STRUCTURE PLAN MANUAL (FINAL DRAFT) Mathewos Consult

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MATHEWOS Consult
Architectural, Engineering, Urban Planning, Urban Development and Urban
Management Consultants
Tele: +251-091-168 33 56; +251-011-651-38-35
P.O. Box: 17761, Addis Ababa, Ethiopia
E-mail: mathewos@[Link] or mathewosa@[Link]

LIST OF FIGURES............................................................................................................................ iii

LIST OF FORMATS.......................................................................................................................... III
LIST OF STANDARDS..................................................................................................................... IV
ACRONYMS...................................................................................................................................... V

PART I BACKGROUND STUDY......................................................................1

1. INTRODUCTION..................................................................................................................2
1.1. BACKGROUND............................................................................................................................... 2
1.2. SP IN THE CONTEXT OF ETHIOPIAN URBAN PLANNING SYSTEM......................................................3
1.3. PURPOSE OF THE MANUAL............................................................................................................ 4
1.4. METHODOLOGY............................................................................................................................ 4
1.5. HOW TO USE THE MANUAL............................................................................................................. 5
1.6. CONTENT OF THE MANUAL............................................................................................................ 5
2. REVIEW OF PRACTICES...................................................................................................6
2.1. REVIEW OF INTERNATIONAL EXPERIENCES.....................................................................................6
2.2. REVIEW OF LOCAL EXPERIENCES.................................................................................................. 8
3. CONCEPTION, GENERAL PROVISIONS AND CONSIDERATIONS..............................12
3.1. CONCEPTION AND PRINCIPLES..................................................................................................... 12
3.2. GENERAL PROVISIONS AND CONSIDERATIONS..............................................................................14
3.2.1. Data collection and Analysis provisions and considerations..............................................14
Table of contents
3.2.2. Policy provisions and considerations.................................................................................15
Title
3.2.3. Page
Linkage Considerations with Sector Plans:.......................................................................17
3.2.4. Monitoring and Evaluation Considerations........................................................................18
3.2.5. On the Preparation of Structure Plan................................................................................18
3.2.6. Management Considerations of Structure Plan Preparation..............................................19
STRUCTURE PLAN MANUAL (FINAL DRAFT) Mathewos Consult

3.2.7. Regulatory Considerations of Structure Plan.....................................................................19

3.2.8. Financing Considerations.................................................................................................. 20
3.3. URBAN LEVEL CLASSIFICATIONS.................................................................................................. 20

PART II THE PROCEDURE MANUAL..........................................................21

PHASE 1. PREPARATORY WORK, (PLANNING TO PLAN)..............................................24
PHASE 2. DATA COLLECTION AND ANALYSIS................................................................29
PHASE 3. DEVELOP STRATEGIES AND OPTIONS...........................................................42
PHASE 4. PROPOSALS OF THE STRUCTURE PLAN.......................................................44
PHASE 5. INTEGRATING PROPOSALS..............................................................................52
PHASE 6. APPRAISAL AND APPROVAL..........................................................................53
PHASE 7. IMPLEMENTATION..............................................................................................56
PHASE 8. MONITORING AND EVALUATION.....................................................................59
PART III ANNEXES............................................................................................I
ANNEX I. FORMATS............................................................................................................................. II
ANNEX II. NORMS AND STANDARDS TO BE APPLIED IN THE PREPARATION OF STRUCTURE
PLANS................................................................................................................................................ XV
REFERENCES................................................................................................................................ XXIV

LIST OF FIGURES
Fig.1. A Framework of the Trend in Ethiopian Urban Planning System
Fig.2. Structure Plan Preparation and Implementation Process

LIST OF FORMATS
Format No. 1. General Urban Data Collection & Analysis Format
Format No. 2. Stakeholders Identification and Analysis in SP Preparation Process
Format No. 3. Educational Facilities Data Collection & Analysis Format
Format No. 4. Health Facilities Data Collection & Analysis Format
Format No. 5. Cultural and Recreational Facilities Data Collection & Analysis Format
Format No. 6. Population Data Collection & Analysis Format
Format No. 7. Household Characteristics Data Collection & Analysis Format
Format No. 8. Municipal Revenue, Budget and Expenditure Data Collection & Analysis
Format
Format No. 9. Spatial Data Collection & Analysis Format
Format No. 10. Existing Land Use Data Collection & Analysis Format
Format No. 11. Infrastructure, Utilities and Transportation Data Collection & Analysis Format
Format No. 12. Open Spaces and Environmental Services
Format No. 13. Institutional Data Collection & Analysis Format

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Format No. 14. Urban Management, Governance Legal and Regulatory Aspects Data
Collection & Analysis Format
Format No. 15. Gap Identification and Indicators Format for SP Preparation
Format No. 16. Spatial Output Format for Housing Study
Format No. 17. Spatial Output Format for Environmental Study
Format No. 18. Spatial Output Format for Manufacturing and Storage Areas
Format No. 19. Spatial Output Format for Social Service

LIST OF STANDARDS
Standard 1. Streets Spacing Standard
Standard 2. Density Standards
Standard 3. Standards for Health Services
Standard 4. Standards for Education Services
Standard 5. Standards for Manufacturing Activities
Standard 6. Standards for Warehouses
Standard 7. Standards for Slaughterhouses
Standard 8. Main market Services and Structures Standard
Standard 9. Solid Waste Container Provision Standard
Standard 10. Land use Classification of Structure Plans
Standard 11. Proposed Percentage of the Respective Land Uses
Standard 12. Manpower Requirement for Preparation of Structure Plan
Standard 13. Breakdown and Average Share of Time to be Allocated for each Planning
Stage
Standard 14. Criteria for Monitoring and Evaluation
Standard 15. Standards for Amendment and Revision of Structure Plan

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ACRONYMS

AACA = Addis Ababa City Administration

ADLI = Agricultural Development Led Industrialization
ANRS = Amhara National Regional State
APO = Adama Project Office
CBOs = Community Based Organizations
CSA = Central Statistics Authority
EPCO = Ethiopian Power Corporation
FUPI = Federal Urban Planning Institute
GIS = Geographical Information System
HH = House Hold
IDP = Integrated Development Planning
KG = Kindergarten
LDP = Local Development Plan
LEDS = Local Economic Development Strategy
MDG = Millennium Development Goals
MoFA = Ministry of Federal Affairs
MSEs = Micro and Small Scale Enterprises
NA = Not Available
NGOs = Non-Governmental Organizations

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NUPI = National Urban Planning Institute

ONRS = Oromia National Regional State
ORAAMP = Office for the Revision of Addis Ababa Master Plan Project
RF = Representative Forum
RHA = Rental Housing Agency
SC = Steering Committee
SDAP = Strategic Development Action Program
SDF = Strategic Development Frame
SDS = Social Development Strategy
SNNPRS = Southern Nations, Nationalities and Peoples Regional State
SP = Structure plan
TC = Technical Committee
TNRS = Tigray National Regional State
TOR = Terms of Reference
UUGRP = Urban Upgrading and Renewal Project

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PART I

BACKGROUND
STUDY

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1. INTRODUCTION
1.1 Background
Structure Plan (SP) is a tool for implementing development policies, strategies, programs
and laws of federal and regional governments, which are mostly reflections of global
agendas, and development issues at an urban level. It is a binding technical, institutional and
policy framework for guiding development of urban centers. It is a long-term socioeconomic,
spatial, legal, and urban development and management tool. Structure Plan is also a
framework for LDPs and short term IDP.

This manual has four chapters. Chapter 1 introduces the overall purpose, objectives, and
contents of the manual with background studies consisting summary of a critical review of
local and international planning practices. It also indicates the methodologies applied in the
preparation of the manual.. Chapter 2 consists of the conceptual framework. Chapter 3
presents provisions and tools. Chapter 4 consists of the SP manual detailing eight phases:
Preparatory work; Data collection and Analysis; Developing strategies and options; Planning
and Design, integration of components of SP, Appraisal and Approval; Implementation;
Monitoring and Evaluation.

This SP manual is accompanied by a training manual, prepared to introduce SP preparation

and implementation process to those involved in urban development activities. This training
manual is prepared to give training for Trainers. Depending on the situation, consecutive
trainings should be prepared for policy makers as well as the pertinent managerial, research,
planning and technical personnel and representatives of appropriate public and private
institutions.

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1.2 SP in the Context of Ethiopian Urban Planning System.

Fig.1. A Framework of the Trend in Ethiopian Urban Planning System

Level Long Term Integrated

Regional Development Plan

Level 1 Long Term Integrated Urban Development Plan

Long Term (IDP)

Level 2
Urban Structure Plan

Level 3 IUISP UTTMP LDP LEDS SDS

(Integrated Urban (Urban Transport (Local Development (Local Economic (Social
Infrastructure and and Traffic Plan) Development Development
Service Plan) Management Plan) Strategy) Strategy)

5 years Municipal IDP

Level 4

5 years 5 years 5 years 5 years 5 years 5 years

IUISP UTTMP LDP UURP LEDS SDS

PROJECTS

In the Ethiopian Urban Planning system, SP may be conceived as a long term (10 years)
urban plan that frames the major development issues of an urban center. It is guided by a
long term (20 or more) integrated urban development plan (IUDP) that gives an overall long
term policy direction, strategies, vision and goals. The urban structure plan serves as a
citywide framework for other citywide sectoral or local plans. Alhough LDP is used as a
major tool for implementing SP, other sectoral plans (eg. UTTMP) and local plans (eg.
UUGRP) are also important tools for SP implementation.

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1.3. Purpose of the manual

The purpose of this structure plan manual is two fold. It serves as a:
1. Guide and handbook in Structure Plan preparation and implementation
2. Reference and source of information for practitioners, students, urban administrators,
municipal staff, government officials and staff of other pertinent institutions.

It is intended to bring about efficient, standardized, uniform and transparent urban planning
exercise in the country. It helps to cross reference and build planning experience through
time.

As stated above, this Manual is prepared for planning practitioners, students, urban
administrators, municipal staff, government officials and pertinent personnel of various other
institutions that are directly or indirectly involved in the process of urban planning and
development in Ethiopia., As such, it is intended to serve as a planning handbook for the
preparation, revision and implementation of structure plans. Its primary aim is to bring about
efficient, standardized, uniform and transparent urban planning exercise in the country as a
whole. It helps to build planning experience through time by contributing significantly towards
creating a platform where planning activities, results, and implementation practices could be
tested and compared with each other so that best practices could be identified and adopted
for further improvement of the practice.

1.4. Methodology
This manual was prepared largely based on lessons learnt from past local and international
planning practices. It is particularly rooted in a detailed review of international and local
planning experience focusing on structure plan preparation and implementation, IDP
process, policies and strategies, and the draft urban planning manual prepared by the
Ministry of Federal Affairs.

Relevant data from four major regions of ONRS, ANRS, TNRS and SNNPRS were collected
and analyzed To enrich the content of the manual. Municipalities and relevant institutions of
four regional capitals, namely Adama, Bahir Dar, Mekelle and Awassa were also visited to
solicit pertinent information. Checklists focusing on plan preparation, contents of plans,
approval of plans, and plan implementation, monitoring and evaluation practices were
prepared in advance and used extensively for data collection. Opinion surveys regarding the
desired directions of future actions were also collected. The primary and secondary data
thus collected were then processed and analyzed and used as a basis for the preparation of
the manual together with other findings.

In accordance with requirements of the TOR for the current task, this new manual consists of
expanded, refined and consolidated contents of the structural planning draft manual

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prepared in 2003. Some of the contents of the same manual that were found to be
appropriate for current use have been incorporated in this manual with little or no
modification.

Participatory, consultative and strategic approaches have been used in the preparation of
the manual in a manner that was very much consistent with the leading tenets of the IDP
approach. Accordingly, the 5 major phases of IDP, namely analysis, development strategies,
projects, integration and approval have been adopted. Nonetheless, to make this manual
more detailed and suitable for easy reference, the analysis component is divided into two
phases: (1) preparatory work and (2)data collection and analysis. Similarly, the approval
phase of IDP is split into three phases: (1) approval, (2) implementation, and (3) monitoring
and evaluation.

One other methodological note worth mentioning here is that it was found important to
classifiy the urban centers in the country into four categories in the process of preparation of
this manual. Respective provisions are spelt out in the manual for the different categories of
urban areas depending on their complexity.

1.5. How to use the manual

Professionals to be engaged in structure plan preparation, revision and implementation need
to refer to this manual frequently. The contents of the manual are also to be followed step by
step to arrive at the intended planning outputs. Equal importance should be given to
different parts of the manual. As complexity of structure plan increases with growing spatial
and population size of urban areas, teams working on structure plan preparation and
implementation should identify and use applicable strategies, norms and standards from the
manual. Guidelines are also provided for effectively addressing the planning issues of
special localities or situations where provisions of this manual might not be readily
applicable.

1.6. Content of the Manual

In part one, following the guidelines provided in the Federal Urban Planning Law and based
on lessons learnt from local and international experiences, this Structure Plan Manual
defines the conceptual framework, premises, contents, strategies, and standards, of
structure plan preparation and implementation within the Ethiopian context. In part two steps
and procedures to be followed in preparatory works, data collection and analysis, developing
strategies and options, developing proposals, integration of proposals and plan approval,
implementation, monitoring and evaluation are detailed. Part three presents model formats
and standards used in the SP planning process.

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2. REVIEW OF PRACTICES

2.1 Review of International Experiences

In 2003 ORAAMP undertook a review of the planning experiences of the United Kingdom,
the State of California, Sweden, the Federal Republic of Germany and South Africa based
on the availability of data and similarity with the Ethiopian situation.. The review showed that
the experiences of all the countries considered were be highly valuable for developing
structural plans for the urban areas of Ethiopia. Additional review of recent experience of IDP
in South Africa has also been undertaken. A summary of the review is presented below.

The United Kingdom: The review made by ORAAMP in 2003 showed that the Unitied
Kingdom (UK) issued a number of planning acts during the first half of the 20 th century, the
most important one being, the 1947 Town and Country Planning Act. According to this act
every county in UK was required to prepare a Structure Plan, which was to be approved by
the Secretary of State for the Environment. The county or the district/borough council may
prepare and adopt a detailed local plan, which has to be certified as being in general
conformity with the Structure Plan. Preparation of Local Plan is not compulsory; it is not
legally binding too. Structure Plans may be detailed and explicit but are not site specific.
They are policy statements or documents consisting of key diagrams that simply show broad
spatial structure of the planning area. The whole issue of planning and plan implementation
is pinned in the concept of development and development control. Not all developments are
required to seek permits as they are explicitly listed as permitted developments under the
general development order. The list of permitted developments has been frequently revised
since its introduction following the 1947 Act, and the practice has been to increase the scale
of permitted development in a move to deregulate development. The main stages of
planning are preliminary survey; preparation of draft plan; publication of the draft plan for a
six-week period of public consultation, revision of the draft plan and approval by the county
council; publication of the final draft plan and submission to the Secretary of State with
further six-week period of public comment and no objection. Implementation of structure plan
is undertaken through detailed plans for areas under intensive pressure. The other main
characteristic of planning is that public participation is one of its basic requirements.

State of California: The review of the planning experience of the State of California by
ORAAMP in 2003 shows that each city and county is required to adopt a General Plan for its
physical development. The development of land use outside the city and county, bears
relations to its land use plan. The General Plan is consistent with the constitution of the state
and is as such, required to have statements and diagrams of development policies for the
jurisdiction’s physical development, location of appropriate mixtures, timing and extent of
land use. It consists of objectives, principles, policies, standards, plan proposals and
implementation measures. The review document also showed that the components that

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make the general plan are land use, circulation, housing, conservation, noise, safety, and
open space. Specific Plans (similar to LDP in our case) serve to refine policy statements
applicable to a defined area, help in the direct regulation of land use and bringing together
policies and regulations into a focused development scheme. The state of California follows
the following general procedures in preparation of plans: Preparing work program,
determination of current context, conducting analysis and formulating goals, developing,
evaluating and adopting plans, monitoring and implementation.

Sweden: As stated earlier, the planning experience of Sweden was one of the practices
reviewed by ORAAMP in 2003. The review document shows that although the Swedish
government has strong control over the supply or use of land, the planning activity in the
country is considerably decentralized. Overall, there are three levels of planning in Sweden:
central, regional and local. Each planning level deals with specific aspects of development
issues. Public participation is critical, and is one of the main requirements in plan preparation
and implementation. Provisions of national planning priorities with legal statutes are given as
a basis for plan preparation. Strong emphasis is given to social and economic criteria in
planning.

Germany: According to the same review conducted by ORAAMP, the main plans and
legislations that apply in Germany are: Federal Comprehensive Regional Planning Law;
Federal Building Law; Urban Renewal and Development Act; Preparatory Land-use plan,
and the Legally binding land-use Plan. The legally binding land use plan is similar to
Structure Plan and is as such, a Zoning Plan which shows 4 land use categories: housing,
mixed building areas, manufacturing/industrial areas, and special areas. Presented on
1:2000 scale, it specifies types and intensities of, land use,, height of buildings, site
occupancy index, floor space index, building construction method, and building lines with
detailed provision for car parking. Planning procedure has three phases: the planning,
approval, and enforcement phases.

South Africa: According to the planning act in South Africa, IDP is a legally required
planning practice and is above all plans at local government level. The five years planning
period is in congruence with the council election to be undertaken every five years. Its
preparation period ranges from 6 to 9 months. IDP is a planning process through which
municipalities prepare a strategic development plan. It is also principal planning process
which informs and guides planning, budgeting, management and decision making in a
municipality. IDP has five core components: analysis, development of strategies, projects,
integration and approval. The integration part consists of spatial development framework,
disaster management plan, integrated financial management plan, other integrated
programs and key performance indicators and targets. IDP helps to use resources effectively
and to speed up service delivery. It also plays a significant role in attracting more funds for

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development, strengthening democracy, and facilitating institutional coordination. Its key

stakeholders are sectoral institutions and other relevant governmental organizations. In the
IDP process the public is the decision maker and professionals are facilitators of the decision
making s process.

Our review of aspects of international planning experience above shows that developed
countries are preoccupied with adjusting regulatory aspects and are as such, using long-
term plans. The scale of permitted development was increased in a move to deregulate
development. Components of structure plan have been minimized through time. In Germany,
for instance such plans have only 4 components. In Britain structure plans represent only
schematic diagram of land uses that are not site specific. Structure Plan is made to consist
of broad spatial organization, policies and strategies of a planning area (urban area defined
to be covered by the planning task). In all cases, preparation of SP or general plans has
become more flexible, increasingly action-oriented and participatory.

2.2 Review of Local Experiences

Within the brief urban planning experience in Ethiopia in the last few decades, a lot has been
gained in terms of practical applications in the field both from local and international
practices. Review of these planning experiences shows that most local plans were
undertaken through the master planning approach. NUPI, now renamed as FUPI, has
prepared Master and Development plans with 20 and 10 years planning periods respectively
for more than 120 urban areas to date. These plans served as key urban development
instruments and contributed a lot in managing, and regulating development activities, though
they are criticized as being rigid, and focusing more on physical aspects only as they attempt
to address existing gaps and future demands. In these plans, participatory planning was
considered as simple familiarization of the already finalized urban plans to stakeholders.

Learning from previous experiences, new planning approaches have been adopted in the
recent projects of the revision of the Addis Ababa Master Plan (1999-2002 by ORAAMP) and
the Adama Master Plan (2002-2004 by APO and PACE Consult), and the ongoing master
plan revision tasks in Dire Dawa, Mekelle, and Awassa through the IDP approach.

A major paradigm shift was made by ORAAMP when it introduced and adopted the
Structure-Strategic-Action planning approach. The task dealt with three spatial levels: the
national/international level as well as the hinterland and city levels. The task began with the
collection and analysis of data on selected planning issues and identification of problems,
constraints and opportunities. These were then presented to stakeholders at various levels
in order to draft the visions, goals, objectives and strategies for each component of the plan
through participatory approach. The components were then integrated within the major
development frameworks and the legally binding statuary Structure Plan. The plan consisted

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of land use proposals, socioeconomic recommendations, regulations, norms and standards.

An urban management system was also conceived and drafted with the aim of ensuring the
proper implementation of the proposals and bringing about improved service delivery. The
planning issues/ components were then prioritized and Strategic Development Frame (SDF)
and Strategic Development Action Plans (SDAP) were prepared as components of the SP
implementation strategy.

Based on the lessons learnt from the experience of ORAAMP, an issue based, Structure-
Strategic Action oriented planning approach was adopted in the revision of the Adama
Master Plan. The revision work covered three main spatial levels; the city, its immediate
hinterland and the broader region within which Adama is situated.. Findings from general
investigations made at the three levels were then summarized and used as basis for
identifying 9 and 7 planning issues at the city and the hinterland levels respectively thereby
constituting the main components of the Adama Structure Plan. These components were
finally integrated to draft the Adama Structure Plan and its fifteen years Strategic
Development Frame (SDF). Recommendations from this SDF were then detailed and
prioritized and the city’s five years Strategic Development Action Program (SDAP) was
prepared. Similarly at the hinterland level, nine issue based planning studies were made on
three Woredas. Strategies were then recommended, based on parts of the hinterland for
which SDF was prepared. These were then further detailed and formulated into Strategic
Development Action Program for each of the four Woredas constituting the hinterland of
Adama.

The experience from the ongoing implementation of Integrated Development Plan process,
in Mekelle, Dire Dawa, Awassa, Bahir Dar and Adigrat, which have been designated as pilot
cities for the adoption of IDP, is too early to tell. However, it is good to note here that the
Federal Urban Planning Institute is coordinating these pilot projects in cooperation with the
local staff of the respective municipalities.

In general, the Addis Ababa and Adama master plan revision tasks have shown a shift to
prioritized, strategic and flexible issue based planning approach in sharp contrast to the
wholesale un-prioritized land use approach of master planning. Social, economic and other
development issues were given more focus in both cases. Technical advisory committees
(TAC), supervisory boards and counter part teams were established in both cases to
facilitate monitoring and Evaluation.

A participatory planning process that relied considerably on the comments and suggestions
of all the relevant key stakeholders at all levels of plan formulation and implementation was
pursued in both Addis Ababa and Adama. This was found to be important and a major
breakthrough in the planning experience of Ethiopia as a whole. Addis Ababa’s revised plan

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was approved in 2003, exactly 1 year after its was prepared. The draft proclamation which
was prepared by ORAAMP was improved and finalized to ensure the approval of the revised
plan. Subsequent regulations were also issued and implemented to establish Kifle Ketemas
(Sub-cities) and Kebele Administrations. The revised Adama master plan is still awaiting
official approval even though it was submitted in January 2004.

Up to now, Ethiopia has no standards for the preparation of structure plans. In plan
preparation processes, professionals rely on proxy variables that lead them to approximate
estimation of needs and demands for housing and services. In addition to these, service
standards of sector organizations such as health and education are used in the formulation
of structure plans and their components. In general, the standards of the components that
appear on structure plans are not uniform. This is for instance the case as regards the
structural plans of Addis Ababa and Adama, for which area specific or tailored standards
were prepared due to the absence of national standards.

The preparation of structural plans in Ethiopia has also other critical challenges worth
mentioning here. As the experiences of both Addis Ababa and Adama indicate, shortage of
qualified planning professionals and other relevant staff as well as high resource
requirement were the leading challenges faced during the preparation of structural plans. It
is indisputable that the overwhelming majority of the municipalities in Ethiopia simply lack the
capacity to overcome such critical challenges.

The lessons learnt from the local planning practices discussed above inidicate that there is a
need for a more flexible planning approach in Ethiopia. The structure-strategic action
oriented planning approaches adopted for Addis Ababa and Adama are found to be
considerably more development oriented as compared to previous master plans. They are
simplified and flexible, and therefore could be easily adapted to the current situation of the
country. Our experience thus far indicates that the monitoring, evaluation, and approval of
structural are critical issues that need to be given emphasis. The recently introduced IDP
approach is also expected to be practical in helping to solve the critical problems of our
urban areas. However, the fact remains that it needs to be contextualized to the Ethiopian
reality. It is expected that with the use of this manual human resource and financial
requirement for plan preparation will be significantly minimized and also structure plan
preparation and implementation will be much simpler and considerably less taxing in terms
of time and resources.

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Example of Structure Plan

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3. CONCEPTION, GENERAL PROVISIONS AND CONSIDERATIONS

3.1 Conception and principles

Definition, relevance, and content of Structure plan

Structure Plan is a binding technical, institutional and policy framework for guiding the long-
term development of a designated city or an urban region. It is a long-term socioeconomic,
spatial and urban management vision and statutory tool for urban development and a basis
for other urban development plans. It is a plan that guides and gives framework to ensure a
coordinated and sustainable development. It is an umbrella urban development plan that
serves as a bridge between wide area or regional plans and LDPs.

Relevance and purpose

Structure plan is relevant in that it is a technical, institutional and policy framework, which
with the active participation of the relevant urban actors, systematically identifies, prioritizes
and addresses socioeconomic and spatial urban development issues. It outlines intervention
approaches and implementation programs to be undertaken to achieve city-wide and at
hinterland and regional levels. It is one of the basic urban management tools, which
professionals involved in urban development planning and implementation should use in
their day-to-day activities.

Context and contents

Contextually, Structure plan is strongly linked with global and national plans, strategies and
policies, sub-regional and regional plans on the one hand and Sectoral Development Plans,
Local Development Plans and Integrated Infrastructure Plan, on the other hand. It consists of
a Spatial Development Plan which defines the general locations and spatial frames for the
physical use of major urban functions. It links the city proper with its hinterland and wider
region. It is also the spatial expression of assumed and expected economic and social
developments which are results of procedures and steps defined in this manual.

SP unlike master plans that specify detailed allocation of land for each and every use,
indicates the distribution and extent of major land use categories. It describes levels of
intensity and allowable uses. It also shows limited non-permitted uses in a certain locality to
make these components as flexible as possible without affecting the wellbeing and security
of the urban population. The level of uses to be represented on SP varies in the level of
details depending on the size of the urban area. In Small and Medium Towns, SP could be
more detailed. Additionally, a structure plan must be clear for interpretation. Provisions
regarding adjacency and extent of land use classes should be limited, details being
presented in the Local Development Plans.

SP consists of urban management recommendations for solving problems in governance

and service delivery. It consists of regulations required for its approval and implementation.

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The types of regulations to be prepared in structure plan preparation vary depending on the
nature and complexity of the urban center, and are presented in subsequent sections of this
manual. The major and subcomponents are presented in table 10.

Relationship between Structure Plan, LDP, IDP (Refer to Figure 1).

IDP is about a municipality identifying its priority issues/problems, determining its vision,
objectives, and strategies followed by identification of projects to address the issues. A very
critical stage of IDP is linking planning to municipal budget which has been out of picture
except for the Addis Ababa and Adama revised master plans where there were attempts to
link the plans with budgets. In an IDP, the local government prioritizes planned activities and
programs to be executed by allocating fund, the required work force, establishing a system
and mechanism for plan implementation. IDP also consists of integration of sectoral plan
with structure plan, LDP and other development plans

Key principles of Structure Plan. SP is guided by a number of key development principles.

These include:

SP is strategic: SP with the active participation of relevant urban actors, should

systematically identify, prioritize and address socioeconomic and environmental urban
development issues; and outline intervention approaches and implementation programs to
be undertaken to achieve these. It should provide synergistic spatial and socioeconomic
opportunities with multiplier effects for systematically addressing prioritized urban issues.

SP is somprehensive and seeks urban - rural harmony: SP covers whole or large area of
an urban center and broad and general development issues. SP provides spatial
opportunities for socioeconomic and physical linkages with the hinterland and promotes
overall regional development. It also defines ways and means of alleviating urban-rural
conflicts expressed in the encroachment of urban areas into their rural hinterlands, the use
and abuses of resources (water, minerals, quarries etc) conservation issues, use of land for
waste disposal and land transformation issues.

SP is dynamic, flexible and sustainable: SP should serve as a tool for bringing about
investment and the envisioned sustainable socioeconomic development of the urban area,
the hinterland and the region. It is also adaptable through LDPs to different realities hence
faces minimized uncertainties. Structure plan should be an effective instrument that can
accommodate major changes in the socioeconomic, environmental and physical contexts.
Planned use of resources should be promoted so that the needs of future generation will not
be compromised. It should bring about balance between nature and development; core and
periphery, short and long-term developments.

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SP is efficient, effective and realistic: The major functions of the different spatial zones
and land use in the urban center should be structured to maximize productivity, and the
optimum uses of locations and resources. The major functions of different spatial zones and
land use in the city should bring about investment and the envisioned sustainable
socioeconomic development of the urban center at minimum cost. SP should also fit within
the physical, institutional and financial framework of the city or the urban region in order to
become practicable.

SP is participatory and equitable: SP beginning from preparation to implementation

should be consultative and participatory. It should enhance equal development opportunities
for all social groups, and create a balance between the different spatial and socioeconomic
needs of the major urban actors, and incorporate the general consensus.

3.2. General Provisions and Considerations

This section details out general technical strategies, linkages of SP with federal, and regional
policies, strategies, programs, laws, regional and hinterland level plans, inter-relating
strategies, strategies for monitoring and evaluation and for making SP more flexible. These
provisions and tools need to be applied by professionals in the preparation and
implementation of SP.

3.2.1 Data collection and Analysis provisions and considerations

General technical strategies that should be adopted in the preparation of SP are presented
below.
 Undertake a focused data collection and analysis system.
 The data to be collected should be identified and prioritized before the
commencement of the actual field work
 Generally data collection should be economical. It should be undertaken within a
short period of time as much as possible, and it needs to focus on general planning
issues. An incremental approach should be adopted instead of a whole-sale data
collection system.
 As much as possible, only the minimum amount of data required should be
collected.. Technicians should focus on trying to obtain processed and secondary
data.
 Site observation or a rapid appraisal of a maximum of one month should be used to
collect spatial and physical data. These data should be supported by secondary data
from local, regional, and federal sources

3.2.2. Policy provisions and considerations

Linkages of SP with federal and regional policies, strategies, programs and laws : SP is a
tool for implementing federal and regional government development policies, strategies,

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programs and laws which are mostly reflections of global development issues and agendas.
Professionals involved in SP preparation and implementation need to undertake review of all
relevant policies, strategies, laws, regulations, and decrees, scale down and incorporate
their recommendations and prepare proposals within these frameworks. In cases where
there is a need to change or modify existing or desired developments, they should forward
new recommendations for their rectification. The ADLI, the industry strategy, the national
urban development policy, the existing urban planning law, are summarized below. In
addition to these professionals need to acquaint themselves with the MDG, Poverty
reduction strategy; Industrial development strategy and others and adopt ideas in SP
preparation and implementation.

The National Urban Development Policy: The main theme of the National Urban
Development policy document is founded on ADLI, Industry Strategy, federalism,
democratization and civil service reform. It is stated in the document that the speed, extent
and focus of urban development is dependent on rural development and vice versa.
According to the policy document, the main challenges facing urban areas in the country are
poorly developed social and physical infrastructure; shortage and deterioration of housing;
lack of recreation areas, inadequate municipal waste management; absence of well
integrated urban-rural linkage; unbalanced urban growth and weakly developed national and
regional urban systems. The policy gives key emphasis to urban-rural and urban-urban
linkages. It emphasizes the importance of democracy and good governance for sustainable
urban development. Problems of good governance reflected widely in the lack of
accountability, transparency and efficiency among municipal authorities and the sheer of
public participation in the decision making process are pointed out as the main obstacles for
economic development. Facilitating the participation of private developers and of the wider
public in local economic development issues, establishing accountability and the rule of law,
provision of autonomy and power on municipal finance and expenditure to cities are the
other main areas of concern in this policy document.

The overall vision of the policy is to ensure the growth and development of Ethiopian urban
centers is guided by plans and to make the cities and towns competitive centers of
integrated and sustainable development that are sufficiently responsive to the needs of their
inhabitants. The policy aims at enabling cities and towns to function as generators of wealth
not only for their inhabitants but also for the rural populations found in their immediate
hinterlands and beyond. To do so cities and towns in the nation as a whole are expected to
serve as centres of commerce, industry and the services that are essential to bring about
holistic and sustainable economic development. The recommended policy directions are
aimed at enabling cities play these roles and bringing about fast and equitable development
in general. The policy document spells out specific policy recommendations for Micro and
Small Scale Enterprises (MSE), housing development, facilitating land and infrastructure

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delivery, social services, urban grading, planning and environmental protection, democracy,
good governance and capacity building. The policy document also specifies the roles that
federal, regional and local governments are expected to play in order to arrive at the desired
integrated urban and rural development goals. This policy document should be referred to by
planners during plan preparation and implementation.

The Draft Federal Urban Planning Manual: The TOR for the preparation of this SP manual
states that the task involves mainly review, consolidation and refinement (including needed
additions) of what has so far been developed in the draft Federal Planning Manual by the
Ministry of Federal Affairs. The study team has therefore adopted a strategy that can help it
identify the weaknesses and gaps of the draft urban planning and implementation manual
and accordingly addressed them and finalized the new manual. The major weaknesses
observed in the draft manual are: lack of a national planning frame, focus on the main
technical planning and design aspects, limited provisions for plan implementation, lack of
clarity and simplicity.

Agricultural Development Led Industrialization (ADLI): Ethiopia has adopted Agricultural

Development Led Industrialization (ADLI) as a principal strategy for achieving sustainable
economic development. The strategy aims at increasing rural productivity focusing on export
goods that create processing industries in urban areas. Cities and towns are expected to
provide market, services and investment opportunities for their rural counter parts which in
turn provide supplies to urban areas.

The Draft Urban Planning Law: This law is cited as ‘the federal urban planning proclamation
2004’. This law is applicable to all urban centers throughout the country. Nonetheless, it has
a provision, which allows its application to take place within the context of the time and
conditions of the locality concerned. The objectives of the law are to establish legal
framework, regulate and facilitate development and define duties and responsibilities of
local, regional and federal level planning related organs. The law in consecutive parts
consists of provisions for initiation and preparation of urban plans; plan approval, publicity,
implementation and revision; development authorization; land information; urban
redevelopment; development freeze and land acquisition; statuary allocation of powers and
duties and miscellaneous provisions. This document is highly valuable to all types of
planning activities. Professionals and administrators involved in development activities need
to refer to this law. In the preparation and implementation of SP professionals should
frequently refer to this law.

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3.2.3. Linkage Considerations with Sector Plans:

SP preparation and implementation is a participatory process where sector organizations
and institutions have interest, and also play a role. All sectoral physical and socioeconomic
development programs should be integrated both at the planning and implementation stages
of SP. At the implementation stage, SP proposals should be scaled down and detailed out in
LDPs. This again shall be prioritized and incorporated in fiscal plans of sector institutions
and municipalities together with the required annual budgets.

Linkages between Regional and Hinterland Scope of Study and a Structure Plan:
Professionals dealing with the task of preparation of structure plans should review
documents prepared by regional scope study teams. The teams shall also hold discussion
and agree as to what the implications and impacts of the region on the city proper are and
how such issues shall be incorporated at SP level. It should be noted that where there is no
study with a regional scope professionals working on SP preparation task shall define
appropriate criteria for delineating the region and undertake a brief study on the issues listed
above and summarize their findings, scale down and incorporate them in the SP.

The following are the major linkages between the regional scope of study and structure plan
which planners should take into consideration:
 The housing component of the SP shall consider the pattern of net migration into the
urban center by considering the pull and push factors; the rates of population growth
and the potential for commuting;
 The commerce component of the SP shall consider mainly issue of urban-urban and
urban - rural linkages. In this case, public sector linkages (sphere of administrative
influence and relevant instructions); economic linkage (market, financial, production,
and consumption linkages) are the most important ones;
 The environment, green area and open spaces component of the SP shall consider
the situation of fuel and construction wood; watershed management issues; potential
water supply sources, geological construction materials, recreation areas and parks,
waste management practices; urban agriculture and conservation area;
 The services section of the SP shall consider the adequacy of services such as
health, education, postal service and telecommunication services;
 The manufacturing and storage component of SP shall consider the rural economic
structure; agro-ecological potential; the potential for export earning; and factors that
facilitate forward and back ward linkages in both urban and rural areas;
 The transport and infrastructure elements of the SP shall consider assumed modes
of transport in the regional urban system and network linkages to the principal urban
area in view of locational significance and distributional aspects. Particularly, road
transport is one important element made of modern transport applicable to all levels

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of towns with differential levels of design. Along with modern vehicles transport,
large proportion of intra-urban and rural-urban linkage is affected by walking.
Therefore, pedestrian access along the road network and animal tracks at the
important rural-urban entry points are suggested to be of crucial consideration.
Moreover, in some fast growing cities intermediate transport is emerging as key
transport means. Therefore, it needs to be incorporated in the structure plan in
response to the level of interaction observed.

3.2.4. Monitoring and Evaluation Considerations

Monitoring and evaluation is an important stage in SP preparation and implementation. The
following activities should be undertaken to ensure proper monitoring and evaluation
 A proper institutional arrangement should be established for monitoring and
evaluation.
 A clear working and reporting system should be defined to facilitate SP preparation,
implementation, monitoring and evaluation.
 Appropriate timing and program for plan monitoring and evaluation should be
identified.
 Monitoring and evaluation should be undertaken using the criteria defined for the
same purpose in table 22 of this manual
 Feedbacks from monitoring and evaluation should be provided for appropriate
professionals and decision makers within a maximum of 1 month
 The relevant section should follow-up and ensure that such feedbacks are
incorporated appropriately
 Such feedbacks should be well documented

3.2.5 On the Preparation of Structure Plan

Give general land use proposals: At the structure plan level, the land use proposal should be
general especially for the second, third and fourth level urban centers. Large scale projects
could be presented directly in the structure plan for these levels of urban areas. General
landuse proposals presented in the structure plan to be implemented should be followed by
LDPs. For grade 1 urban areas SP can be more detailed, and implemented directly without
LDPs. Professionals involved in SP preparation should try as much as practicable to bring
about flexibility while at the same time upholding the health, safety and security of the urban
population as priority issues.

Give Only Prohibited Land uses: SP should be as flexible and practicable as possible while
adequately meeting the demands that arise during the implementation period. Legends for
SP should be accompanied by lists of only prohibited uses. In all cases, there should be

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provisions that allow the use of areas designated for different land uses for compatible
functions.

Give Standards with ranges: This applies only to the regulation developed at the SP level
like the building height regulation, road width etc. This allows flexibility in implementation.

Reserve Land for Unforeseen Activities: proposals made on the SP are based on our current
knowledge and on our prediction of future needs. Thus while ensuring that present needs
are satisfactorily met, it is essential to reserve adequate land to effectively meet future
demands. At least 10 % of the expansion area should be reserved for unforeseen
developments.

3.2.6 Management Considerations of Structure Plan Preparation

For small urban centers of grade one, preparation of SP could be managed by the municipal
managers and/or the mayors. In grade two and three cities, a technical committee consisting
of 5-7 members could manage the whole process. Members of this committee should be
appointed from the city administration, local branch offices of sectoral government
institutions, and from other appropriate public and private organizations. At higher levels, city
plan preparation should be managed at two levels: A technical advisory committee and a
supervisory board. The technical advisory committee should consist of all heads of technical
departments of the municipality. The supervisory board shall consist of members from higher
political bodies at the zonal and regional levels. In addition to this, a public advisory
committee should be established for urban areas at all level to reflect the views of the
community.

3.2.7 Regulatory Considerations of Structure Plan

SP should be approved legally. Regulation for approval shall be drafted by the plan
preparation team in collaboration with lawyer/s. Approval document should at least consist of
provisions for contents of the structure plan, implementation procedure, updating, revision of
the SP, accountability, applicable laws for penalization in case of violation of contents the
SP. SP should be presented for approval to the governmental institution that initiated its
preparation. Plan approval should be effected by issuing a proclamation, a regulation or a
legal notice. which SP should also be accompanied by the required regulation for proper
implementation of its components. Higher grade urban centers including grade 2 and 3 cities
and towns need to have planning, height, and density regulations, and building permits. In
lower level towns standard plans could be issued for regulating residential developments. In
addition to these, minimum provisions for plot coverage, setback, Floor Area Ratio and
density levels need to be developed and submitted as accompanying regulatory provisions.

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3.2.8 Financing Considerations

Structure plan preparation needs a lot of finance. At the plan initiation stage, financing
options should be looked at in detail as indicated in section 3 of this manual). Appropriate
Financing mechanisms should also be reviewed and forwarded for the implementation of the
SP. Such financing schemes should at least consist of 15-35% contribution from the public.
The following possibilities shall be assessed for financing preparation, revision and
implementation of a SP.
 Gradual payment from the public
 NGOs, CBOs,
 Grants and loan
 Block grants from the Federal government
 Allocation of budget by the Regional government

The required budget shall be prepared based on appropriate costing mechanisms. A project
document consisting of intended activities, and financial requirements should be prepared
and presented to all stakeholders, and donors. This document shall be used as a basis for
calculating annual budgets.

3.3. Urban Level Classifications

Level of Structure Plan, type of urban planning standards to be applied as well as type and
contents of urban data to be collected vary among different levels of urban centers.
Accordingly, to facilitate this process, five levels of urban centers are distinguished based on
population size and presented hereunder.
 Small Towns ---------- with population from 2001 to 20,000
 Medium Towns ---------- with population of 20,001-50,000
 Large Towns ---------- with population 50,001 – 100,000
 Cities ----------- with population 100,001 – 1,000,000
 Metropolitans ----------- with population over one million

For Small Towns, a SP needs to be prepared in a way that can be implemented directly.
Thus, SP studies in these urban centers should be detailed enough. That means,
 Socio-economic and property data should be collected and analyzed in a way that
would serve as basis for subsequent practical implementation measures
 Spatial plans should be detail enough to guide specific development activities in
the area of land and infrastructure development
 For Small Towns, under normal considerations, the SP coincides with the LDP as
there might be no need for differentiation.

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PART II

THE
PROCEDURE
MANUAL

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Introduction
The previous part of this manual gives the background, concepts, principles, standards and
considerations within which to apply the manual. This part of the manual gives a road map
that guides users through eight phases of planning, each phase broken down into major
tasks and the tasks into detailed activities and actions. Each task is followed by ‘Tips’ (to
expose approaches and examples how to do the task)
The eight planning phases are:
 Preparatory Phase
 Data Collection and Analysis Phase
 Strategies Phase
 Proposals Phase
 Integration Phase
 Appraisal and Approval Phase
 Implementation Phase
 Monitoring and Evaluation Phase

At the end of each phase expected deliverables and key checkup questions have been
included. This will enable the involved planners to monitor and evaluate each planning
phase and check whether that particular phase has met its objectives before proceeding to
the next phase.

Here it seems important to note that the width and breadth of preparatory works in this
regard depends on complexity of the urban systems in a particular city/town. Bearing this in
mind, the following steps are aimed to provide a general applicable sequence for the
process of preparing Structure Plan (SP).

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Fig. 2. Structure Plan Preparation and Implementation Process

Preparatory work and

Initiation

Data Collection and Analysis

Strategies and Options

Proposals

Integration

Approval

Implementation

Monitoring and Evaluation

Feedback and Revision

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PHASE 1. PREPARATORY WORK, (PLANNING TO PLAN)

This phase deals with the prerequisites that should be met before the commencement of the
actual planning activities. The major tasks to be undertaken are; initiating the panning, Rapid
assessment, TOR preparation, and launching project

TASK 1. CONDUCT A NEEDS ASSESSMENT AND INITIATE PLANNING

The aim of the needs assessment is to determine whether there is a need for a new plan or for a
revision of an existing plan and to examine the extent to which such a need is well founded.
Activity 1: Conduct a needs assessment
 Review reported and registered needs of developers, the community and the government
that could not be satisfied through rezoning and minor adjustments
 Check whether the existing plan is outdated, needs revision, or whether the urban area
has no plan and needs preparation of a new structure plan.
 Review other plans, studies and ongoing projects that have direct impact on SP
(Examples are regional policies, infrastructure plan transport plan and projects, major
investment programs, etc)
 Check if all expansion areas are already taken-up or saturated.
 Check whether there are abrupt changes in the socioeconomic and political situation of
the urban center, its immediate hinterland and wider region. Look out for such
developments as population explosion due to highly accelerated migration or a massive
relocation of people, a significant increase in the number of new business establishments,
change in the economic base or the administrative status of the urban center
 Identify the poverty level and the impact of HIV/AIDS
 Study trends in natural hazard or reported warnings
 Collect opinion from knowledgeable persons and professional societies, the elderly,
community representatives, politicians, etc.
 Identify the core issues of the 5 years PASDEP for urban development
 Identify the core issues of the Ethiopian urban sector MDGs
 Summarize and present the findings of the study
Activity 2: Initiate planning
 Document Formal decisions to be used as a basis for the next tasks
 Make Public announcement about initiation for planning to make the public aware of the
process, using mass media (local news papers, radio, and television) and also placing
posters at public meeting places.
 Send Notice Of Preparation (NOP) letters to individuals, institutions and organizations who
could contribute to the plan preparation process;
 Make brief presentations of the draft project needs, vision, objectives to the stakeholders
and allow thorough discussions
 Get minutes of understanding/expression of commitment signed by all parties

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Activity 3: Conduct rapid assessment on data to be collected and analyzed

Map general indications of existing land use, natural environment and existing major
infrastructure capacity,
Collect opinion of political leaders to assess the levels of their commitment and to understand
the current status and future trends of the overall policy environment
Get a general information on population size and social characteristics,
Tabulate the total housing stock by type and quality
Assess the economic conditions and potentials

Activity 4: Decide on the type of planning or revision to adopt

Compile findings of need assessment and possible planning options and present at various
levels and obtain decision on type of planning activity to be undertaken

TASK 2. PREPARE PLANNING PROGRAM OR THE TERMS OF

REFERENCE (TOR) FOR PLANNING

Activity 1: Adopt a general frame for development

Undertake consultative meetings with the electorate
Undertake consultative meetings with the people and stakeholders by employing
appropriate methods to record public opinions.
Announce the general frames formulated to the public
Present the vision for approval to the local council
Activity 2: Set Visions and Objectives, and Develop work plan
Undertake a preliminary assessment of the current situation led by a baseline study
Identify major problems
Define objectives for the urban planning activities to be undertaken
General objectives of urban plans fall within the following:
To ensure the orderly development of urban areas
To provide a good living environment for all by ensuring safety, amenity, accessibility,
energy conservation and environmental protection
Providing a safe healthy, useable, serviceable, pleasant and easily maintained
environment for all commercial, industrial, civic, and community land uses. In
addition its aim is to ensure that the various land use categories are not
adversely affected by incompatible neighboring land use
Ensuring that any conflicting environments of different land uses are reconciled
particularly among mixed land uses,

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TASK 3. DETERMINE DATA COLLECTION TOOLS

Activity 1: Determine the type of data to be collected
 Study the main characteristics and problems of the urban area from the TOR and
secondary data
 Determine the list of components to be treated
 Determine the type of data required depending on the list of components and
planning issues to be treated
Activity 2: Determine method of data collection and analysis
Primary data:
 Conduct site observation based on a checklist and note down the findings on
appropriate scale maps
 Carry out discussions with staff of relevant urban institutions
 Conduct meetings with the public
 Undertake discussions with residents
 Undertake discussion with professionals and technicians
Secondary data:
 Identify the data needed and their sources
 Collect relevant data from various institutions
Activity 3: Prepare data collection formats
This section consists of different formats to be utilized to collect and present required physical
and socioeconomic data.

Technicians dealing with plan preparation should first decide on what type of data they are going
to collect. Depending on these, the methods listed below could be used.
 Checklists
 Structured interviews
 Questionnaires (this should be used for selected issues)
 Site observations of spatial and physical components should be indicated using
symbols. These data should later on be incorporated into appropriate scale maps
depending on the size and complexity of the town using the land use coding system
shown in table 12 above.
 Providing orderly, phased and progressive development of land in urban areas,
preserving amenities on that land and promoting environmental control and socio-
economic development,
 Promoting equity and efficiency in resource use
Activity 4: Set scope of the work
 Define the spatial limits of the area to be treated
 Define the number of components to be treated and their scope

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 Set time frame for activities

 Define expected outputs and levels of details to be achieved
Activity 5: Determine Implementation tools
 Define what is to be done
 Formulate objectives, visions, main strategies, expected outputs, implementation
considerations
 Determine plan preparation or revision period with time plan for critical components of
the planning tasks as per the process outline
 Determine institutional duties, roles and responsibilities to carry out the planning study
 Indicate funding sources to carry out the study
 Identify who will control the work progress of the study team: technical and
professional groups, public advisory, public electorates or representatives, the
community
 Determine key monitoring and evaluation considerations
 Determine key standards for the content and quality of the outputs

TASK 4. LAUNCH THE PROJECT

Activity 1: Assign task force
 Study options for SP preparation (the following could be considered)
 Commissioning individual, private, government or quasi-government
consultant/s
 Local municipal professionals or staff of the regional government
 Partnership with public or private bodies or both based on proper definition of
tasks, timeframe and clarification of roles (who does what in the process);
 Representatives of political
A planning committee parties
(team) to be created by bringing together professionals
 Investors
within municipalities and/or city administration
 Representatives
Or combinationofofcommunity groups
these and other options
 Representatives
 Develop of religious
criteria and evaluate the groups
options
Technical
Presentcommittees
results with pros/cons for decision to appropriate body
Members of these the
 Mobilize committees
required will be drawn from the staff or representatives of the following:
resources.
 Sectorthe
 Follow-up and technical institutions: Infrastructure, Utilities, Education. Health,
result
Agriculture, Industry, Trade etc.
Activity 2: Setup steering committee, technical committee and representative
 Professional groups
forums
 Associations
Setting up of steering and technical committee is required for only grades one and two urban
 Investors
centers, while representative forums are required for all the categories and the process of
 Representative forum: could be organized at different stages as required in due course of
selection is recommended below.
the planning process. The following are the activities recommended to be undertaken
Members for Steering Committee, Technical Committee and Representative Forum should
 Brainstorming on list of people, and groups to be represented based on defined
consist of at least the following:
criteria. These criteria needs to include at least levels of involvement, roles to be
 Steering committee members
played, and expectations of stakeholders.
 Main government and regional institutions (decision makers)
 Prioritizing in accordance with the criteria. The prioritization shall depend on
proper evaluation of the results or grades
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Tips to the Tasks

If an urban area has a specialized function, say if it is an industrial, a resort, archeological center, or
if it is a city with any other specialization, the following activities need to be undertaken to identify the
components of the structure plan and their proportion, it is essential to:
 study its climatic character (whether it is hot ,arid, windy, cold, etc)
 identify and analyze its major function: commercial, industrial, recreation, resort, historical,
archaeological, farming, military, administrative or any other function
 study its topography and other physical characteristics such as water bodies, forest, farms,
recreation areas and other appropriate criteria
 assess its existing and future socioeconomic and growth prospects
 assess the attention give to it by Regional and Federal governments
 examine the status of the human and natural resources of its hinterland
 study the nature and implications of its location
Findings of these studies should be analyzed, and based on the results; components of the SP for
the specific urban center shall be defined.
Major Deliverables
 Rapid assessment results
 TOR for the project
 Responsible body for the planning assigned
Key Checkup Questions
 Are the visions & objectives shared?
 Does the Rapid Assessment result justify launching of the project?
 Have the necessary Resources been mobilized?

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PHASE 2. DATA COLLECTION AND ANALYSIS

The purpose of this phase is to gain adequate knowledge on the existing situation to help
planners identify the critical issues that should be addressed in order to meet the set vision
and objectives. Da` `ta to be collected for Structure Plan preparation should be general. It
should also focus more on secondary data sources. Primary data collection shall be
undertaken through a rapid appraisal process. Such a process requires the participation of a
team of professionals with different disciplinary backgrounds Different forums should also be
organized to gather data from all stakeholders.

The major types of data to be collected and analyzed include facts and figures on
physical/spatial, environmental, socioeconomic institutional, financial, and legal issues. This
can be done with the help of standard forms that can facilitate the collection and
presentation of the required physical and socioeconomic data. Note the following key points:
 As much as practicable use data of previous studies or data base
 Start from existing land use and continue to details in accordance with arising
needs as the study continues
 If there is GIS and/or cadastre use them as base for data collection and
incorporation
 Prepare a soft/hard copy of the collected data and handover to the information
center or central data bank to be used as information source for future planning
activities

TASK 1. DETERMINE DATA COLLECTION TOOLS

Activity 3: Prepare data collection formats
Activity 1: Determine the type of data to be collected
Technicians dealing with plan preparation should first decide on the type of data that
 Study the main characteristics and problems of the urban area from the TOR
they would be collecting. Depending on this the methods listed below could be used.
and secondary data
 Checklists
 Determine the list of components to be treated
 Structured interviews
 Determine the type
Tipsoftodata
therequired depending on the list of components and
Tasks (this
 Questionnaires should be used for selected issues)
If an urban area has a different character say if it an industrial, a resort, archeological,
planning issues to be treated
any
or Siteother
observations of the
special use spatial and physical
following activities components should be to
need to be undertaken indicated
identify
Activity 2: Determine the method of data collection and analysis
using symbols.
components of structure These
plan and data later on Study
their proportion. should be incorporated into
Primary data:
appropriate
 Special scale mapsofdepending
character on the
the urban area (Hotsize
arid,and complexity
windy, cold etc.) of the town
 Conduct site observation based on a checklist and noting the finding on
using
 the land use
Identify and coding
analyzesystem
majorshown in table
function 12 above.
of the urban area: industrial,
appropriate scale maps recreation, resort, historical archeological farm, military, administrative,
 Undertake discussion with staff of relevant
commercial and urban institutions
other functions
 Conduct meetings with the
 public
Topography and other physical characteristics such as water bodies,
 Undertake discussion with the residents
forest, farms, of the urban
recreation center
areas and other appropriate criteria
 professionals
 Undertake discussion with and technicians
Existing and future prospects of the urban area
Secondary data:  Regional and Federal attention given to the specific urban area
 Resources of the hinterland areas
 Identify data need and sources
 various
 Collect relevant data from Location of the town
institutions
Findings of these studies should be analyzed and based on the results; components of
SP for the specific urban center shall be defined.
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TASK 2. COLLECT AND ANALYZE REGIONAL/HINTERLAND

DATA
Activity 1: Process and analyze Regional level data
 Analyze data collected regarding climate, water resources, vegetables, wildlife,
geological formations, environmental hazards, geological construction materials
and watershed management.
 Summarize the findings
 Analyze the pattern and hierarchy of settlement structures in the region;
 Analyze factors affecting settlements;
 Analyze the climate of the region in terms of temperature; rainfall; humidity;
sunshine duration; drainage and watershed of the urban region, natural and
cultural vegetation cover and slope profile,
 Analyze road network; transport facilities; air fields and routes, water transport, the
directions and volumes of flow of passengers and freights
 Analyze problems associated with distribution of health Institutions; educational
Institutions, postal and telecommunications services
Activity 2: Process and analyze Hinterland level data
 Identify areas of urban-urban linkages
 Identify types and magnitudes of linkages
 Develop appropriate criteria to evaluate and prioritize areas with strong linkage
 Analyze interaction between the town and its hinterland;
 Analyze the nature and magnitude of services rendered by various urban based
service providers such as banks, cooperatives; and manufacturing establishments;
 Analyze factors affecting urban-rural interaction;
 Analyze type of agricultural and natural resources supplied to the urban centers
under consideration;
 identify woredas that supply agricultural and natural resources to the urban
centers;
 Analyze the means of transport and communication that facilitate linkages;
 Analyze factors that constrain urban-rural linkages;
 Identify the spheres of influence of urban centers and determine planning areas;
 Analyze the topography in terms of slope and degree of land degradation;
 Analyze surface water potential; climatic aspect in terms of rainfall distribution,
temperature condition, prevailing wind direction, sunshine duration, and humidity;
vegetation cover
 Analyze administrative linkages between the urban and hinterland areas
 Analyze linkages in terms of services and utilities
 Analyze road, rail, air, non-motorized and water transport linkages
 Analyze migration patterns, human resource flow; and labor mobility.

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Activity 3: Determine how to develop critical problems

 List all problems
Activity 3: Collect and analyze data on infrastructure, utilities and transport
 Summarize and aggregate problems identified with impacts and implication
Activity 3.1: Collect
Quantify and
thehaving analyze
existing anddata on the rood
projected system
housing need, demand and supply
 Select and prioritize: those
Identify and locate
 disaggregated into all streetscategory
income in the urban
and area
based ofonthethis identify
 Ripple effect on the socioeconomic and spatial development urban area and study the
Identifyof uses,
 extent location, condition, distribution, size,
residential andand
hierarchy material
use of
 Negative effect on theshortages and inadequacies
security, safety and well being regarding
of the society related of
construction of roads
houses
 Summarize critical problems
 undertake
 Analyze site observation
housing quality in and
termsnoteofdown problems
physical associated
condition, with streets
construction and
material,
Activity 4: State means of integrating
their network andarea
in the urban summarizing the outcome
density of occupation, and housing facilities;
 Prepare a summary of findings
Assess and synthesize
the condition the results
 Study existing norms andofstandards
existing road network
specific for suitability
to residential in uses
and related termsand
of
 Develop a consensus and shared
accessibility vision condition;
and surface
residential typologies
 Develop strategies and the
Identify options the shared
available visionincould
road length behierarchy;
realized
 Study housing and population densitykm by
levels,
 Evaluate options by considering
Identify
 Study advantages
pedestrian walkrights andbikeway
way and disadvantages
andeach
theirtype;
characteristics
 tenure types and associated with
Identifyhousing
 Identify
 cattle trekking and important
intervention needs trails for efficient circulation;
Identify
 Study
 and locate
housing freight
finance flow, passenger
for low-income transport, and freight terminals;
households.
TASK 3. COLLECT AND
 Collect ANALYZE
documents aboutSPATIAL AND PHYSICAL DATA
projects on roads
 Identify and analyze causes and impacts of housing problems identified in the
Collectabove
 bullets
Activity 1: Collect Housing data about socio-economic potential
data
Identify
observation
 ConductActivity
site andofnote
2: Collect down
general
and trip generation
characteristics,
Analyze patterns
Data location,
on distribution,
Business and structure
commerce/ centre
and condition ofIdentify
existingand note current
residential areas land
anduse and population
indicate this on andistribution
appropriate patterns
scale
and market places
map.  Identify and note road network-combinations, quality and hierarchies, etc.
 Identify, locate and delineate major planned and spontaneous centers; general
 Take notes  Identify
of the mainandand note observed
problems available specific
mode of to transport housing
selected and combinations,
areas and mobility
layout structure of commerce, business and administrative uses; business
 patterns
Identify and delineate major housing intervention areasand note down their distribution, structure
corridors, spines; commercial centers
  Identify
Identify, locate socio-economic
andcondition
delineate ongoinggrowth trends,
housing future
project development
areas; options
Infill areas; Lowand trends
and
 Collect
density areas; dataareas;
on past, and present socio-economic and spatial development
 High density
Identify and delineate Highly deteriorated
major plannedareas and spontaneous market areas (up to
growth trends areas
Identify new housing
 Guleetexpansion
level in grade 3 towns)
 Identify new Identify
housing and locate
typologies allmake
and existing utility
notes linestheir
about on appropriate
characteristics maps
Conduct site observation of general characteristics of commercial areas and
 Note down
Conduct discussions withon problems associated
professionals andscale with utilities
relevant specific to locations
 show this an appropriate map staff of the municipal or local
government, Collect bureaus
regional maps showing the size andidentify
distribution of utilitymajor
lines housing
Take notes of theand
maininstitutions;
problems observedand note
specific to the sites identified
problems   Collect also future plans of utility provision and improvements
Study activity patterns and map them

Collect secondaryCollect data on past, and present socio-economic and spatial development trends
  Mapdata roadonand transport spines
 Process
 Housing the data collected and categorize existing streets into defined
 Map stockthe population and the catchment areas served
 Housing hierarchies
ownership,based on their present uses, location, condition, distribution, size and
 Identify hierarchy of services and levels and note down the findings
 Housing material of construction
condition
 Assess the resource and productive potentials
 Identifyprojections,
 Population and analyze problems household associatedsize withand
streets in the urban area; study
 Identify and study distribution,
problems associated with number
the location, distribution, structure
 Housing past, and
standards present development
and norms trends; socio-economic growth trends and
layout, and condition of commerce, business and administrative uses and the
 Housing identify
costschallenges and prospects
general structures of centrality functions as related with the settlement structure
 Assessincome
 Household the condition
andpattern of existing road network for suitability in terms of
expenditure
and development of the urban area
 Identify and accessibility,
study problems surface condition
associated and
with economic
the densitydistribution, structure and
location,
Identify and study the urban base, resource and productive potentials
Activity 3.2:
condition of existing Collect and analyze data on the drainage
of the residential
urban areaareas and its hinterland
 Identify general drainage patterns of the urban center and its hinterland
 Relate the findings in the bullet above with current development patterns on the
 Note the location specific drainage problem of the town
ground and identify the problems
 Identify major flood prone areas and map them
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 Identify catchments and watersheds and map them

 Collect maps of existing drainage lines
 Collect future plans and projects
 Identify and analyze problems of existing drainage lines, rivers and streams
 Analyze problems of flood prone areas and watersheds
 Identify and analyze problems associated with utilities location, size, distribution,
and standards of utility lines
Activity 3.3: Collect and analyze data on transport network and facilities
 Identify and locate all existing utility lines
 Identify problems associated with utilities in discussion with utility agencies
 Identify past, and present socio-economic and spatial development trends
 Identify and note down existing conditions of rail transport;
 Identify the problems and constraints of the development of the sector;
 Conduct site survey and identify problems associated with the ocation and
functional compatibility of the railway service station;
 Process and analyze trip generation patterns in relation to the present and future
land use and population distribution patterns
 Analyze problems associated with modes of transport and their combinations,
access, mobility, bus and freight terminals and locational compatibility of the
airport/air strip
 Identify problems, opportunities and constraints of rail transport; problems
associated with the location and functional compatibility of railway services
 Identify air-routes, and discuss the issue of interaction between origin and
destinations;
 Assess and analyze the problems and potentials of streams, canals, rivers, and
lakes for transportation
Activity 3.4: Collect and analyze data on the electric power system
 Identify and locate electricity network coverage; poles, transformers, high tension
lines
 Identify supply networks with their standard clearances
 Identify distribution networks with their standard clearances
 Identify the number of meter connections
 Identify the supply system;
 Assess the challenges and prospects of power service;
 Examine history of the water supply system and the number of meter connections;
 Analyze the causes and impacts of problems
 Analyze electric service power supply, network coverage and supply system,
distribution of substations by their installed capacity; distribution network; number of
meter connections
 Analyze the challenges in institutional capacity and working environment of EEPCO

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 Analyze water supply sources, system, service coverage, water production and
consumption; trend of meter connections;
Activity 3.5: Collect and analyze data on water supply lines
 Identify water supply potential and alternative sources of water supply
 Identify water production and consumption patterns;
 Identify problems associated with water quality;
 Identify domestic and non-domestic water demand and loss;
 Collect data about future water requirement;
 Assess water supply service coverage;
 Map existing water pipelines
 Analyze domestic and non-domestic water demand and loss;
 Analyze problems related with water quality;
 Analyze causes, impacts. and constraints of water supply;
 Identify and analyze the type of services provided, station/exchange;
transmission link; and internet services and extent, installed capacity of the
exchange; service coverage against the population size
 Analyze challenges and prospects
Activity 3.6: Collect and analyze data on Telecommunications system
 Collect data about History of telecommunication services
 Identify and locate the type of service station/exchange;
 Identify the installed capacity of the exchange;
 Examine the subscribed lines in the light of the population size and distribution;
 Identify types of services provided;
 Identify challenges and prospects of the service;
 Collect data about future requirements of the service
 Identify and map the transmission link;
 Identify the service types provided;
Activity 3.7: Collect and analyze data on postal services
 Identify the type of post office by hierarchy;
 Identify levels of postal service;
 Analyze the location, type, hierarchy and adequacy, challenges and prospects
of postal service;
Activity 4: Collect and analyze data on Manufacturing and storage
 Identify the location, distribution, structure and condition of industry,
warehouses, depots and workshops; note down and map the results

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 Identify urban economic base, resource and productive potentials of the urban
area; possible industries, warehouses, depots, and workshops which could be
developed.
 Collect data about poverty levels and options already recommended in alleviation
schemes
 Based on the processed data, study problems associated with the location,
distribution, structure and condition of industry, warehouses, depots and workshops
 Identify and study the economic base, resource and productive potentials of the
urban area; possible industries, warehouses, depots, and workshops which could
be developed.
 Study poverty levels and options already recommended in poverty alleviation
schemes such as MSE
Activity 5: Collect and analyze Data on Services, community facilities and
amenities, special functions, reserved areas, historical sites,
archaeological sites
 Identify and locate, the distribution, structure and conditions of services in the city
 Identify and study the extent of shortages and lacks regarding the present status
and future needs of services
 Collect data on existing specific locally, regionally and nationally applicable
regulations, service norms and standards
 Collect data about school distribution by hierarchy; trends of enrolment; school age
population; gender equity; origin of students; ownership status of schools; physical
condition and facilities of schools;
 Collect data about distribution of health institutes by hierarchy; health personnel by
qualification
 Identify existing patterns and future trends of morbidity and mortality; the origin of
patients; institutional facilities and the types of health service provided;
 Identify and study problems associated with the location, hierarchy, distribution,
structure, ownership status, size, quality, and condition of services in the urban
center
 Based on the population estimation and projection identify and study the extent of
shortages, lacks and imbalances of services for current and future needs
 Study existing specific locally, regionally and nationally applicable regulations,
service norms and standards
 Identify and locate special functions, reserved areas, historical, and archaeological
sites
 Analyze intuitional set up, operation modalities (public-private involvement) and
corresponding problems, and opportunities

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Activity 6: Collect and analyze data on open spaces, and environmentally

sensitive areas (parks, urban agriculture, recreation, mineral
resources)
 Identify, locate and map urban agriculture, green areas, forests, parks, gardens,
solid and liquid waste management, sanitation, quarry sites, conservation areas
and fragile areas
 Discuss with concerned authorities about problems of specific land use groups
 Collect data about existing local, regional and national norms and standards
specific to solid and liquid waste management and sanitation
 Identify types, number and quality of existing recreational facilities and map and
take notes,
 Analyze climatic variables such as rainfall distributions, temperature conditions,
prevailing wind directions, duration of sunshine, and humidity;
 Identify and map the major characteristics of topography such as slope and degree
of land degradation;
 Identify surface water potential;
 Identify and map mineral potential of the study town and its hinterland;
 Identify and map geological hazard and flood prone areas
 Assess the institutional setup of organizations working on both solid and liquid
waste management;
 Discuss with appropriate institutions and list down sanitation problems;
 Identify the type, constituents and volume of solid waste;
 Collect data about existing solid and liquid waste management practices;
 Identify, map and note the location, size, character, ownership, networks and
hierarchies and management of open spaces,
 Identify expansion and infill sites for future development and indicate them on a
map
 Identify natural factors that could constrain urban development
 Identify and map man-made and natural factors that restrict urban development
 Analyze the problems associated with urban agriculture, green areas, forest, parks,
gardens, solid and liquid waste management, sanitation, quarry sites and
conservation areas and fragile areas,
 Study past, and present development trends,
 Study existing local, regional and national norms and standards specific to solid
and liquid waste management and sanitation
 Study land availability and land character in relation to the development trend of the
urban area
 Analyze problems associated with types, quantity and quality of existing
recreational facilities,

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 Identify needs and problems related to user population,

 Analyze the location of the town in relation to its hinterland
 Analyze the topography and prepare slope analysis map, and degree of land
degradation; vegetation cover
 Analyze the climatic aspect (rainfall distribution, temperature condition, prevailing
wind direction, sunshine duration, and humidity)
 Analyze mineral, surface and ground water potential of the study town and its
hinterland;
 Identify geological hazards such as seismic risk, land slide, flood and etc;
 Analyze institutional set up of organizations working on both solid and liquid waste
management;
 Analyze sanitation problems;
 Analyze the type, constituents and volume of solid waste;
 Identify and analyze problems associated with the location, size, character,
ownership and management of open spaces,
 Assess suitability of open space networks
 Map the physical/spatial data and analysis results on computer using appropriate
software (MapInfo, AutoCAD, etc )

TASK 4. COLLECT AND ANALYZE SOCIOECONOMIC DATA

Activity 1: Collect secondary data about
 demographic features of the population,
 household income, sources and expenditure
 major economic activities in the city and its hinterland area
 Social setup (clan system) that need to be considered in preparation of SP
 Institution and governance system

TASK 5. COLLECT AND ANALYZE INSTITUTIONAL AND POLICY

RELATED DATA
 Identify and classify stakeholders and relevant partners of pertinent public sector
organizations; non-government institutions including community-based
organizations and associations; and major operators from the private sector.
 Collect data about national and regional development policies and strategies
 Collect data on the urban center’s legal framework and regulatory issues

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TASK 6. COLLECT AND ANALYZE FINANCIAL DATA

Activity 1: Collect data on Municipal Finance
 on municipal finance, source, expenditure, revenue and budget
 institutional capacity of the municipality to collect and administer finance
 technical capacity of the municipality to raise funds;
 accounting and auditing systems;
 budget performance;
 possible sources of finance for development in the future,

Tips to the Tasks

Data analysis for technical ones shall be based on mapping of the data collected and on
observed general trends regarding land use, infrastructure, expansion, settlements
structure and layout .

Such analysis shall be supported with standards, and other similar studies or secondary
data. Except for detailed surveys to be carried out in critical cases, data analyses need to
focus on general issues.

Urban rural linkage is a natural course of interdependence between urban and rural areas.
It largely depends on public policies and strategies put in place. Urban-rural linkages are
expressed in the form of concrete flow of people, capital, goods, information and
technology between urban and rural areas. Urban rural linkages are both manifestations
and forces of development interdependence between rural and urban areas. It is the
integrated and symbiotic relationship of the urban and rural areas that fosters a balanced
and enhanced economic development. All data and analyzed information shall be
summarized and compiled to be handed over to the central information center of the
appropriate body as the case may be (municipality, regional or zonal urban planning
institute, etc)
Major Deliverables
 Physical/Spatial, and environmental data maps
 Physical/Spatial, and Environmental data analysis maps showing the major gaps
 Charts, tables and reports of the exiting socio economic financial, institutional, and
legal data
 Reports showing the major gaps
Key checkup questions
1. Is the existing situation clearly defined?
2. Are the gaps shared by stakeholders?
3. Are all the data collected and analyzed summarized and documented?

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Example of Regional/ Hinterland Plan

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PHASE 3. DEVELOP STRATEGIES AND OPTIONS

This Phase consists of strategies and options for the management and financing of planning
and implementation of structure plan. It also consists of strategies for flexibility of structure
plan, and provisions for developing options and strategies for addressing the problems
identified. The major tasks to be undertaken are: to rectify the vision and objectives and to
develop different conceptual frameworks and arrive at the most viable option.

Activity 1: Rectify the developed vision and objectives

 Rectify the vision developed earlier from the existing facts and potential of the
urban center in collaboration with the stake holders
 Rectify development objectives;
 Identify stakeholders and undertake public participation
 Undertake continuous dialogue and negotiations for building consensus
Activity 2: Develop alternative conceptual framework.
 Develop alternative conceptual plan consisting of all major components of SP
 Evaluate alternative concepts
 Discuss the concept with stakeholders
 Prepare separate conceptual plan by considering different scenario and
evaluating for components of the structure plan
 Develop criteria and evaluate, weigh and prioritize the alternative concepts
Activity 3: Develop the process of interpreting findings
 Undertake SWOT analysis and problem tree analysis
 Aggregate problems, opportunities, strengths, threats
 Prepare recommendations that address the problems identified and prioritized
within the general vision and conceptual plan
 Undertake consultation with respective sector institutions and achieve a
consensus on selected strategies
Activity 4: Develop options and strategies for public participation.
 develop appropriate options and strategies
 Develop alternative forums for public participation
 Develop potential system and methodology for incorporating views and
recommendations of stakeholders
 Analyze the available options and come up with the most viable option

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Activity 5: Indicate possible hinterland level development options

 Indicate strategies for influencing human resource flow; and labor mobility
 Indicate strategies for facilitating market linkages
 Indicate facilitating services extended by banks; service cooperatives;
commercial and manufacturing establishments
 Indicate strategies for facilitating transfer of agricultural and natural resources
supplied to the urban centers and vice versa
 Indicate means of transport and communication that facilitate linkages;
 Indicate strategies for increasing urban-rural interaction and linkages
 Indicate means to facilitate urban-urban interaction; economic linkages; public
sector linkages; spatial linkage; demographic linkage; and industrial linkages
Activity 6: Indicate regional level development proposals
 Indicate potential means for the sustainable utilization of natural resources
 Indicate potential watershed management.
 Indicate potential mechanisms for protection of people from geological hazard
areas
 Indicate potential urban system, land use, infrastructure and road network

Major Deliverables
 Defined and shared vision and objectives
 The Most viable Alternative conceptual framework
Key Checkup Questions
1. Are all possible options and scenarios analyzed?
2. Have all key stakeholders taken part?

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PHASE 4. PROPOSALS OF THE STRUCTURE PLAN

This Phase constitutes preparation of proposals for components of structure plan. At this
stage long-term binding technical framework for the spatial development of a city or a
designated urban region will be defined based on results of the data analyses, norms and
standards and the strategies developed in previous phases. Proposals of the respective
components in addition to addressing the problems identified, integrate the physical
implications of Sectoral Development Plans, Infrastructure Development Plans, and Public
Investment Plans within the Regional and National Development Plans and Strategies.

TASK 1. PREPARE PROPOSALS FOR SPATIAL COMPONENTS

Activity 1: Prepare housing component proposals

 Use defined household size and quantify housing backlog, projected housing
needs and demands of all income levels; disaggregated into income
categories
 Use household income and expenditure patterns and determine housing
affordability for different income categories
 Develop strategies for housing development
 Project required housing units for the planning period;
 Calculate land requirement for housing within the planning period,
 Identify appropriate development patterns and options and forward best
options and development scenario
 Prepare housing areas development plan consisting of the size, location and
distribution of housing areas and the corresponding population, residential
typologies and services, improvement of housing condition and settlement
structure and densities.
 Define housing and population density levels,
 Recommend allowable space standards and facilities,
 Recommend necessary mix of income groups in housing developments;
 Propose housing intervention areas (upgrading and renewal) and spell out
strategies
 Recommend general construction standards and safety
 Recommend strategies for development of housing for low and medium
income households;
 Recommend housing finance and subsidy mechanisms for low-income
households.
 Recommend strategies for addressing problems related with housing tenure
 Consider the pattern of migration as against the pull and push factors; the rate
of population growth; the potential for commuting and calculate and
incorporate the specific need for housing

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Activity 2: Prepare centers and market places /commerce, business and

administrative areas proposals
 Propose solutions for problems associated with the layout and structure of
commerce, business and administrative uses and those associated with the
location, distribution, structure and condition of such uses and the general spatial
structures of centrality functions as related to the settlement structure and
development pattern of the urban area
 Prepare options for addressing them focusing on areas with better economic
base, resource and productive potentials within the urban area and its hinternland
 Propose appropriate development patterns and options of centers
 Draft the final plan consisting of location and distribution of centers, respective
hierarchies and functional mix and integration
Activity 3: Prepare Road network, transportation, utilities and infrastructure
proposals
3.1 Road and drainage proposals
 Determine the location, size, hierarchy, density, distribution of new roads required
based on the norms and standards for roads
 Recommend roads to be improved and also mechanisms to do so
 Recommend future development options and trends
 Recommend appropriate phasing for development
 Propose appropriate pedestrian walk ways and bikeways
 Prepare storm water network
 Propose future requirement of health facilities using standards and norms for
health facilities
 Consider service needs of the hinterland and the region and include these in
determining the future required number of health, education, social facilities and
other service
 Select appropriate locations for the projected health facilities in relation to the
existing school size and distribution and also in relation to the existing and
projected size and spatial distribution of the population.
 Recommend solutions for observed morbidity and mortality rates; and
shortcomings in the distribution of health personnel by qualification; institutional
facilities and quality of health services.

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3.2 Transport proposals

 Propose appropriate number, size, location and distribution of sites for bus and
freight terminals
 Determine the location, size, hierarchy, density, distribution of required means,
and mode of transportation based on the norms and standards
 Recommend improvements needed in the existing transportation system and
indicates the mechanisms required to bring about the desired changes
 Recommend future development options and trends
 Recommend appropriate phasing for development
 Recommend solutions for the problems identified in the areas of mobility and use
of traffic signs and signals,
 Consider assumed modes of transport in the regional urban system and the local
subsystem by taking into consideration locational significance and distributional
aspects and incorporate proposals in the SP for strengthening the linkage and for
promoting coordinated and integrated development.
3.3 Utilities Proposals (water, power, telecommunication and postal services)
 Indicate utility needs and demands and provide appropriate proposals for their
improved provision
 Propose alternative water supply sources
 Determine the size and location of water pipes required based on the norms and
standards
 Propose appropriate number, size, location and distribution of main water points
 Recommend appropriate solutions for problems of water quality, misuse and
wastage
 Forecast future power requirement during the planning period and reserve spaces
 Propose future requirement for new telecommunication and internet services
 Propose future growth trend of postal service
 Recommend appropriate phasing for development
Activity 4: Prepare Industry, warehouses, depots and workshops proposals
 Recommend solutions for problems associated with the location, distribution,
structure and condition of industry, warehouses, depots and workshops
 Recommend possible industries, warehouses, depots, and workshops which
could be developed based on urban economic base, resource and productive
potentials of the urban area;
 Recommend appropriate strategies for poverty reduction
 Identify appropriate sites, development patterns and options,

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 Recommend mechanisms for controlling adverse effects of manufacturing and

warehouses development on surrounding areas in particular and the urban
environment in general
 Draft the final development plan showing the types of industry, warehouses,
depots and workshops to be developed including the recommended development
strategies
Activity 5: Prepare services, community facilities and amenities, special
functions, reserved areas, historical sites, archaeological sites
proposals
 Propose solutions for problems associated with the location, distribution,
structure and condition of services in the urban center
 Using specific local, regional and national applicable regulations, service norms
and standards recommend projected needs of services
 Recommend appropriate development patterns
 Draft the final development plan consisting of the location, distribution, hierarchy
and development strategies of services
 Show how services at a lower level are related with those represented in the SP
 Locate special functions, reserved areas, historical, and archaeological sites and
recommend strategies for their upkeep, maintenance, improvement and
preservation
 Propose future requirement of schools in the light of the projected school age
population and based on the norms and standards provided above
 Select appropriate location for the projected number of schools in relation to the
existing school size and distribution and also in view of the existing and
projected population size and distribution.
 Recommend solutions for problems in trends of enrolment; gender equity;
ownership status of schools; quality; affordability; physical condition and quality
of facilities expressed by teachers per section ratio and students per school
ratio.
Activity 6: Environmental sensitive areas (parks, urban agriculture,
recreation, mineral resources)
 Propose solutions for problems associated with urban agriculture, green areas,
forest, parks, gardens, solid and liquid waste management, sanitation, quarry
sites, conservation areas and fragile areas,
 Propose future development options and trends
 Recommend appropriate number, location and size for solid and liquid waste
disposal sites and the corresponding mechanisms.
 Show land development, budgeting and reservation of areas for future uses

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 Recommend appropriate types, location, quantity and quality of existing

recreational facilities,
 Recommend strategies for combating land degradation;
 Recommend appropriate mechanisms for exploiting surface water potential;
 Propose areas to be covered by vegetation and propose appropriate solution for
sustainable development;
 Develop alternative strategies for recycling of wastes;
 Recommend appropriate solutions for sanitation problems
 Recommend sources of geological construction materials and mechanisms for
their exploitation
 Recommend appropriate mechanisms for minimizing the risks of environmental
hazards such as earth quakes, land slides and floods
 Recommend strategies for the protection of surface and ground water potentials;
 Propose means and ways for protecting both water supply sources from being
polluted;
 Recommend ways of exploiting the mineral potential of the town and its
hinterland;
 Recommend appropriate locations, sizes, characters, ownerships and
management for open spaces,
 Recommend open space networks and hierarchies
Tips to the Tasks
In dealing with the proposals in Activity 2, consider issues of urban-urban and urban-rural
linkages: public sector linkages (sphere of administrative influence and relevant
instructions); economic linkage (market, financial, production, and consumption) and
recommend proposals for addressing problems observed and accommodating future need
of bringing about economic development and thereby poverty reduction
Activity 6 refers to green areas, parks, gardens, playgrounds, forest areas, urban
agriculture, solid waste, liquid waste, and quarry sites and conservation areas.
Requirements for open spaces and environmental aspects should be developed in
consultation with institutions responsible for agriculture, fisheries, wildlife, recreation,
tourism, disaster management, water and mineral resources development. The provisions
should be based on data from relevant institutions. Policies for open spaces should have
implementation measures at municipal and sectoral levels.
In Activity 6, also consider problems of fuel and construction wood; watershed management;
water supply, geological construction materials, recreation areas and parks, waste
management practices; urban agriculture and conservation areas and recommend
proposals for their proper treatment in view of bringing about integrated development
between the urban center, its hinterland and wider region
Computer aided mapping with the help of an appropriate software such as the AutoCAD or
Map Info should be used to produce proposals that appear on maps.

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TASK 2. PROPOSALS FOR SOCIOECONOMIC COMPONENTS

Activity 1: Prepare Population and Demography Proposals
 Derive assumed population characteristics: fertility, mortality and migration patterns,
trends in population size, growth rate; doubling time, average household size, sex
ratio, age structure, ethnic diversity and religious affiliation
 Forecast population size for the planning period at different points in time
Activity 2: Prepare Urban Economic base Proposals
 Recommend strategies for the promotion of commerce, services, manufacturing,
construction, and all other economic activities;
 Propose solutions for the main problems associated with the conditions and trends
of informal sector activities;
 Propose mechanisms for market development, promoting tourism, investments and
urban agriculture
 Explore the patterns and trends of the rural economic structure; its agro-ecological
potentials; the potential for export earning; and factors that facilitate back ward and
forward linkages between urban and rural areas and forward proposals accordingly.
 Prepare proposals for strengthening Micro and Small Scale Enterprises in
accordance with the recommendations of the national urban development policy by
creating a strong institutional structure that coordinates, facilitates and administers
such enterprises and effectively alleviates their major problems such as
administrative, financial, and skills related shortcomings; and their lack of working
space and market outlets.
Activity 3: Prepare Municipal Finance Proposals
 Recommend financing and cost recovery mechanisms
 Recommend municipal revenue enhancement plan; expenditure pattern and
required central government’s support
 Recommend appropriate institutional capacity building mechanisms that can
enable the municipal or local authority to effectively collect taxes, charges and fees
and efficiently manage municipal finance
 Recommend appropriate accounting and auditing systems;
 Identify possible sources of funds for the improvement of services

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Activity 4: Prepare Urban Management and Local Governance Proposals

 Propose appropriate restructuring for key institutions in terms of responsibilities,
linkages involving work flows and correspondence between organizational
structures and functions;
 Recommend an appropriate governance structure;
 Recommend better service delivery
 Recommend strategies and models for promoting public-private partnership, and
for the participation of the community in the decision making process
 Recommend strategies for promoting the role of civil society in local economic
development
Activity 5: Prepare Legal issues and policies Proposals
 Recommend appropriate legal and regulatory provisions for the SP

Major Deliverables
 Maps showing spatial/ physical proposals
 Reports summarizing the proposals
Key Checkup Questions
1. Have all key proposals been made?
2. Are all proposals in line with the problems and objectives
3. Are the proposals realistic?

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Example of major framing elements of Structure Plan

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PHASE 5. INTEGRATING PROPOSALS

This is the phase where the components of the structure plan are integrated to form the plan.
This requires overlaying proposals of each component; identifying and compensating
conflicting proposals and drafting the final land use plan. A series of presentations and
discussions between and among the experts working on respective components and those
responsible for the overall management of the structure plan preparation will be undertaken.
Consensus and differences in such forums should be well documented and need to be
presented for decision makers and the general public to give a chance to debate on the
issues. The major tasks undertaken here are identification of conflicts between proposals
and harmonizing and integrating the proposals.

TASK 1. IDENTIFY CONFLICTING PROPOSALS

 Develop criteria and evaluate these competing proposals within the major landuse
frame, principles and guidelines already developed
 Check for possible conflicting areas between the socio-economic proposals
 Check for possible conflicting areas between the spatial/physical proposals
 Check for possible conflicting areas between the spatial/physical proposals and the
socio-economic proposals
 Check for possible conflicting areas between spatial/physical and Institutional.
Financial and regulatory proposals
 Based on the results of the above tasks compensate competing proposals

Major Deliverables
TASK2. Harmonized
INTEGRATE PROPOSALS
and Integrated Plans
Key Checkup Questions
 Overlay findings in each component studies and compromise an streamline
1. Are the major conflicts been compromised?
conflicting
2. Are the proposals
major stakeholders satisfied by the integrated proposals?
 Modify until they complement by compensating each other
 Hold presentation and discussion on the outputs at various levels
 Integrate modifications in each component and modify accordingly and prepare the
draft structure plan
 Undertake presentation and discussion on the draft SP
 Finalize and prepare final draft of the structure plan by incorporating comments

Major Deliverables
 Harmonized and Integrated plans
Key Questions
 Are the major conflicts been compromised?
 Are the major stakeholders satisfied by the integrated proposals?
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PHASE 6. APPRAISAL AND APPROVAL

The purpose of this phase is to evaluate the proposals for their viability, manageability and
whether they are realistic; and to give the plan a legal instrument. The major tasks here are
to undertake evaluate and to approve the plans.

TASK 1. ORGANIZE STAKEHOLDER PARTICIPATION

 Identify and determine the number and composition of participants. Make sure
that all interest groups are well represented in the forum. (Private sector, youth &
women associations, Iddirs, prominent personalities, farmers from the
surrounding area, religious leaders, government officials, experts from various
sectors of public institutions etc)
 Get prepared for the presentation (identify and get presentation aides and make
sure that its working)
 Assign a moderator from people who have sufficient knowledge of the planning
process
 Make brief presentations and give sufficient time for the participants to express
their opinion
 Assign rapporteurs in every sessions
 Do not defend every thing raised by the participants rather explain in a very
humble manner. If the issue raised is unknown to you try to get further
explanation.
 Evaluate critically and incorporate valid comments, complements and suggestions
by the participants
 Record and document events

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TASK 2. UNDERTAKE APPRAISAL

 Undertake appraisal side by side with the plan preparation process through
consultative meetings with the supervisory board, technical advisory committee
and public advisory committee at every critical stage.
 Minutes of understanding should be signed at each critical stage among these
same parties.
 organize public forums during the completion of main stages to obtain feedback
from the wider public through consecutive workshops and exhibitions
 Review comments forwarded by the public and the technical advisory committee
 Discuss and negotiate repeatedly on disagreements between the plan
preparation team and the stakeholders. The appraisal process is complete only
when a consensus is reached among the structure plan preparation project
team, the board, the relevant public institutions and the technical advisory
committee.
 The community should review the draft plans thoroughly before the local council
decides which plan should be detailed.
 Allocate sufficient time for community or public participation. It is recommended
that about one month should be given for public review.
 Adopt appropriate methods for participation
 Document and avail comments

Activity3.3: UNDERTAKE
TASK Handover the Approved Structure
STRUCTURE PlanAPPROVAL
PLAN for Implementation
 Present the approved structure plan with all its accompanying documents and
Activity 1: Prepare the documents for approval
maps to the appropriate body
 Ratify a structure plan within 4 weeks of the completion of its final draft
 Disseminate copies of the structure plan maps and texts to relevant institutions,
 Define the time required to approve plans
organizations, firms and individuals
 Get the SP approved by an authorized body before adopting it for
 Identify and determine the number and composition of participants and the
implementation,
process of participation
 Make a request for approval
 Make sure that all interest groups are well represented in the forum.
 Display plans for public comment
(representative sof the private sector, youth & women associations and Iddirs;
 Announce the approval of a structure plan to stakeholders through public
prominent personalities, farmers from the surrounding area, religious leaders,
media
government officials, experts from various public institutions including specialists
Activity 2:from
Plan approval
academia

 Organize public
Get prepared forhearing forums before
the presentation approval
(identify and by
getthe council
presentation aides and make
 Present a concise
sure that its working) report of the structure plan to the council and other

 stakeholders
Assign a moderator who has sufficient knowledge of the planning process

 Invite
Make all stakeholders
your to express
presentations their give
brief and viewssufficient time for the participants to
 Present
express report of the technical advisory committee to an appropriate body
their views

 Submit structure plan
Assign rapporteurs in maps
every and documents for approval to the appropriate body
sessions

 Organize
Record anda plan approval
document theforum
event
 Summarize and read manifestos
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PHASE 7. IMPLEMENTATION
The purpose of this phase is to state the practical actions needed to translate the plans into
visible products on the ground. The implementation of a structure plan should be based on
LDPs and urban projects. Preparation of LDPs should focus on strategic sites and projects
with widespread effects that are identified and accordingly given priorities for implementation
in the structure plan and its components. The major tasks to be undertaken are: to make the
Tips
necessary to the Tasks
preparatory works for implementation; and to conduct implementation works.
Draft structure plan should be presented to all stakeholders. Consecutive public forums
Activity
TASK 1.1: PREPARATORY
Prepare LDP, Projects and IDP for Implementation
WORKS
should be organized to obtain feedback from stakeholders and to ensure its enforcement.
Identify and adopt
 Consensuses strategic intervention areas
fromTraining
such forums should be incorporated in the draft structure plan. The
Activity 1: Conduct
Determine
 final Structuretheplan
types and be
should amount of resources
approved required of six months to make it a
within a maximum
 Provide intensive training for all concerned bodies on how to implement the
Identify
 legally sources
binding of finance
document. Request for approval shall be made by the responsible body.
new structure plan
Activity 2: Avail
Approval of theand referplan
structure relevant regulations,
should be announced tonorms and
all parties standards
through public media.
 Arrange training separately for various issues
 Make available all relevant implementation regulations such as urban planning,
Activity 2: Setup appropriate implementation institutions
Major Deliverables
land use, building height, etc. to the respective institutions and experts to ensure
 Establish required implementing institutions with defined roles and duties
 Summary
a smooth of appraisalprocess
implementation document
based on the proposals of the structure plan
 Refer toApproved documentation
the norms of thedeveloped
and standards plans by the structure plan for the smooth
 Give copies
Legal
of
notice
the structure
confirming
plan
approval
to
of
the
the
respective units of the municipality and
plan
implementation of development requests in the areas where LDPs are not
Key to state bureaus
Checkup questionsto help them plan their activities accordingly.
prepared
 [Link]
Have allbudget for both recurrent
key stakeholders andincapital
participated expenditure.
the appraisal process?
Activity 3: Update the SP with day to day changes on the ground
2. Have the plans been legally approved?
(implementation)
TASK [Link]
Have the IMPLEMENTATION
plans been handed over? WORK
 Enter day to day implemented projects, LDPs, or parts in an appropriate map to
be used as data base for future planning and implementation. If possible use a
computerized system. If this is not available prepare sufficient hard copies
(original and backup) and register and enter every implementation data in the
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Major Deliverables
 Training given to implementers
 Implementing institution set up
 Implementation plans and regulations ready

Key Check up Questions

1. Has adequate training been given?
2. Is appropriate implementing body organized?
3. Are the required implementation plans prepared?

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Example of Intervention Plan of SP

Example of Phasing Plan of SP

Example of Building Height Regulation of SP

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PHASE 8. MONITORING AND EVALUATION

Monitoring and evaluation of a Structure Plan is a participatory process which should be
applied to check that: principles, proposals, norms, standards and regulations of the
structure plan and its components are applied in the design of LDPs and implementation
projects. It is a mechanism that helps to ensure that sectoral and infrastructure development
plans are integrated with components of the structure plan; and all recommendations are
enforced in accordance with provisions of the same. The major tasks to be undertaken are:
to organize monitoring and evaluation tools; conduct monitoring of the processes;, carryout
periodic evaluations and undertake corrective measures.

Activity 1: Monitoring and evaluation in plan preparation

 Empower the monitoring unit
 Identify issues to be monitored
 Undertake day to day follow-up of the structure plan implementation process
 Establish a compliant hearing system for the public
 Control and regulate development activities
Activity 2: Evaluation
 Define institutional setup and system for evaluation
 Define stages for conducting evaluation of the implementation process
 Develop appropriate evaluation criteria
 Gather public opinion for comparative analysis
 Compile and report evaluation results
 Draw feedbacks
Activity 3: Updating
 Prepare an appropriate scale map for incorporating new developments
 Create the appropriate working channel and mechanism for incorporating new
information on maps
 Incorporate new development, changes and improvements
Activity 4: Amendment/Revision
 Initiate amendment
 Document and present amendments for appropriate body.
 Get an official reply within a defined period of time
 Amend the structure plan accordingly
 Revise the structure plan 10 years after the commencement of
implementation in accordance with the provisions in this manual

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Major Deliverables
 Formats for Monitoring and Evaluation
 Formats and provisions for updating

Key Checkup Questions

1. Are the formats sound enough?
2. Is the amendment process clear enough?
3. Are there adequate updating provisions?

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PART III

ANNEXES

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ANNEX I. FORMATS

Format No. 1. General Urban Data Collection & Analysis Format

Checklist of Data/items to be collected Details

Historical background: Establishment date, spatial growth trend

Total area of the town
Number of Kebeles and/or Kifle Ketemas
Major functions of the town
Housing stock by ownership and function
Housing stock by condition
Housing stock by availability of utilities (water, electricity,
telecommunication, toilet/shower, and kitchen)
Past growth trend, current population (age, sex) and future population
projections of the town
Name and general characteristics of adjoining urban and rural areas in
the hinterland and the planning region
Number of roads connecting the urban center to other areas
Transport connections and daily exchanges
Settlement character and general layout
Topography and natural features
Unsatisfied infrastructure and social services needs of the population
Number, type and size of existing administrative, commercial, service
and productive establishments
Number, type and size of approved and commenced investments in
the city by sector and major economic activity

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Format No. 2. Stakeholders Identification and Analysis in SP Preparation Process

Phases of SP Key stakeholders Level of Roles to be played Mode of Potential
preparation representation representation interests
Phase I: o Developers, RF, TC, SC Expression of needs for Group representation Creation of
Preparatory Work: o Community, RF, TC, SC revision and/or preparation favorable condition
Planning to Plan o Government officials and TC, SC of SP Need assessment Idir, association for investment and
politicians (youth, women, development
o Knowledgeable persons RF, TC, SC children, elderly,
o Professional societies, RF, TC, SC employed,
o The elderly, RF, TC, SC unemployed and
RF, TC, SC other groups)
o Community representatives
Phase II o Staff of relevant urban TC Provision of Information Individual and group Identification of
Collect and institutions Data collection representation planning issues,
analyze o Public RF problems,
o professionals, staff of TC Various consultative opportunities and
municipality and city forums constraints
administration, regional
bureaus and institutions
Phase III Develop o Investors RF, TC, Continuous dialogue and Individual and group Identifying
strategies and o Public participation RF negotiations for building representation interests that
options o Sector institutions Government TC consensus benefit them
officials and politicians Various consultative
o Knowledgeable persons Develop strategies and forums
o Professional societies, options
o The elderly,
o Community representatives
Phase IV o Developers, RF, TC, SC Forwarding ideas on Individual and group Preparation of
Preparation of o Government officials and RF, TC, SC proposals prepared representation appropriate
proposals politicians TC, SC Comment on the proposals proposals that
o Knowledgeable persons TC, SC Various consultative support their
o Professional societies, RF, TC, SC forums interests
o The elderly, TC, SC
o Community representatives RF, TC, SC
RF, TC, SC
RF, TC, SC
SC = Steering Committee TC = Technical Committee RF = Representative Forum

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… Format No. 2 Cont.

Phase V o Developers, RF, TC, SC Forwarding ideas on Individual and group Well integrated
Integration of o Community, RF, TC, SC integration of proposals representation proposals
proposals o Government officials and TC, SC Comment on (draft
politicians proposals) integrated plans Various consultative
o Knowledgeable persons RF, TC, SC and proposals forums
o Professional societies, RF, TC, SC
o The elderly, RF, TC, SC
RF, TC, SC
o Community representatives
Phase VI Appraisal o Developers, RF, TC, SC Forwarding ideas on Individual and group Appropriate
and approval o Community, RF, TC, SC proposals prepared representation proposals for
o Government officials and TC, SC express their opinion addressing their
politicians Various consultative needs
o Knowledgeable persons Review the draft plans forums
o Professional societies, RF, TC, SC
o The elderly, RF, TC, SC One month public review
RF, TC, SC
o Community representatives
RF, TC, SC Reaching consensus
o Private sector, youth & women
associations, Iddir, prominent Display plans for public
personalities, farmers from the comment
surrounding area, religious
leaders, government officials,
experts from various sectors of
public institutions
Phase VII o Developers, RF, TC, SC Getting awareness Individual and group Facilitated
Implementation o Community, RF, TC, SC representation implementation
o Government officials and TC, SC process enhancing
politicians Various consultative investment
o Knowledgeable persons RF, TC, SC forums
o Professional societies, RF, TC, SC
o The elderly, RF, TC, SC
RF, TC, SC
o Community representatives
Phase VIII o Developers, RF, TC, SC Compliant hearing Individual and group
Monitoring and o Community, RF, TC, SC representation
Evaluation o Government officials and TC, SC Public judgments
politicians Various consultative
o Knowledgeable persons RF, TC, SC forums
o Professional societies, RF, TC, SC
o The elderly, RF, TC, SC
RF, TC, SC
o Community representatives

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Format No. 3. Educational Facilities Data Collection & Analysis Format

School level Urban Rural (within the Total
Government Private and others hinterland)

KG
Grades (1-4)
Grades (5-8)
Grades 9 & 10
Preparatory
Technical/vocational
schools
College/university

Format No. 4. Health Facilities Data Collection & Analysis Format

Health facility level Urban Rural (within the Total
Government Private and hinterland)
others
Health post
Clinic
Health Center
General Hospital
Specialized Hospital
Referral Hospital Study region

Format No. 5. Cultural and Recreational Facilities Data Collection & Analysis Format
Type of social facility Type and hierarchy Total Number

Theater/cinema
Public Hall
Large Sport Fields/ Stadiums
Parks
Library
Museum
Festival grounds
Other

Format No. 6. Population Data Collection & Analysis Format

Item Urban Rural/ Hinterland Study region

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Total population
Population characteristics
Population growth rates
Population distribution
Population projection (5, 10,15,20
years and long term)

Format No. 7. Household Characteristics Data Collection &

Analysis Format
Items Details
Average household size
Income categories
Employment characteristics
Household expenditure and saving

Format No. 8. Municipal Revenue, Budget and Expenditure Data

Collection & Analysis Format
Items Details Birr
Revenue Land and housing rent
Land Lease
Taxes
Others
Budget Administrative and other costs
Land and housing development
Capital projects
Expenditure Physical infrastructure new and
maintenance
Social services new and
maintenance
Administrative and salary
Other costs

Format No. 9. Spatial Data Collection & Analysis Format

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Format No. 10. Existing Land Use Data Collection & Analysis
Format

Format No. 11. Infrastructure, Utilities and Transportation Data

Collection & Analysis Format

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STRUCTURE PLAN MANUAL (FINAL DRAFT) Mathewos Consult

Type of infrastructure, Details Description

utilities and transportation
facility
Road Type and heirarchy
Length
Quality: surfacing, ditch, condition
etc
Utilities Water
o Source
o Number and type of connections
o Water pipe lines (map results or
get copy if available)
o Future capacity and needs
Electricity
o Source
o Number and type of connections
o Electricity lines (map survey
results or get copy if available)
o Future capacity and needs
Telephone and other services
o Source
o Number and type of connections
o Lines (map survey results or get
copy if available)
o Future capacity and needs
Transportation Mode of transport
Means of transport
Transportation lines, stations and
terminals (map survey result)
Future needs and demands

Format No. 12. Open Spaces and Environmental Services

Open spaces and Details Description
environmental services
Open spaces Type, size and distribution (map survey results)
Condition, ownership, and utilization
Future needs (map areas lacking such spaces)
Solid Waste o Type of solid waste collection
o Level of provision and distribution (map
areas lacking such spaces)
o Method of waste disposal
o Future needs
Liquid waste o Type of liquid waste collection
o Level of provision
o Method of liquid waste disposal
o Future needs
Socioeconomic

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Format No. 13. Institutional Data Collection & Analysis Format

List of Major area of concern/operation
List of Public List of
List of Private
Sector CBO’s and
NGO’s Businesses Social Econo Physical/ Infrastru
Organizations associations mic Environmental cture
/ Operators

Format No.14. Urban Management, Governance Legal and

Regulatory Aspects Data Collection & Analysis
Format
Items Details Description
Urban management Institutional setup
o Structure and organization
o Duties and responsibilities
o Working systems, procedures and
steps
Human resource
o Planned
o Actual
o Gaps
Vehicles, equipment and facilities
o Number
o Condition
o Future Needs
Legal and regulatory aspects
Urban Governance Civil service
Accountability
Transparency
Public Organization
Public participation
Number and type of Civil societies
PPP models
Policies, legal and Policies
regulatory aspects Laws, regulations, decrees
Identified gaps

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Format No.15. Gap Identification and Indicators Format for SP Preparation

Key areas of Existing data Required Gap/ problem Causes for Options/ Proposals Indicators
need (facts and level to meet identified/ the problem strategies to
assessment figures the vision Backlog meet the gaps
Strategic
variables
Housing Projected Tot. housing New household Improve supply of Supply 3,500 No. of Housing
population= 55,000 11,000+500= required for the formation land for housing new plots for units provided
Housing stock= 11,500 planning period= Shortage of land Improve housing housing
8,000 11,000 Lack of condition
HH size= 5 New housing maintenance Create income Establish
Housing to be required= Low household generating association of
replaced (replace 11,000-8,000+ income activities MSE for low
deteriorated and 500= 3,500 income
relieve households
overcrowding) =500

Centers and Undefined center 3 sub-centers Weak main center Low investment Facilitate Strengthen the Area upgraded/
market places and business areas Shortage of 3 sub- investment main center renewed
/Commerce, 5 ha of land to centers Existence of old through urban
business and Shortage of be used for and deteriorated Foster urban renewal project
administrative commerce and commerce, Lack of space for buildings at the renewal No. of sub
areas administrative areas business and appropriate center Create 3 sub- centers created
administration functions Devise appropriate centers at
Low-household relocation appropriate
income mechanism locations

Facilitate
investment at the
main and sub-
centers

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Services, 2 high schools 3 high schools 1 high school Lack of finance Coordinate efforts Prepare plots for No. of
community of all stakeholders the identified respective
facilities and 3 Elementary 5 Elementary 2 elementary Lack of private and the community gaps services
amenities, schools schools schools investment in to finance the established
special functions, provision of provision of the
reserved areas, 1 health center 3 health 2 health centers services required number of
historical sites, centers services
archaeological No general hospital 1 General hospital Prepare and
sites
…. Format No. 15 Cont. 1 General supply land for
hospital services

Industry, Low number of To be defined To be defined Lack of Prepare and Reserve, and develop Size of Land
warehouses, manufacturing, based on based on investment in supply land for the estimated land for covered by
depots and warehouses, and resource results of the manufacturing, investment in investment in Industries
workshops workshops * potential, rural two columns on warehouses, manufacturing, manufacturing,
productivity, the left (* and and warehouses and warehouses
Low number of current projects **) workshops workshops, workshops, and MSE
MSE on pipeline, development.
comparative Low level of Facilitate and
advantages and support for support
other factors** MSE investment in
manufacturing,
warehouses,
and workshops

Strengthen
support for MSE

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Road network, Road network Required 2%-12% road Shortage of Use labor Determine and prepare - Road density
transportation, coverage = 13% coverage of road coverage resources intensive proposals for the level
utilities and network = 15- construction location, size, achieved
infrastructure 25% system to foster hierarchy, density, - Size of good
Deterioration of Road Provision of distribution of new conditional
roads At least good improvement road network, roads, infrastructure, roads
condition of utilities and utility and transportation - Percentage
Lack of drainage roads Drainage lines infrastructure lines (also means and of roads with
along roads modes) required good
Provision of Recommend roads to drainage
appropriate be improved and also
Inaccessibility and drainage along mechanisms to do so
shortage of roads To be defined Recommend future
infrastructure and based on development options
utilities provision* Minimum actual study and trends
infrastructure results of the Recommend
and utilities two columns on appropriate phasing for
provision** the left (*and development
Based on the **) Propose appropriate
norms and pedestrian walk way
standards and bikeway
…Format No. 15 Cont. Prepare storm water
network

onmental, Environmental Land degradation Well preserved and Maintain ace and Shortage of Facilitate Reserve, and - No of parks
Sensitive maintained land upkeep of land resources investment develop the - Cleanliness
Areas (parks, No public park area within the estimated land of the
urban urban setting and Initiate and for investment in neighborhoo
agriculture, Lack of solid neighbouring Lack of support development of ds
recreation, waste collection areas investment in stakeholders parks, urban - No of
mineral and management At least one main solid and liquid involvement in agriculture, housing
resources) public park and a 1 Public park waste development recreation, units
Lack of liquid number of green management and mineral accessible to
waste disposal areas, children management resources. sewerages
playgrounds and Lack of of disposal
spaces technical
Environmental sensitive areas Facilitate and services
Requirements for open capacity mineral support
spaces and Solid waste resources investment
environmental aspects collection bins, provision of
Environmental sensitive Areas
should be developed trucks, disposal parks, urban

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in consultation with sites and overall agriculture, (parks, urban

institutions responsible management and recreation agriculture,
for agriculture, system recreation,
fisheries, wildlife, mineral
recreation, tourism, Lack of sewerage resources), solid
disaster management, lines or vacuum and liquid waste
water and mineral trucks, disposal disposal and
resource development. sites and overall management
management The provisions
Appropriate solid system should be based
waste collection and on data from
management relevant
institutions.
Appropriate liquid
waste disposal

This Gap Identification format is organized based on a hypothetical urban center. It is to be used just as an example in the preparation of similar format by
professionals to be involved in SP preparation of specific case urban centers. The contents do not represent all the issues to be considered or the steps in gap
identification for SP.

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Format No. 16. Spatial Output Format for Housing Study

Format No. 17. Spatial Output Format for Environmental Study

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Format No. 18. Spatial Output Format for Manufacturing and Storage
Areas

Format No. 19. Spatial Output Format for Social Service

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ANNEX II. NORMS AND STANDARDS TO BE APPLIED IN THE

PREPARATION OF STRUCTURE PLANS
Norms and standards are provisions showing acceptable qualities and quantities of provisions
for housing, services, infrastructure and utilities. It also refers to levels of activities involved in
plan preparation, revision, implementation, monitoring and evaluation. The norms and standards
described below are applicable to urban centers at all levels. In urban centers where other
norms and standards are required or in localities where provisions in this manual do not fit, the
professionals involved have to develop appropriate norms and standards by taking into
consideration the peculiar situations and characteristics of those urban places

Standard 1. Streets Spacing Standard

No Streets Standard Spacing
Core area Intermediate Expansion
1 Express way 1-1.5km 1.5-2km 2-3km
2 Arterial 0.5-0.8km 0.8-1km 1-1.5km
3 Collector Street (CS) 100-500m 200-500m 300-500m

Standard 2. Density Standards

Small Medium Cities Metropolitans
Large Towns
Towns Towns

Average 200 in/ha 300 in/ha 400 in/ha 500 in/ha

100 in/ha
density

Standard 3. Standards for Health Services

Required area Catchments
Type Detail considerations
(ha) population
Within catchments area; With in walking
District Hospitals 1-1.5 ha 250,000 distance from mass transport system
Along collector roads
General (Regional) Within catchments area; Within walking
2 ha 1,000,000
Hospital distance from mass transport
Referral Hospital variable Variable Along collector roads

Note: In the case of Small and Medium Towns, health facilities lower than district hospitals could appear
on the structure plan.

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Standard 4. Standards for Education Services

Required area Catchments
Type Detail considerations
(ha) population
 Within the catchments area
 Along main collector roads
 Near intersection of roads and
mass transport system
Secondary
 Area provided with infrastructure
Education 2.5-6 ha 10,000-15,000
services
 Far from dumpsters, hazard-
prone lands, noise and other
pollutant activities.
Post-secondary  Near mass transport system
Education or (within a walking distance from
2.5-6 ha 10,000-600,000
Specialized High transport services)
Schools  100m far from major traffic points.

Standard 5. Standards for Manufacturing Activities

Levels Description Location criteria
Small scale Small electric or  Those with no nuisance to residence can be located within
industry motor capacity residential and commercial areas
(manpower < 10)
Medium and large- Highly  In peripheries of urban centers.
scale industry mechanized  Near major roads and highways
productive On the other hand, these industries should not be located
establishments without considering:

 The wind direction,

 Slope
 Compatibility
 The direction of surface and underground water flow
especially if they are used for drinking water for the urban
center under study or other neighboring areas.
 Nor should they be located near residential units,
schools, health facilities, and other amenities,
governmental institutions, major business activities.

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Standard 6. Standards for Warehouses

Levels of
Description Locations
Warehouse

Warehouses of  Near commercial activities;

agricultural products and  Near centers/sub centers of urban
industrial products centers;
1 Small Warehouses
(textile, sugar, food, etc.)  Accessible/adjacent to major collector
used for collection or sale roads.
 Semi-peripheral areas or intermediate
Medium Warehouses zones of urban centers
2 Distribution storages
 Accessible or near junctions of arterials
and inner ring roads
 In the peripheries
 Near the junctions of arterials or radial
Large scale distribution
and ring roads
3 Large Warehouses stores such as silos AMC,
 In close proximity with medium and large
EDDC
industrial activities and compatible
developments

Standard 7. Standards for Slaughterhouses

Type of Capacity Required Site area Maximum Site
abattoir (hectare) Occupancy Ratio
(SOR in %)
Up to 50 cattle /day and
Small abattoir 1-1.5ha 50
100 shoat/day
Medium
50-75 cattle /day and 100-
abattoir 1.5-2 50
200 shoat/day
Satellite
75-100 cattle /day and
Higher abattoir 2-2.5 50
2500-300 shoat/day
An average of 90 cattle/day
Export abattoir 1.8-2 50
and 225 shoat/day
An average of 60-100
Shoat Abattoir shoat/day except on 0.05-0.1 60
holidays

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Standard 8. Main market Services and Structures Standard

Area Standard
(ha) Market Services Structures
Open and semi-covered markets, shops G+0 of semi-covered and open
1-1.5
markets.

Open and semi-covered market, shops, mini supermarkets G+0-G+3 of semi-covered and open
1.5-2
selling commodities and food items and giving services, markets.

Specialized shops of high-order goods, supermarkets and

2-3 G+0-G+3 buildings
department stores.

Please note that slaughterhouses and markets for Addis Ababa should be developed in line with
the norms and standards prepared by ORAAMP.

Standard 9. Solid Waste Container Provision Standard

Maximum Maximum Assumed
Maximum
Container Size Catchment Catchment emptying
No Catchment
and type population radius interval
area (ha)
(HH) (meters) (days)
1.1m3 1.25 60 65 5
3
8m 3.15 150 100 8

Adopted from ORAAMP, 2002.

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Standard 10. Land use Classification of Structure Plans

Land use Major Contents of the category Prohibited uses Color Black and white
Category
Housing  All types of residential Large scale industries, Yellow Horizontal hatch
developments storage and warehouses,
 Educational services: Military establishments and
kindergarten to secondary ammunition stores; Waste
schools treatment plants and landfill
 Health services: health post sites; Cemeteries; Transport
to health center terminals; Quarries
 Neighborhood markets Universities, colleges,
('Gulits') and shopping areas hospitals, stadiums
 Small and medium scale
Manufacturing and
warehouses
 Recreation and entertainment
centers
 Administrative offices,
business
 Worship places
Business and  Shops Large scale industries, Red Normal square
commerce/  Markets storage and warehouses; hatch
Centers and Cemeteries; Waste treatment
market places
 Centers of different
hierarchies plants and landfill sites;
 Administrative uses Military establishments and
 Banks stores; and Quarries
 Insurances
Public Education (colleges, universities) All except services defined Blue 45 hatch
facilities, Health (health center, hospitals) within the same category
cultural, Community facilities
archeologica Municipal services
l sites and
special
functions
Manufacturing Industry and manufacturing All except services defined Violet Horizontal hatch,
and storage Warehouse, depots within the same category alternating full
and broken lines

Infrastructure, Public utilities (water supply, All urban activities except Grey
utilities and sewage system, electric supply, traffic and transport facilities,
Transportation telecommunication) street green and utility
Road networks, Terminals for installations invading the
major transportation exchange space and dumping of any
centers, Transportation systems material

Open spaces Open space for outdoor All activities except for direct Green Square dotted
and recreation; necessary for the uses designated and part of
environmental preservation of natural the environment project; any
sensitive resources; Open space for the urban built up activity more
areas managed production of than 25 % coverage in parks
resources; Open space reserved and green recreation areas
for public safety against risks
from environmental elements;
Open space for future
expansion; Right-of-ways
reserves for future upgrading of
road size

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Standard 11. Proposed Percentage of the Respective Land Uses

Proposed percentage
Small &
Structure plan component
Medium Large Towns Cities Metropolitans
Towns
Housing 55-70 50-60 45-50 40-45
Business and commerce/ 5-10 5-10 10-20 10-20
Centers and market places
Public facilities, cultural, 5-10 5-10 10-20 10-20
archeological sites and special
functions
Manufacturing and storage 5-10 10-15 10-15 10-20
Infrastructure, utilities and 15-25 15-25 15-25 15-25
Transportation
Open spaces and environmental 15-20 15-20 15-20 15-20
sensitive areas (parks, urban
agriculture, recreation, mineral
resources)

Standard 12. Manpower Requirement for Preparation of Structure Plan

Levels of urban center Professional
Small & Medium Towns  Architect planner/town planner/higher technician
 Geographer
Large Towns  Architect planner/town planner
 Economist
 Sociologist
 Geographer

Cities  Architect planner/town planner

 Economist
 Sociologist
 Geographer
 Civil engineer

In cases where certain tasks lead to the requirement of particular professionals other than those
shown above, municipalities could hire such professionals for those specific tasks.

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Standard 13. Breakdown and Average Share of Time to be Allocated for each Planning Stage
Maximum Share of time (%) for each phase of structure plan
time
required
Level of
for phase phase Phase phase phase phase phase phase
urban area
structure 1 2 3 4 5 6 7 8
plan
preparation
Small and
Medium 6 months
Towns 15
15 20 30 10
Lagre Towns 9 - 12 10 -- --
and Cities months
15-24
Metropolitans
months

The time required for SP preparation increases with the complexity. These standards are
defined based on the result of a sample survey carried out to assess the time required to plan
selected urban centers.

Standard 14. Criteria for Monitoring and Evaluation

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Developing
Data Collection Planning and Integration of Approval of
Strategies
and Analysis Design Proposals Plans
and Options
 Are the strategies
interpreted well?
 Are processes Has the local
 Appropriateness How are council held
of techniques followed
 What are the conflicting public
used for data appropriate?
proposals discussion to
collection scenario  Do recommended
identified and identify need
 Length of time developed solutions solve the
resolved or for new plan
taken  What are the identified
compensated? Has the work
 Spatial coverage options problems?
Are the programme
of data collection considered,  What are the
processes and given
 Subject of data and are they principles? Steps? actions sufficient time
collection exhaustive? And procedures involved in for public
 Contents of data  How are they considered? integrating the participation
collected evaluated:  Are public proposals during the
what are the participation
 Relevance of appropriate? different
criteria? How undertaken What is the stages of plan
data
are results sufficient? And process of preparation
 Guidance of data
summarized? what were the feed integrating the and
to identification of
 Do backs obtained and proposals into evaluation?
all problems
recommende how are they one holistic Are comments
 Are the visions
d strategies incorporated? package? And and
and missions meet  Are quality, is it recommendati
defined identified coverage, and appropriate? ons of
achievable and problems, content of outputs Are all stakeholders
appropriate? objectives, of components: recommendati forwarded at
 Are planning missions and plans, reports ons various stages
objectives well visions set appropriate and compatible incorporated
established? forth? sufficient? and well well?
 Are they shared Do solutions
by stakeholders integrated? Has the public
recommended been informed
address the well?
problems and
objectives set forth?

Standard 15. Standards for Amendment and Revision of Structure Plan

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Updating Revision Remarks

Structure plan Every data of 10 years Structure plan could be revised earlier
implementati  When the major assumptions of SP are
on should be changed;
entered as  When the land use proposals are no
executed longer binding due to a lot of or major
changes;
 When the proposals and the existing
reality are unmatched;
 When there are lots of requests for
revision from the public and stakeholders

The planning period for Structure plan of all urban areas irrespective of the level of urban
areas as specified in the planning law is 10 years. Depending on the results of the
implementation process within the planning period responsible body/ies should
undertake a needs assessment for next phase of planning. As much as possible, it is
preferable to revise part/s of the SP rather than resorting to the wholesale preparation of
a new SP. Contents of this manual should be applied in the revision of SP.

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REFERENCES
Adama Project Office, PACE Consulting Architects and Engineers, 2004. The Revised
Adama Master Plan Documents and Plans.
Educational Standards of Ministry of Education. Standards for Sport fields, Ministry of Sport
and Youth.
FDRE Council of Ministers (2005): A Proclamation to Provide for Urban Plans (Draft), Addis
Ababa.
Federal Democratic republic of Ethiopia, Development Strategies of Ethiopia: Agricultural
Development Led Industrialization (ADLI), Industrial Development Strategy.
FUPI, Reports, Master and Development Plans of Urban Areas.
GTZ,2000. IDP Guidebook.
Ministry of Federal Affairs (nd): Urban Planning Manual, Addis Ababa
Ministry of Federal Affairs, 2005. The Draft Urban Planning Law.
Ministry of Federal Affairs, 2005. The National Urban Development Policy (Draft Amharic
Version)
Ministry of Works and Urban Development (2006): Plan for Accelerated and Sustained
Development to End Poverty (PASDEP), Urban Development and Construction Industry
Component, Addis Ababa.
ORAAMP, 2003, Assessment of Urban Planning and Implementation Experience at Global
Level.
ORAAMP, 2003, Urban Planning and Implementation Manual (Draft).
ORAAMP, 2003. Review of local Planning Practices
ORAAMP,2003,The Revised Addis Ababa Master Plan Documents and Maps.
Solomon Mulugeta etal. 2004., Urban Sector Ethiopian Millennium Development Goals
Needs Assessment
UN, 2000, the Millennium Development Goals and other Documents.

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