zanzibar. This was followed in 1998 with the establishment of The successful implementation of these projects attracted interest the Urban Authorities Support Unit (UASU) under the from other stakeholders such as UNDP, UN-habitat, ILO, Presidents’ Office, Regional Administration and Local DANIDA, IGP etc. in leveraging resources to support the Government (PORALG). UASU’s mandate is to coordinate the management, capacity building and implementation of the action SCP in Tanzania and to provide technical support to the urban plans including capital investment projects. local authorities in replicating the EPM process by drawing on existing local, national and international resources and experiences. 2.0 Innovation Under the SCP/LA 21 Initiatives Also as part of the replication process, each local authority created the new role of a Sustainable Cities Programme Innovation is a result of distortion or imbalance in the status quo Coordinator (PC) on their staff establishments. These which compels people to think and act in certain ways either to coordinators are responsible for overseeing the application of the restore the balance or improve the situation. The birth of the EPM approach. Such SCP Municipal Programmes are located in global SCP programme and the introduction of the EPM the Municipal Directors’ (MD) office for ease of coordination approach in the various demonstration cities of the world led to with the Heads of Departments. The PC’s report their activities to different innovations and hence entry objectives. the MD’s and to the standing committees of the Councils.

The application of the EPM process in Tanzania has led to significant improvement in urban governance through its 81 Havana 2005 - Documentation of experience SCP/LA21 participatory planning approach where citizens now participate in In addition, lessons learnt are captured during SCP national urban management. Participatory budgeting, resources coordination workshops and seminars for all participating local mobilization, gender awareness as well as poverty eradication authorities. The workshops are organized by UASU with support have gradually been rooted in urban planning and management from Danida. activities in a more integrated manner than ever before. This outlook is making the urban centres more business oriented, 2.3 Constraints to Implementation of SCP/LA 21 Initiatives hence requiring multi-disciplinary urban managers. Capacity Moreover, the approach has significantly contributed towards the implementation of poverty reduction and environmental policies One major constraint experienced to date is to mobilize and in that more poor people are engaged in income generating sustainably build capacity, empower as well as motivate activities through taking part in implementing popularly stakeholders to successfully move through the various steps of developed action plans and that the communities are provided the EPM process such as issue identification and prioritization, with more relatively cost effective services such as properly strategy formulation, action planning and implementation and managed solid and liquid waste, roads, water supply, storm water subsequently institutionalization. drainage, etc. The utilization of Public Private Partnerships in urban management received a huge boost . The huge success of the EPM approach also led to exertion of immense pressure on the generally already over-stretched Apart from the guidelines for SUDP developed by MLHSD, the capacities of UASU, MLHSD and the local authorities EPM process has also influenced changes in other policies in themselves. In addition, the upcoming restructuring of PORALG Tanzania such as the National Human Settlements Development and the local authorities (under the LGRP) cast a shadow of Policy which categorically states that all urban development uncertainty on the future status and role of UASU as well as the plans in the country should now be prepared through the EPM position of the EPM coordinators within the local authority approach rather than the conventional master planning approach. structures respectively.

The EPM process is also featuring as an integral part of Funding curriculum development in the institutions of higher learning in Tanzania. For instance the Department of Regional and Urban The operationalization and sustaining the Working Groups also Planning at the University College of Lands and Architectural presented one of the greatest challenges. This has resulted in Studies (UCLAS) now emphasizes on the participatory EPM working groups not meeting regularly thereby jeopardizing the approach instead of the traditional master planning approach. whole participatory dimension of the EPM process.

The launch of the Safer Cities Programme in Tanzania is a Some local authorities piloted geographic working groups to try consequence of the success of the EPM approach. This and speed up the implementation of projects. Some utilized city programme seeks to address urban violence and delinquency wide working groups and yet others used a combination of these through crime prevention initiatives. Apart from community extremes. These diverse approaches are testimony of how some policing and law enforcement the programme addresses the local authorities would like to use the EPM approach to identify underlying problems of insecurity such as unemployment, projects rather than to develop SUDPs with many initiatives, poverty reduction, governance and general inclusion of hence attempting to circumvent the process. marginalized groups (women and youths), and the poor in urban development. The prospects of participation ushered by the EPM approach has created a huge demand for funds to implement environmental Other initiatives being implemented in Dar es Salaam and born initiatives. This has unfortunately not been matched with the from the success of the implementation of the EPM in Tanzania budgetary support from local revenues, national budgets nor are the Community Infrastructure Upgrading Programme (CIUP) external donors. This applies at national and local levels, thus being supported by the World Bank and the Bus Rapid Transit subsequently curtailing the success of the SCP at large. (BRT) system. In addition, the Cities Alliance Project (CAP) is also being implemented in Arusha and Dar es Salaam. 3.0 Mainstreaming SCP/LA 21 at National And Global Level

2.2 Documentation & Dissemination Of SCP Innovations Over the years, SCP in Tanzania enjoyed close collaboration amongst numerous NGOs, CBOs, institutions of higher learning, Through support from UN Habitat, SCP Tanzania is finalizing Environmental Management Information System (EMIS) and the documentation of the lessons learnt through the years of GIS firms as well as consulting firms dealing with environmental experience implementing the innovations. The documentation issues both at local and national level. will include a Toolkit to support preparation of SUDP’s based on the SDP experience; inventory of existing spatial and text At the national level the SCP gets policy guidance from the information and published/unpublished documents by topic, year, National Programme Advisory Committee (NPAC) which was etc; Comparative and analytical issue specific documentation on established in 1999 and is chaired by the Permanent Secretary of one typical issue of common municipal concern as well as the PORALG and UASU is the Secretariat. (See attached synthesized lessons of experience both at national and local level oganigram). The committee is composed of about twenty including blips of examples and source references. The institutions drawn from government ministries/departments (e.g. documentation is scheduled to be concluded in time for MLHSD, Department of Environment, Ministry of Health, dissemination at the Dar +12 multi-stakeholder consultative Ministry of Water & Livestock Development, Ministry of Natural workshop scheduled to be held in May 2005. Resources & Tourism, Land Use Commission and National Environmental Management Council); private sector membership organizations (e.g. Tanzania Chamber of Commerce, Industries 82 Havana 2005 - Documentation of experience SCP/LA21

& Agriculture), local government associations (e.g. Association The Government of the United Republic of Tanzania recently of Local Authorities of Tanzania-ALAT), institutions of higher received support from the Royal Danish Ministry of Foreign learning (University of Dar es Salaam & University College of Affairs/Danida for two years up to the end of 2006. The support Lands and Architectural Services-UCLAS), international aims to capacitate UASU to fulfill its mandate regarding development organizations (e.g. UNDP, UN Habitat, Sida, GTZ, backstopping of the local authorities participating on the SCP as Danida, ILO, World Bank and SNV) as well as the Local well as to facilitate the process of designing of a new national Government Reform Programme in Tanzania. component for support to Urban Environmental Management (UEM) in Tanzania scheduled to commence in 2007. The brief mandate of the NPAC includes informing participating local authorities on relevant national policies, promoting the The new national UEM Programme seeks to strengthen the Local application of the EPM approach in policy advocacy as well as Government sector to deal with urban environmental challenges serving as the strategic hub or clearing house for the formulation in a decentralized decision making context in line with the of future urban environmental management programmes. By the national policies on local government reforms, poverty reduction, very nature of its composition, the NPAC enjoys exposure to gender, etc. In this context, National and Regional authorities global perspectives in urban management and national policy should be involved and enabled to assist the local authorities in development and application. As an example, the development improving the integration of sustainable environmental cooperation support to Tanzania is well supported by the Joint considerations in development planning and budgeting with the Action Strategy (JAS) which takes into account various national participation of all stakeholders including the civil society, and international perspectives. development partners, NGOs, CBOs, the local communities and the private sector.

83 Havana 2005 - Documentation of experience SCP/LA21

THAILAND Thailand National Experience

The Thailand Environment Institute

Innovations Under the new constitution, a set of ‘organic laws’ were required to be enacted within two years. Subsequently, the Past attempts of innovations in urban management have met with ‘Decentralisation Act’ was promulgated that set the framework varying degrees of success in Thailand. This is largely due to the for establishment of a National Decentralisation Commission that previously highly centralized form of administration which saw in turn adopted a decentralisation plan detailing a phased many of these ‘innovations’ be applied at the local level as a approach to implementation of a decentralisation master plan and parallel process or a one-off application while the standard action plan. The Decentralisation Plan is set forth in 2 phases – 4 ‘business as usual’ was highly regulated by centrally mandated years and 6 years. The first four years (2001-2004) dealt procedures, processes and regulations for local “administration” – primarily with reclassification and allocation of service not “management”. Whether the SCP/ LA21 approaches, or responsibilities among levels of government, outlining reform of those demonstrated by others such as DANCED or GTZ, etc., key central administrative systems regarding inter-governmental have had mixed results because of this. relations and proposing a planning framework.

More recently, with a number of frame conditions rapidly Policy was elaborated for reform of regional administration changing in Thailand (see next section), introducing meaningful concerning public service provision as well as revitalising laws change at the local level for improved urban management has and regulations concerning local service performance standards. seen some breakthroughs. The most notable recent innovation is Important objectives were also established that would affect the testing and application of ‘Strategic Planning’ and ‘Strategy changes in the budgeting and accounting system. Civil service Management’ approaches for local urban environmental reform policies have been elaborated and are to be implemented. management that was formulated and demonstrated for all three The 2nd phase (2005-2010) looks to continue the reclassification levels of local governments. This approach built upon many of and devolution of public service responsibilities, finance, and the principles as expounded by many of the previous approaches personnel administration to the full-scale operation. The target is such as being high ly participative, bringing in a land use planning to have all local services fully devolved to local authorities. component and stressing poverty reduction and improvement in quality of life. However, the success is these approaches move Under the plan, six areas of public services are to be devolved to well beyond ‘action planning’ and proposed a more integrated local governments: and balanced approach to local development that can be used § Construction and maintenance of local infrastructure truly as a management tool. (including urban planning); § Social welfare; The formulation of local strategic plans accompanied by a 3-year § Public safety; rolling plan of operation has now replaced the long-practiced § Local economic development; one-time 5-year sectoral plans on a nation-wide basis. Under this § Natural resource and environmental management; and new approach many local authorities were able to formulate their § Cultural promotion strategic plans, however many of them faced problems in ‘strategy implementation’. The testing of a ‘Strategy In line with the increased devolution of services to local Management’ model has proved successful for a number of local authorities, the decentralisation act provided financial authorities and has potential for much wider application and decentralisation benchmarks where, by fiscal year 2002, 20% of spreading. This work is complemented by a very participative the national revenue should be allocated to local authorities and and bottom-up formulation of Sustainable Cities Indicators that by 2007, 35%. By comparison, in fiscal year 1999, local help municipal authorities better monitor and subsequently governments received an estimated 9% of national revenues . manage development in their jurisdictions. Prior to the adoption of the constitution, what was called a National factors that have facilitated or/and obstructed the significant initiative for decentralisation occurred in 1994 with introduction of new urban management approaches the establishment of the ‘Tambon Administrative Organisation - TAO’ (Or Bor Tor). This was a first step in introducing elected In the opening paragraph it was noted how the highly centralized local officials at a very local level for the rural sector. Previous to system of local administration inhibited the introduction of new that, the provincially elected legislature (under an appointed urban management approaches. This changed drastically in governor) was the most locally based elected representative of October 1997, when Thailand took a major step forward with the the rural population. The jurisdiction of these TAO conform adoption of its new constitution that established an important largely to the existing Tambon boundaries that typically cover all enabling framework for change in both formal decentralisation areas of a province except the municipalities and former sanitary and further democratisation. The adoption of this new districts. constitution is perhaps the most visible signal that the Thai Government is dedicated to decentralisation. Concurrent to this, A more important step towards increasing local autonomy decentralisation of authority is also being emphasised as an occurred after adoption of the constitution in which sanitary important component of civil service administrative reform. districts were no longer recognised as a form of local government requiring the upgrade of all 981 sanitary districts to full 84 Havana 2005 - Documentation of experience SCP/LA21 municipal status. This represented a significant change in the that only advocate ‘action planning’ or a ‘single sector’ emphasis local urban authority landscape. Until that point there had been (such as on environment). Such approaches are no longer only 149 municipalities in the country representing the most applicable in the increasingly complex urban situation in autonomous form of local government. Previously, the sanitary Thailand except perhaps in the smallest of urban centres. Urban districts were administered under a mix of appointed and elected development issues are now becoming increasingly complex and officials and formed part of the territorial administrative frequently at a stage where we must increasingly turn to strategic framework. With the upgrading of the sanitary districts there are guidance and approaches as an orientation for any ensuing now 1,129 municipal authorities in the country requiring actions and projects. What is needed are ways and means that go elections, staffing and management to municipal standards. beyond the project (and even program) oriented approach and offer a more balanced and integrated way of working to address To further facilitate the implementation of local management the ongoing problems. Limiting inputs to too narrow a field, is in processes, other important frame conditions are now in place at itself, unsustainable and does not facilitate the integration of the central level. The current government is emphasizing efficacy development issues and subsequent responses. The difficulty is of all government organizations and requiring the application of in finding approaches that are truly able to offer an integrated and strategic planning as a management tool. Such approaches are balanced means for urban management that moves beyond only also asking all government units to have both strategies and ‘planning’ and offers innovations that are really ‘management’ indicators for measuring success. Given these new demands by oriented. the central level, many government units, including local authorities, are now very willing to adopt new and innovative Mainstreaming innovation at national level practices. Use of innovations to develop and improve national policy Documenting and disseminating innovations. and strategies

The underlying strategic planning approach was introduced At present, urban development is not a stated priority of the nation-wide by the Department of Local Administration as a national government which is currently emphasizing rural means to better support local planning and management under the development potential and growth. However, there are sufficient decentralized framework. This has been supported by a frame conditions that have both facilitated and encouraged the handbook and curriculum to support building of local capacity. spreading of such innovations by creating a demand from the The formulation of the ‘Strategy Management’ approach was local urban level (ongoing decentralization initiative; requirement initiated by the Thailand Environment Institute with support from for all agencies to have both strategies and indicators for the Office of Policy and Planning of Natural Resources and measuring development success. Much of the work is now Environment, Ministry of Natural Resources and Environment as increasingly involving the National Municipal League of a means to strengthen more sustainable development approaches. Thailand as a strategic partner in the formulation and application This has been documented in a five-volume handbook that has of such innovations. By building capacity within this national been disseminated to all local authorities. institution, and associated regional chapters, there appears to be more potential for ‘institutionalizing’ such innovations than Initiatives under the Sustainable Cities Indicators included the through only the nationally based line ministries as in the past. selection of 12 municipalities from 5 regions to participate in the formulation and implementation of sustainable cities indicators, Setting up cross-cutting national support facility to assist training of more than 700 personnel of the executives and cities in capacity building administrative officers of the 5 regional chapters of National Municipal League of Thailand (NMLT), presently the process for At the national level, close collaboration is being carried out with identifying 12 Good Practices of Self-Improvement through a number of actors that will support the further spreading and Implementation of Sustainable City Indicators has been replication of good practices. Government agencies such as the conducted, and awards will be given in October 2005. Department of Local Administration and the Ministry of Natural Documentation of good practices will be shared through the Resources and Environment have been close co-operation partner website of the NMLT, and through a series of training events. in many such activities. TEI also supports the capacity building of the National Municipal League of Thailand to provide In addition to the work with national partners, there has been a additional inputs and services for its members either directly or growing trend of dissemination carried out through peer-to-peer through each of its five regional chapters. exchanges of experience and good practices. Such forums include regular meetings among regional chapters of the A number of specfic initiatives have been introduced and Municipal League. There are also international exchanges experienced gained in encouraging and building local capacity to directly on a city-to-city basis supported by NGOs and other not- undertake development planning and implementation on a more government agencies. integrated and participative approach and to build good practices that can be shared and replicated on a national as well as sub- Aspects of the introduced new urban management regional basis. While a wide range of initiatives have been approaches that are most difficult to adapt to Thailand’s conducted over the years involving an equally wide range of particular circumstances actors, the following outlines a limited number of such initiatives and experiences that have either been, or in the process of being, At present, the issue is not necessarily about difficulty in carried out by TEI in conjuction with other national and adapting approaches such as SCP/ LA 21 to Thailand’s international agencies: circumstances, but rather it is one of offering truly innovative approaches that reflect the rapidly advancing nature of local urban management and the overall capacity at the local level. Part of the response requires that we must go beyond approaches 85 Havana 2005 - Documentation of experience SCP/LA21

A. Building Regional Learning Networks within co-operating countries and eventually for the sub-region This UN-Habitat supported initiative is part of a wider project through: designed to support overall decentralization. This component § Providing direct services to local authorities (in their own focuses on the establishment and operation of five Regional cultural context and language) to improve their local Learning Networks (RLN) throughout Thailand as a means for practices, as well as to generate documented good practices facilitating the delivery of capacity-development services to for others to learn from; municipalities. The basis for such a RLN has already been § The ongoing elaboration and refinement of approaches and established with resources mobilized, especially under the SCI tools and new innovations that become more context initiative (described below) which brought together the resources specific for each of the specific applications sites; of the Municipal League at the regional level with key resources § Working through academic institutions to provide a more from academic institutions and progressive municipalities. A formal and regular educational input to reach local number of mayors from these progressive municipalities have governments on the topic matters and seeking to expand into already been mobilized to be ‘trainers’ whereby, with the area of ‘distance learning’ through co-operation of professional support, they can ‘translate’ many of the innovations institutions that have the ‘hardware’ but lack the syllabus; and good practices they have already applied through co- § Working through national and regional chapters of local operation projects into practical and concrete terms. These authorities’ representatives (city/ municipal leagues – e.g.: existing networks are being used as the foundation for the RLN. National Municipal League of Thailand and its five regional Each of the regional networks will pursue the same overall chapters, etc.) to build capacity at these levels to programme objective and have common core network members: increasingly assume a greater role in the support and resource cities (those cities most advanced in the implementation services to their members; of sustainable urban management); National Municipal League of § Involving national and provincial agencies within the Thailand (NMLT) leader members; and regional/ national process to support the further spreading and replication on a universities and training institutes. national basis; this involvement with typically also include training of trainers at this level – depending on the country Recognising that some cities, institutions and regions have context. progressed further, each RLN will also develop its own approach § Networking with national and international organizations reflecting regional and local priorities, needs and capacities, (NGOs and others) to complement services and tools offered complemented by an e-based national information platform to the local level; anchored in the NMLT which will be responsible for instituting § Providing and knowledge centre that is both electronic and knowledge management nationally. These advances will be hardcopy based that combines both international material as captured as good practices and form the basis for exchange visits well as an increasing amount of locally based reference and other forms of sharing and networking at various levels from information and good practices. This will be local to global. complementary and linked to other ongoing related documentation and knowledge management activities aimed The focus of capacity development activities and means of to support local authorities. delivery will be based on much of the emerging work and innovations being developed for the local level and further C. Sustainable Cities Indicators (SCI) elaborated on the basis of regional network meetings with an Through a very bottom-up participatory approach, this project emphasis being placed on the experimentation of differing undertook to develop livable indicators for all levels of methods of capacity delivery in each of the regions. These municipalities in Thailand and offer a means to evaluate methods will have already been highlighted in the national municipalities in term of their progress towards achieving a more replication strat egy for consideration by the regional networks. liveable and sustainable city. The result was an identification of An agreed participatory monitoring and evaluation procedure will 47 indicators for a range of economic, social, environmental and be established and agreed amongst the RLNs and used for organizational aspects. Such output was subsequently verifying, evaluating and documenting the capacity building implemented through five training workshops for 12 pilot methods employed and their effectiveness in improved urban municipalities on “Indicators…tools for strategy development of management and governance. municipalities”. There were approximately 500 participants from municipalities coming from all five of the Kingdom’s region’s. B. Sustainable Cities Resouce Centre A joint co-operation has been formed between TEI and the SCP To facilitate the implementation of such a process, some to establish a Sustainable Cities Resource Centre. This builds on important frame conditions were in place at the central level. The TEI’s stated commitment to extend its services to help support current government is emphasizing efficacy of all government neighbouring countries in the Greater Mekong Sub-region (GMS) organizations and requiring the application of strategic planning and in particular their commitment of increasingly ‘going local’ as a management tool. Such approaches are also asking all to support the ‘sustainable cities movement’, and combines government units to have both strategies and indicators for SCP’s experience gained in implementing its EPM approach in measuring success. Given these new demands by the central other parts of the world with TEI’s work in Strategy Management level, many government units, including local government, are and other methods. This centre is in the very early stages of now very willing to adopt new and innovative practices. being established and will provide knowledge and training on which to support local authorities not only in Thailand, but An award is also in process to be given to municipalities in through the sub-region with a range of tools, good examples, October 2005 which show the most progress in attaining their approaches and techniques to assist them as they work toward proposed actions in responding to their agreed or selected achieving greater sustainability in their development initiatives. indicators.

A multi-level strategy is being developed and pursued for A number of lessons can be derived from the training exercises achieving effective coverage of local urban governments both carried out in these 12 pilot municipalities and used as a model 86 Havana 2005 - Documentation of experience SCP/LA21 for other cities to implement indicators as a strategic management tool. The exposures and exchanges of experiences in the three year § Most importantly, by using a bottom-up approach to programme of the municipal executives and officers from 10 formulate the indicators, where the municipal cities in Thailand, Indonesia, the Philippines and 2 cities in representatives had the responsibility for elaboration, greater Canada have created a great deal of sharing of knowledge and ownership at the local level was achieved. This is in encouragement. contrast to typical top-down imposition of indicators that often are applied as ‘auditing’ tools. E. Strategy Management for Local Government § Such an approach facilitates municipalities taking a holistic This initiatives have been introduced to encourage and train and integrated approach to pursuing their sustainable city municipalities to undertake a more strategic approach to local objectives. By integrating the four components of development planning that emphasizes shifting from an economic, social, environmental and organizational aspects incremental approach in the planning and budgeting process to the municipalities were not tied to any p articular dimension. one that establishes a vision and works to formulate action plans § With the sense of ownership and taking an integrated for achieving it. approach, local authorities were able to establish their own priorities based on their own idenified needs selecting from During the course of implementation of typical development the range of indicators. plans, one of the greatest weaknesses that had been discovered § Application of these SDIs became an important tool for was the lack of execution and management of the formulated change and development at the local level. Mayors and strategies. To help overcome these weaknesses, the Thailand other local leaders now had better knowledge on which to Environment Institute with support from the Ministry of Natural manage and make changes in their development objectives. Resources and Environment worked with 50 local authorities, at By having very specific and measurable indicators that were the provincial, municipal, and community levels, to help bridge linked to their vision, strategy and action plan, decision- the gap in institutional carrying capacity by adapting a model to makers were better able to respond to development needs as strengthen local approaches to strategy formulation and well as communicate objectives and track implementation at management that helps local authorities take better control of the staff level. their future and work towards more effective management of their natural resources and environment. D. Localizing Climate Change Protection It is this aspect of ‘strategy management’ using the ‘Balanced In collaboration with ICLEI - Local Governments for Scorecard’ (BSC) and ‘Strategy Map’ techniques that has begun Sustainability, the Thailand CCP™ has worked with six local to show promise for some municipalities where they can both governments to understand their roles in influencing and measure and report on the performance of their strategy. mitigating climate change and to integrate this understanding into their activities by undertaking the five milestones of the CCP™ A number of lessons have been drawn from this experience. If it Campaign: is applied in the local administration organization, this strategy 1. Greenhouse gases Inventory and Forecast for management approach and related tools can certainly help corporate and community sector increase the capacity of local government, by building 2. Target Setting preparedness for action on matters relating to budgetary, 3. Development of Action Plan personnel, knowledge and technological aspects. A summary of 4. Measures Implementation the lesson learnt include: 5. Monitoring § Size and type of local government are not important to the success of the application. Ability to understand and apply The completed GHG inventory of each city has made each city the various approaches and tools were successfully applied aware of how much emission the city contributes to the in a range of circumstances and situations from the smaller atmosphere. The program also assisted cities in improving their and typically under-staffed local units up to the more knowledge on climate change issues through training activities. ‘capable’ provincial organizations. Deeper awareness and understanding has motivated them to take § Political commitment represents the most critical aspect concrete actions to reduce emissions. relating to success of the implementation. In localities where the mayor gave his/her commitment, then the The project also produced 3 publications namely: ‘machine’ typically moved forward and the model was § Global Warming Hot Stuff for younger generation successfully applied. However, in all cases it was § Sustainable Transport for Sustainable Cities; and highlighted that they could not do it alone and support was § Local Actions for Climate Protection. needed from the staff level of the organization. Substantial time and communication is required to achieve an agreement Three key lessons learnt have been extracted from this work: to undertake such a process that is different from current § By keeping the topic practical and immediately usable, practices. To achieve effective co-operation, the local level was very willing to implement. The communication and motivation between the executive and project was able to very clearly show the impact of the working groups became of paramount importance to such an approach in monetary terms from efforts to seeing the model applied and the results achieved. save energy. § Clarification of clients and organizational § Such efforts must also go down to the local community responsibilities: The most successful application of this level – right to daily life and work aspects. approach and associated tools occurred once the § There is significant value in providing exposure and organization was able to clearly enunciate who their ‘clients’ supporting the building of local to local networks from were and what the organization ‘ought to be doing’ to serve the national to regional and global level that encourage those clients. sharing and exchange of experience. 87 Havana 2005 - Documentation of experience SCP/LA21

§ Data is perhaps one of the major stumbling blocks to Incorporating innovations in other sectors of activity efficient implementation. Often it is very difficult to obtain needed data to complete environmental scanning activities These innovations have been progressively accepted mostly by and in many cases, that basic data contained several flaws. local governments that want to reform their existing modus Currently, data collection systems still are designed to serve operandi of planning and development. Though the Strategy national needs and have not yet been adapted to reflect local Management has not been well integrated and accepted by all requirements for carrying out their own development central governmental agencies, there are some agencies, such as planning initiatives. the Regional Natural Resources and Environment Centers, and § Measurements: In short – “the clearer the better”. By some of the Provincial Natural Resources Centers that have made establishing clear and concrete measurements, there is much use of the model to train their own officers as well as local better commitment throughout the organization to pursuing governments in their administrative zones in formulating local implementation down to the project level. Considerable and regional strategic and action plans. There have been a effort and time must be taken to establish such number of Provincial Strategic Development Plans formulated by measurements as they must be understandable and the Strategy Management Model. More recently, the Millennium realistically applied by all staff levels to get meaningful Development Goals (MDGs), which has been implemented in implementation and subsequent feedback. Mae Hong Son Province as the first pilot project under the § Holistic and Comprehensive: Strategy management works supervision and support by UNDP, and the National Economic to achieve vertical integration with other concerned and Social Development Board, Thailand Environment Institute agencies. These planning and management efforts must be has made use of the Strategy Management Model in the training brought outside of only the context of a single jurisdiction of provincial staff and in formulation of Provincial Strategic and recognize the inter-relationship of issues between local Development Plan. government and other agencies. It is in this regard that the current jurisdictional boundaries often limit consideration of Presently, Thailand Environment Institute has been preparing a wider and more complex issues. number of different types of training curricula for local § Strategy review and improvement: Significant investment government executives and administrators with the in time and other resources must be put in place to commit Decentralization Committee and the Department of to not only establishing the plan for action and its Environmental Quality Promotion. It is expected that this subsequent implementation, but also to undertake a review innovative model could be more extensively utilized by the local and measurement of the performance in a systematic way governments and other interested agencies. according to the agreed indicators. The administration must accept that the strategy may have to be adapted in response Mainstreaming innovation at global level to the feedback, and that flexibility will be required to adapt and respond to the results. Involvement of national actors in the international debates on Global Agendas: Use of innovations explained above by the Academic Sector to improve training curricula. (a) urban issues (among others the Habitat Agenda), Participants from Thailand in such forums often include The innovations outlined above are largely targeting a learning- representatives from national government (e.g.: MOI, MONRE, by-doing approach through on-the-job training. There are few etc.), local authorities (municipal government, Bangkok ‘academic’ institutions that are structured to really provide this representatives, etc.), the National Municipal League of Thailand form of training and support to local authorities. This is one of and NGOs such as TEI, Community Organization Development the rationales behind the establishment of the above described Institute (CODI). Internationally sup ported projects usually ‘Sustainable Cities Resource Centre’. Linkages are being made include a partnership of these main groups that work together to on a strategic basis with key academic partners, such as gain synergy and share experiences by contributing lessons learnt Assumption Business Administration College (ABAC) who offer and feedback to not only the national level but also regionally potential ‘distance-learning’ through their facilities, and the five and globally. regional institutions that will participate in the ‘Regional Learning Network’ (described above). (b) environmental issues (among other the Agenda 21 and Multilateral Environmental Agreements) To support such innovations, capacity building also needs new Thailand is a signatory to most of the major multilateral approaches and forms that result in real change. It must be environmental agreements and participates in many of the realized that the traditional approach of ‘training’ through formal forums. institutions does not necessarily lead to ‘learning and change’. Efforts must be applied to where capacity building attempts to (c) poverty reduction (among other the MDG) mobilize and leverage local and regional resources that can lead As Thailand has already achieved a number of the goals set in the to learning by one’s own actions and can synthesize and integrate global MDG report, it has subsequently formulated an MDG Plus the lessons learnt. In this regard, exposure is a form of capacity Report that seeks to go beyond the global framework and reflect building that has typically been underutilized, but one that works its own situation and targets. because it is practical. Such an approach allows executives to be able to bring together the policy perspective with action which d) sustainability have often been treated as ‘separate’ in many training events. The Economic and Social Development Board, the Ministry of Too often many capacity building inputs for urban management Natural Resources and Environment and the Ministry of Foreign have focused on the policy level without offering ways and Affairs are jointly responsible for implementing and reporting of means to translate the policy into effective and truly manageable WSSD and CSD commitments. Concretely speaking, Thailand action. Environment Institute has been support ed by the NESDB to

88 Havana 2005 - Documentation of experience SCP/LA21 initiate the process of drafting the Sustainable Development attempting to balance capacity building and related networking at Indicators (SDIs) on the national and regional levels. There have the global, regional and local level, it is believed that we must been a series of interesting discussions and debates on the first understand the regional learning context and develop our effective means of linkages of the global, national, regional and own strengths in this regard. Only by establishing a strong local levels of the Sustainable Development. regional framework and good practices for structures, people, networks and organizations can the global learning context be Support received at national level from global/ international properly applied and international exchanges be truly successful. facilities to implement the global agendas described above One of the opportunities that forums such as this meeting in There has been a notable decrease in ODA to Thailand from both Havana offer is to work to identify (and share) cross regional multilateral and bilateral agencies. This is partly reflective of the strategic issues, particularly among the countries of the South. current government’s position as being more capable of South-South Dialogue with the support of North should be supporting all aspects of its development agenda with national strengthened. Principles and styles of management of urban resources. However, there is still co-operation from global governance should be respected, learnt and shared both by agencies to non-government agencies to implement such global capitalist and socialist societies To be useful for the local level agendas both nationally and at the sub-regional level. Much of action, such issues must also be as concrete as possible and able the input focuses on capacity building and networking rather than to be carried out on a regional basis. Whether such issues deal on financial and technical assistance to implement global with ‘urban agriculture’ or the ‘’, they must agendas, reflective of the improving development status of relate to trying to address some of the key urban development Thailand. issues on an integrated and strategic basis that helps cities to regain an identity and plan their responses in a sustainable However, this support could be further enhanced to support manner. building a strong regional framework as a basis for the global. In

89 Havana 2005 - Documentation of experience SCP/LA21

ZAMBIA Role of National Capacity Building Institutions in documenting and mainstreaming Experiences in Zambia

Daniel Apton Phiri, Copperbelt University

National Capacity Building institutions in Zambia have been benefits more than the other. Lack of commitment towards collaborating with UN-Habitat for more than ten years now common planning meetings and discussions affects beginning with the City Summit in Istanbul in 1996 and have implementation of programme activities. Poor communication participated in the Global Sustainable Cities Programme since and information flow between CBIs and stakeholders has been a 1996. The Chalimbana National Institute of Local Government major problem. In Zambia for example the members of the was one of the first to start capacity building programme in Copperbelt University EMEG felt marginalized and irrelevant implementation of the Habitat Agenda and LA21. The University when the Kitwe City Council failed to consult them on out of Zambia participated in the Lusaka Sustainable Project through sourcing of technical assistance. It was learnt that the Council did technical assistance in the preparations for the City not officially communicate with the CBI on their intention to Environmental Profile and the City Consultation. The Copperbelt outsource, sound though the idea was. University was the anchor institution for the Support to the Implementation of HABITAT National Plans of Action (SINPA) Inadequate support from the national stakeholder is one other Zambia Project (1998-2002) which was a follow up to the City reason for failure of Capacity Building institutions to perform. Summit. The Copperbelt University has since June 2000 The CBIs have to work within national policy frameworks and provided technical assistance to the Kitwe City Council in action plans but absence of any meaningful dialogue and a programme formulation, development and implementation of the national agenda for urban management impedes the full national replication programme-the Sustainable Kitwe contribution of capacity building institutions. There is also the Programme. It can be seen that national capacity building issue of lack of political support and will to implement national institutions have been actively involved in SCP/21 Programmes programmes. Donor agencies, UN-Habitat included have in Zambia and will continue to do so for a long time to come in indicated willingness to provide support in urban environmental as much as capacity building is a major component of the EPM management but there has been little will at national level to start process. implementing the programmes.

In line with the theme of the 2005 Global Meeting of Partners: Documentation of SCP/LA21 programme innovating for local and global results Capacity Building institutions in Zambia have performed an introspection to experiences in Zambia evaluate their role, successes and constraints they have faced during their participation in the SCP national activities. An examination of all SCP/LA21 programmes in Zambia indicates that capturing of lessons of experiences and documentation has been generally poor. Whereas there are Innovations isolated cases in which documentation has been achieved there is no evidence of systematic documentation either at Capacity The collaboration with UN-Habitat and participation in the Building Institutions or by national and local level partners. The implementation of SCP/LA21 activities in Zambia has enabled only evidence of documentation is the various project documents, capacity building institutions to reposition themselves towards quarterly and annual reports and project evaluation reports. CBIs capacity building needs of local stakeholders in urban have from time to time shared documentation on SCP/LA21 environmental management. CBIs have responded by providing activities with other institutions and consultants and have used client specific services tailored to address urban environmental the documents in research activities. A number of reasons can be issues in a more proactive manner. The Copperbelt University for cited for inability of CBIs to conduct documentation: example has formed an Environmental Management Expert · there is no established culture for documenting lessons of Group (EMEG) which directly provides technical assistance to experiences due to lack of in-built mechanisms for the Sustainable Kitwe Programme. The Local Authority monitoring and documentation; perceptions on the importance of collaborating with CBIs is · lack of appropriate skills and technical expertise for changing for the better with more and more consultations taking documentation is another major constraint, particularly in place than ever before. the area of Monitoring and Evaluation

· Inadequate equipment for documentation and resources for Factors inhibiting effective collaboration special research activities to capture both tangible and between national stakeholders and capacity intangible experiences from SCP projects building institutions · Absence of deliberate institutional policies for documentation

Most of these constraints could be resolved locally and with little A number of factors affect the smooth collaboration between CBIs and the local and national level stakeholders. The major one international support. is mistrust and misunderstanding of respective roles the partners are supposed to play in implementation of programme activities. Mistrust is mainly caused by the lack of transparency and proper accountability of resources and the perceptions that one partner 90 Havana 2005 - Documentation of experience SCP/LA21

Discussions have been held between local authorities, CBIs and donor agencies of the need to establish an urban forum which Adaptation of SCP/LA21 programme aspects would enable stakeholders come together to exchange information and lessons of experiences. A national support Experiences working with SCP/LA21 programmes have facility is envisaged in Zambia but only after the lessons of the indicated that there are some aspects of the programmes which SLP and SKP have been fully captured and documented, and key have been readily adapted while others have been very difficult to recommendations made for upscaling of the SCP/LA21 integrate in the daily routines of institutions. Acceptance of the programmes in Zambia. EPM approach of planning and management by the people who are used to old routine systems that offer little innovation is one There are major plans in Zambia to review University curriculum area requiring more effort. It has been easy to prepare the to follow the SCP/LA21 principles that promote sustainable environmental profile since consultants are involved but development. As more experience is gained in the on-going stakeholder mobilization has been somewhat difficult. This programmes, more cases and lessons will be available for such a impinges on ingrained perceptions that when people attend curriculum review. This will require the technical assistance of meetings that have to be paid for it or at least be reimbursed for already established institutions such as the IHS or UCLAS within expenses. There is no sense of ownership of the process in which the sub-region. case SCP/LA21 activities are perceived as imposed on the people. Integrating and institutionalizing some of the aspects e,g popularizing the EMIS has proved difficulty in the absence of Mainstreaming at global level any meaningful or tangible impacts. Local and national stakeholders on other hand have appreciated and supported Zambia is fortunate in that national actors have been actively demonstration projects since these have produced tangible results involved in SCP/LA21 programmes at the International level. and changes in the physical environment to which the people Participation of national actors has included presentation of easily relate.Within CBIs it has not been easy to integrate policy and position papers, technical papers and moderation of SCP/LA21 experiences into the training curriculums. meetings. National actors have also participated in International Consultative Forums and Expert Group meetings. The level of participation of national actors is limited and should be Mainstreaming innovation at nation level broadened so as to enable them participate in other global agendas the framework of the SCP in Zambia mainstreaming will be achieved through a planned national documentation on the urban UN-Habitat/UNEP has provided the bulk of the technical and environment. The experiences of the Sustainable Lusaka Projects financial support to enable national actors to participate in have had an impact on national solid waste policy in as much as international debates. What is discernibly lacking the support of SWM is now regarded as an activity that should be conducted in national level institutional towards national actors participation in participatory manner. There hasn’t been much influence on the International debate. Such support could be enhanced through legislative instruments though there is so much scope for this in concerted efforts aimed at fund raising to ensure that national the future. actors participate at global level.

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LUSAKA, ZAMBIA Innovating through Sustainable Lusaka Programme

Kangwa Chama, EMIS Officer and Ag Director, City Planning, Lusaka City Council Daniel Phiri, Lecturer, Urban Management Unit, Copper Belt University

Sustainable Lusaka Programme (SLP) was a follow-up and third · Existence of Non-Governmental Organisations which component of UNDP/UN-HABITAT supported components in facilitate community development and undertake poverty the Social Sector Rehabilitation and Development. SLP's alleviation programmes locally. development objective has been to support measures aimed at · Presence of Council staff in the communities working hand poverty alleviation in communities of high poverty levels in hand with local residents especially in peri-urban settlements, through promotion of · Community members' spirit of hard work. environmentally sustainable development and growth. The Programme has supported long-term sustainable growth and Local factors that have Obstructed SLP development of the City through capacity building programmes and demonstration activities in communities of high poverty activities levels especially in the peri-urban areas. The programme has had three phases: Preparatory phase; Implementation phase · Political interference in the running of community-based (prioritization, working groups and demonstration activities); and organisations such as Resident Development Committees. Strategic Development Planning · High poverty levels hindered the participation of some community members in developmental programmes SLP’s contributions to Positive Changes · Inadequate institutional support by Lusaka City Council to the local council offices By supporting capacity building programmes at community level · Largely ineffective institutional structure in LCC and local authority level, SLP has enabled: · Changing political and administration arrangements · formation of a professional pool from which information negatively affected developmental programmes in the and expertise could be drawn from. communities · change of attitude of Lusaka City Council towards · Minimal capacity in LCC in terms of resources and staff stakeholders and vice versa competencies · positive exposure of programme staff to different developmental experiences Mechanisms that have been created to · empowerment of communities to organise themselves, plan, support development innovations are: mobilise resources and undertake development activities · Strengthening of the EMIS Team Other contributions include, · Strengthening of the District Development Co-ordinating · creation of opportunities to engage in entrepreneurial Committee by recruiting a District Planning Officer ventures · Formulation and review of by-laws · The preparation of participatory community profiles in three · Strengthening of the Public Relations Section of Lusaka squatter settlements led to establishment of priority City Council environmental issues and formulation of strategies and

action plans and Sensitisation of communities on other development issues such as gender and HIV/AIDS. Necessary Technical Inputs to Enhance the · Implementation of action plans in at least 3 selected areas Innovations led to the building and strengthening local capacity to plan, co-ordinate and manage urban development and growth. at · Sustained capacity building programmes for staff and all levels (i.e. communities, NGOs, public and private communities by area-Based Organisations and the local sector) authority · Development of a strategic urban development/environment · Improved networking among stakeholders, such as the plan for Lusaka provided the City with a development Council, community leadership, NGOs and CBOs, the framework. private and public sectors, on developmental matters · Customisation of EMIS to addressing day-to-day spatial · Sensitisation of communities on their role in development information needs of the communities has enable an all- initiatives in their midst by the Council. inclusive information management facility · Backstopping from support institutions such as UN-Habitat

Local factors that facilitated SLP Activities National Policy, Legislative and Administrative Support required · Existence of community structures in the form of

Community-Based Organisations such as Resident · Review of the Housing (Statutory and Improvement Areas Development Committees which provide entry points into Act) CAP 194 the communities and co-ordinate development · Review of the Town and Country Planning Act CAP 283 · Full implementation of the National Decentralisation Policy

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· Provision of resources by Government for comprehensive · Civic Engagement and Citizenship - through encouragement implementation of the National Housing Policy of civic leaders to participate constructively in promoting development programmes in their communities Governance

The SCP has contributed to Improvement of Urban Governance Global agendas likely to be addressed by SCP by: include: · Sustainability- through promoting ownership of the development programmes by stakeholders and their full · Control of urbanisation in order to check unsustainable participation population growth in the City · Efficiency- through capacity building and training · Security of land tenure for the urban poor · Transparency and accountability - through promoting the · Provision of adequate shelter for the urban poor creation of democratic structures in the communities such · Halting of environmental degradation through unsustainable as Resident Development Committees agriculture practices and illegal development of land. Protection from greenhouse gases will require global action.

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