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CLUVA WORKSHOP
Copenhagen 12th- 15th November 2012
Towards integration of climate change in the urban planning and governance systems in
Dar es Salaam
1. Introduction
2. Practice and policy issues
In order to address the critical concern on how to integrate climate change issues in urban
planning and governance system in Dar es Salaam, a number recommendations that cover
practice and policy concerns are proposed:
2.1
Awareness creation
So far, information dissemination and sensitisation workshops have focused on middle cadre
public officials in the central and local governments. Therefore the aim of awareness creation is
interalia to address critical knowledge and information gaps that exist especially at the lower
levels of governance and urban planning of local governments especially at Mtaa and Ward
levels. It is proposed that awareness be done by focusing on the adverse effects of climate
change. The use of tools such as simulation models to display effects of floods on life
lines/infrastructure, and houses would add much value to discussion. Also appreciation of the
social and economic costs of climate change induced hazards ought to be emphasized at
household, Mtaa and Ward levels. Increased awareness especially at the grassroots level help
strengthen, families and community’s adaptive capacity. Target groups for the proposed
awareness creation include:
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Individual households;

Civil society leaders;

District and Regional Disaster and Security Committee members;

Local government officials including elected persons such as councillors;

The private sector actors; and

Research and training institutions.
A systematic approach to implement and enhance awareness would a coordinated programme of
action at City and Municipal levels.
2.2.
Review of the current policies, laws and regulations
Most of the existing laws, regulations and guidelines do not give much emphasis on the climate
change matters. However, the Environmental Act of 2004 has a number of provisions which
concern climate change particularly with regard to the preparation of land use plans especially
around water bodies lakes, rivers and beach areas. The review of other relevant laws such as the
Urban Planning Act (2008) guidelines and regulations is necessary so as incorporate climate
change concerns ought to be explored. It might be necessary provide for a specific subsection on
climate change concerns.
It is also necessary to review the existing guidelines for the
preparation of the General Planning Schemes (GPS) and Detailed Planning Schemes (DPS)
mainstream climate change adaptation and related disaster risks reduction measures in the
schemes.
The current practice in the preparation of GPS and DPS which tends to zone areas as such as
wetlands, steep slopes and valleys as hazardous areas in GPS and DPS has proved ineffective
non-starter in so far as protection of the same and abuse (i.e. change of use). Designation of land
uses, survey and allocation fragile of ecosystems to specific public or private users are critical
considerations. At present, GPS and DPS guidelines do not have any specified requirement on
change.
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2.3
Curricula review and training
Current urban planning programmes and related disciplines do not have adequate coverage on
climate change. Besides, most practioners especially those who graduated in the 1980s and
1990s, lack knowledge and skills on various issues that concern effects and outcomes of climate
change on urban environment and most importantly, how handle or address CCA & DRR
concerns in urban land use planning. Practitioners also lack skills on how to integrate climate
change matters in their day to day planning practices such as in the preparation and
implementation of GPS and DPS. Similarly there are also gaps in knowledge and skills among
other professionals who are involved in urban development projects such as engineers, architects,
economists, community development officers etc. Curricula review and training ought to also
include non-tertiary training institutions such as primary, secondary and vocational training
levels.
2.4
Disaster and Security Committees at all LGA levels – Mtaa, Ward Municipal and
City Level
At present in Tanzania, matters that concern response to (emergency) matters that concern
disaster risk reduction and adaptation to climate change and variability are centrally handled by
the Prime Ministers Office (PMO). The Disaster and Security Committee at Regional and
District levels are chaired by the Regional and District Commissioners respectively and are
largely active during ‘emergencies’ and or when there is a matter that may constitute a threat to
safely and security of inhabitats in the city.
Subsequently, at present there is lack of
decentralised capacity both in terms of structures and resources at local level – i.e.
Municipal/city, Ward and Mtaa levels. Also engagement with non-state actors including NGOs,
civic societies and the private sector is largely in ad hoc fashion. Often they meet only in cases
where there are serious emergencies or disasters threads to life, property or general welfare of the
public – such as the flash floods of the 2011 in Dar es Salaam. It is also noteworthy that the
focus of the Safety and Security Committees is on disaster management, i.e. ex-post
interventions or adoption of (during flooding) with little or no focus on mitigation. The need for
such committees at all LGAs levels and a coordination mechanism between regional/district
level structures and City/Munciipal Mtaa/Ward is essential.
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Decentralisation of function including responses to climate change threats and reduction risks
associated with disasters such as flooding to the LGAs governance structures seems to be a precondition for resource flows to this levels. Decentralisation will also reduce red tape and other
bureaucratic tendencies which are associated with the over-centralisation of the mandates,
responsibility and resources to the aforementioned central government.
Redefinition of the functions of the committees at the various levels is an important agenda
necessary to enhance mitigation and adaptation measures especially at grassroots levels viz.
Mtaa and Ward levels. This includes decentralisation of monitoring of land use development
control functions to Mtaa and Ward institutions where climate change induced hazards are often
most felt.
2.5
Effective emergency communication strategies
Experience from the 2011 floods in Dar es Salaam shows that often information and
communication on matters that concern climate change and variability induced threats or hazards
do not reach the targeted audience swiftly and or in a form that adequately and convincingly
carries the message. The current practice where the emphases is on the use of TVs, radios and
newspapers is not suffers several shortfalls, related to largely inaccessibility to these
communication media.
It is necessary to explore other options including building on the
elaborate structures and systems such as the political structures (of the ruling party) which are
traditionally well established such as ‘ten cell’ and ‘housing zones/clusters’ units which have
various campaigns for decades. These could constitute important conduits for relaying and
communication especially information on “early warning”.
Also religious structures and
institutions including churches, mosques and the rapidly growing community prayer groups
which have been established in most urban community could play an instrumental role as
emergency communication system. Also use of leaflets distribution of the same in different
localities can significantly improve information flow.
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2.6
Formulate and institute checklist tool for auditing land use planning
As a mitigation measure, preparations of land use plans i.e. General and Detailed Planning
Schemes has to adhere to and systematically identify critical climate change threats which calls
for CCA and DRR urban planning and governance measures. For instance, wetlands, flood
plains and steep slopes might require a more user friendly (land use planning) responses, beyond
the current practice that are restrictive based but remain ineffective. Therefore, instead of using
only restrictive measure fragile should be put to productive land uses and allocated to specific
users or institutions. In order to institute climate change concerns in land use planning and
governance practices formulation of a checklist tool for auditing considerations given to climate
change areas in GPS and DPS is critical. Such a checklist tool should also be incorporated in the
revised urban land use planning guidelines.
2.7
Integrating climate change concerns in Municipal Budgeting
At present there are no mechanisms for transferring funds from the Central Government to the
Local Governments to address climate change matters. Besides, there are no specific provisions
for climate change in the municipal budgeting. This is partly a result of the lack of an objective
that addresses climate change threats in the Municipal plans. Subsequently, funds to finance
mitigation measures and other activities necessary to address climate change induced threats and
hazards are lacking not only at Municipal level but also at Mtaa/subward levels. In order to
institutionalise and mobilise financing for climate change threats, in the budgeting land ward
process resources and ensure budget allocation, it is necessary to introduce climate change in the
Municipal/City budget protocols.
2.8
Fast tracking policy requirement to establish desk officers in the Government
Ministries and devolution of CC matters to LGAs
Although there is a government directive that requires each Ministry to appoint a desk officer
responsible for climate change matters, this is yet to be implemented in most sectoral
Government Ministries and other public agencies. On the other hand, the National Adaptation
Program of Action (NAPA) for Tanzania does not assign specific roles to LGAs (City,
Municipal and Town Councils. Expedition of the establishment of the desk officers in the
Central Government Ministries, Agencies and LGAs is long overdue.
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Because major decision and actions including adaptation and risk reduction responses to climate
change induced hazards and threats are presently centralised, there are hardly local autonomy
control driven from below. Worse local government authorities and its governance structures at
Mtaa and Ward levels are largely recipients of directives and decision from the Meso-levels;
without mandate to initiate own agenda and activities to address climate concerns. As a result of
over-centralisation of resources and decision making power and processes, capacities and
especially resource potentials of critical players such as the private sector, civic society and other
community level actors are not being tapped.
Meaningful participation of public, private and
popular sector actors it is important to devolve mandates and resources to on climate change
matters (adaptation and mitigation) to LGAs.
In order to ensure effective coordination,
networking of critical players, is necessary.
2.10
Data base for hazard prone areas in urban areas
Availability of data including maps that specifically shows cc hazard prone areas i.e. likely to
experience severe flooding level rise and other climate change related threats, is necessary. Such
maps which should indicate designated uses and users/allotters for such areas, ought to be
available in the respective Mtaa and Wards and not only in the Planning Department of LGAs.
2.11
Participatory planning and monitoring of hazard prone areas
At present, the private and grassroots actors at Sub ward (Mtaa) and Ward levels are not
substantively engaged in the current land use planning and development control systems and
practices. Besides, there is lack of an effective system to monitor and control land development,
especially of hazardous lands. Many a time, land use changes are effected i.e. from wet land or
flood plain to building (residential commercial or institutional use, without a comprehensive
analysis of the effects and outcomes of such changes to the surrounding or existing
developments; and without seeking and incorporating the views of the local stakeholders, most
of who are likely to suffer adverse effects of changes of use.
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