110510 d4d accra pro positive analysis
TRANSCRIPT
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D4D
Document for Debate
110320 CiTi
Metropolitan Model
Sub-Saharan Africa
Finance, Economics and Urban Department, Urban Unit. FEU UR
Foreword
For more information, please contact:Pedro Ortiz (FEU UR) Email: [email protected]
Documents for Debate (D4D) are not official World Bank policy statements.
D4D are Documents to promote Debate on urban and metropolitan spatial issues, ground based
for tangible strategic priorities and action, all spatial focused as an unavoidable complement to
socio-economic policies. The aim of this series of Documents is to discuss, internally andexternally, the spatial issues of development as an integrated part of economic and social policies,
with the aim of providing through this debate insight and criteria for those who participate, and
help to focus their policy decisions in the frame of their own responsibilities.
PROPOSITIVE ANALYSIS
STRATEGIC SPATIAL LAND USE MODEL
FOR THE CITY OF
ACCRA
REPUBLIC OF GHANA
MARCH 20, 2011
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Foreword
The Propositive Analysis series produces a methodological approach to the global demand for strategic and
physical planning for the rapid growth phenomena of metropolises during the first decades of the 21st century.
Historical administrative boundaries have been overgrown by urban growth and expansion. Governance of
these territories confronts the difficulty of interadministrative dialogue of the territorial administrations involvedand, in some cases, administrative revision of structures, competences and boundaries. This is a process that requires
dialogue, compromise, agreements, and time.
Time is what growth does not respect. Growth will take and is taking place whether the administrative
framework is able to allocate it adequately or not. An administration must respond in the right manner, deciding the
adequate locations within a sustainable vision of the land use (compatibilities, synergies, bottlenecks) while
providing basic urban infrastructural, social, and economic facilities.
Growth is taking place and allocation that has to be rationally forecasted and confronted on the territory.
World Bank development strategies and policies stand on a three-leg stool: the Economic, Social and
Spatial built and environmental dimensions of Development. When dealing with physical investments(infrastructure, social facilities, productive equipment), all of which are tangible, the spatial component is the
support for economic and social policies. Most of time spatial dimension plays an essential role in coordinating
synergies or antagonisms among other sectors. Without the Spatial dimension, social or economic policies unrelated
to the interaction of the specific location, may be at risk of either being endlessly recurrent (non strategic) or
cyclically counterproductive (short-long term incompatibility). Recurrent ignorance of this third leg would
produce enormous costs due to metropolitan spatial chaos that very often precludes future reshaping, making
economic and social development impossible as well. The World Bank is well aware of that.
The methodological approach ofPropositive Analysis stands on:
1) The actual situation and characteristics of the metropolis
2) Highlighting the metropolis assets and potential
3) Applying a set of basic rules for intra land use location for a sustainable structure (see appendixUrban Regional Charter)
4) Developing a sectorial interdisciplinary rationale for the location of activities in a long-largescenario.
Propositive analysis is an indicative process. Neither the analysis nor the proposed solutions are in any way
compulsory.
It is a holistic interdisciplinary approach, where the different subsystems that compose the territory
(Basically: housing, transport, environment, productive activities and social facilities) are analyzed together and
framed in a comprehensive and consistent set of proposed solutions.
Propositive analysis looks to trigger debate, needs to be fed with specific and more detailed data and for the
analysis and further development of solutions.
The final analytical equilibrium and precision requires the input of the stakeholders of the territory subject to
strategic planning. Those inputs, divulgated, contrasted and debated must produce a consensus in society that makes
the plan implementable by all participants, each in their corresponding social role. The propositive analysis result is
an input for Governance
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I) How to Manage Explosive Growth
1) Accra is one of the most rapidly growing cities in the world: its built-up area increased by 6.5 %per year between 1985 and 2000. It also roughly doubles in size every 10 years.
2) The lack of public response with a consistent model for that growth makes the city inefficient and
inequitable.
3) The lack of efficiency marginalizes the city and the country in the world wide competitive
economy.
4) The lack of equity makes the population unable to integrate a participatory social and economic
system.
5) The result is inefficiency, poverty and long-term socio economic degradation.
6) The public administration is responsible for providing the necessary framework for the efficient
and equitable functioning of the city.
7) This paper provides input to help public administration fulfill that responsibility.
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II) Metropolitan Structural Features
1) Accra has a main directional axis and a secondary transversal axis.
2) The main axis is produced by the sea coast and the land topography gradients that emerge from
this coastline.
3) The secondary axis is the perpendicular one which runs inland from the coast.
4) Both axes have developed historically in a natural form and both urban settlements as well as
communication infrastructures have been determined by these features.
5) To write the script for a consistent future for Accra, we must start by writing within the context of
what the city IS in its history, its topography and its structure.
6) Reading the structural DNA of Accra and extending it in another dimension both in scale and
time.
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III) Inherited Structure
1) The apparently amorphous built-up area does in fact have an underlying structural pattern.
2) Accra has two superposed structures: The urban and the metropolitan.
3) The urban (historic) structure is related to the low scale centrality of the port. The urban structure
is radial and orbital.
4) The metropolitan structure is linear, and determined by the linearity of the coastline. Up to now,
the metropolitan structure is linear and well defined by an essential infrastructure facility: theAccra-Tema Motorway.
5) For the future, Accra must already consider giving depth to the linear system by providing it a
second dimension grid base.
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IV) Radial-Orbital Versus Grid-Reticular Metropolitan Systems
1)The Radial-Orbital system has a single centrality. This induces several peculiarities:
a. There is competition to be in the center and land prices reflect this competition. Land
scarcity means the price is controlled by the supply side of the market with a
tendency to speculation.
b. The centripede system produces traffic congestion, and partial collapse extends
within the structure as no alternative route is available for the radius.
c. The linear infrastructure length per serviced land increases as the system expands.
2) The Grid-Reticular system has polycentric potential.
a. Multiple potential locations for activities. Its a demand driven market.b. Traffic spreads and multiple alternative routes exist for a trip. The traffic alterations
self-equilibrate.
c. The linear infrastructure per meter of land use is constant with the expansion of the
system.
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V) Structural Directionalities
1) The existing road network, although not consistently developed, reflects the two structural
directionalities of the metropolitan structure.
2) The road system of Accra must be developed along the well-conceived longitudinal axis (East-
west) off the Accra-Tema Motorway and the transversal axis (North-south) of the Nsawam Rd
3) New land protection must be reclaimed for future vital infrastructure. If financial constraints
make actual acquisition an impossibility, it must at least be defined and legally protected for
housing the required infrastructure when necessary.
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VI) Provision for Future Metropolitan Structure
1) It is time to determine that future structure, both in the main directionality as in the secondary
one, because the rapid growth of housing is producing an infill of urban interstices.
2) The main directionality, defined by the east-west coast and Accra-Tema Motorway, requires
a similar future provision to the north to articulate the urban expansion beyond the urban
expansion.
3) The secondary directionality requires multiplying the accessibility of the seacoastdevelopments to the inland infrastructures and the Nsawam arterial road. Several
perpendicular roads have to be forecasted, balancing the need of minimum disruption of the
existing urban fabric and the watersheds environmental assets: rivers and waterways.
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VII) Development of the Structure
1) Though the map has been surpassed by actual urban explosion, the underlying structure of the
metropolis is there and prospective work can be done within that necessary framework.
2) The interstices between the consolidated urban areas, most of them already covered, must be used
to introduce:
a. The future roads to respond to the growth of traffic (Final motorization figures in the
range of 0.7 cars per person).
b. The environmental protected areas for green peri-urban assets.
c. The regional social facilities needed and not yet provided for.
d. Economic land must be provided along the freeway infrastructures helping, as a buffer
zone, to protect residential areas from highway visual, air and acoustic pollution.
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VIII) Road Network
1) The map reflects the contradictory structures of:
a. The original, radial-orbital urban system, clearly seen by the two diagonals northwest and
northeast coming out from the port area, and
b. The grid-reticular system of the metropolitan area, reflected by the Accra-Tema
Motorway and the Nsawam Road as well as by the coastal road.
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IX) Structuring Rail Network
1) The most important infrastructure necessary to build up a metropolitan system is the mass transitinfrastructure. The existing railroad track network is the most important feature to develop
passenger public transportation, essential to all future metropolises.
2) Two lines define the rail network:
a. The inland line which serves the secondary regional towns in the hinterland of Accra.
b. The coastal line that reaches the secondary metropolitan centre of Accra: Tema.
3) Both lines have to be exploited for passenger service as both run across consolidated urban fabric.
4) New urban fabric requalification centralities (see appendix) have to be created around the future
transit stations.
5) The non-consolidated fabric layout can provide the opportunity for new developments that are
equilibrated, efficient, equitable. Such a socially sustainable objective would also contain a
provision for social facilities provision as well as affordable social and market housing, both
social and market housing.
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X) Development Structuring Centralities
1) The main centrality points in the rail network are defined by the territorial structure. Main urban
centers require a station.
2) The urban structure around those stations must be adapted to house the synergic elements that
define a centrality.
3) Metropolitan urban centralities: Accra, Tema, Dome, Ashiaman and Nsawam are obvious
regional centralities.
4) Metropolitan functional centralities: The rail lines junction and the airport city are functional
ones that have prime importance.
5) Secondary centralities can be established: Those should be intermediate locations defined in
terms of the distance between them and the urban units they have to serve.
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XI) Focusing on Zooming Down Scale: Central Accra
1) Transformation of a radial system into a reticular one presents difficulties. Two options are
available:
a. Leave the radial system at the urban centre and adapt the two systems where they interact
(where they connect).
b. Adapt and transform, within the possible framework, the radial system of the urban core
to a reticular philosophy.
In this case:
i. Diagonals will downgrade/upgrade from the urban primary traffic network to a
more civic pedestrian space for urban life and quality environment.
ii. Some road segments will duplicate their functions with the potential danger ofsaturation due to over-demand.
2) The urban centralities will build up along the railroad line, on the side of the main thoroughfares
to make compatible:
a. Road accessibility (and environmental impact)
b. with urban pedestrian quality life.
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XII) Tema Centrality
1) The secondary metropolitan centrality of Tema is a very important element for Accras
equilibrium.
2) Tema is the final station (for the moment) of the metropolitan commuting train service to be set
up on the existing infrastructure of the rail tracks.
3) Along the line to Tema some other second-tier and minor centralities can be established.
4) Environmental protected areas must be enforced to avoid the urban invasion of uncontrolled
settlements.
5) The main road network can border those environmental areas to prevent housing invasion and
enforce an efficient limit/barrier for both housing and environmental assets. Roads should only
invade and cross the environmental assets strictly when necessary and at a minimum length. In
the future the establishment of environmental bridges (see appendix) can be considered.
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XIII) Mid-Town Metropolis
1) The gap between Accra and Tema, which was an important asset just a few years ago, has been
filled with uncontrolled settlements. Some spatial urban order has to be implemented in the
remaining unbuilt sites and some spatial urban policies set up for the uncontrolled developments.
2) Collapse of this area means definite collapse of Accra and its relegation to marginal roles in the
global economy. The strategy for this area is a strategy of national importance and national funds
and finance should be involved to the utmost degree.
3) Location of stations along the commuter rail line would create urban centralities. Those
centralities must structure the urban pattern to give it both form and function.
4) Density and provision of services (social, institutional, commercial, housing) should be organized
on those centralities (see appendix). Areas not served by rail must also be addressed with urban
structuring policies.
5) Interstitial areas must be protected for environmental purposes as well as for infrastructural
priorities.
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XIV) The Urban Centralities and the Regional Centralities
1) The final metropolitan structure built on the mass transit commuter rail service (300.000 trips per
day with the current network) would be built with the following profiles:
a. Metropolitan line:
i. First rank metropolitan urban stations: Accra central, Bifurcation, Tema
ii. First rank metropolitan functional stations: Airport City
iii. Secondary metropolitan urban stations: on consolidated built areas
iv. Secondary metropolitan urban development stations: on undeveloped interstices
or unconsolidated urban growth
b. Regional line:
i. Regional stations: Dome, Ashiaman, Nsawam
ii. Regional extensions: Madina, Weija, etc.
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XV) The Transport and Urban Land Integration
1) The superimposition of rail and road networks constitutes the full strategic picture of Accras
metropolitan structure.
2) The difference between the two transport systems is that the rail system must be radial and the
road system must be reticular.
3) Rail-Radial: to foster the use of the mass transit for accessibility to the historic central core and
the urban centralities. To substitute private transport accessibility with congestive costs, to
promote transport accessibility with economic and social benefits both in public as in private
costs.
4) Road-Reticular: to foster consistent accessibility, especially to the productive, industrial and
service sites, and to dissolve congestive centrality network patterns.
5) The intersections of the two systems are opportune locations that have to be used with strategic
vision for regional function locations (see appendix).
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XVI) Accra Priorities
The long-term structural elements being considered for urgent implementation have to be prioritized.
1) Mass Public Transport: The first short term priority is to exploit the huge potential of theexisting rail line structure.
a. Restructuring of the tracks will most likely be necessary but the increase of moving
material from secondary international markets will not require a high financial outlay and
can be based on a progressive policy and services build-up approach.
2) Road Network: The metropolitan structure as we have seen is not concentric. The transformation
from a radial structure to a reticular one has already been made in Accra. This is a tremendous
asset that has to be exploited and gives Accra an advantage against other global/international
cities.
a. The Accra-Tema Motorway has to be finished with a freeway profile, but firstly and even
more important than construction, is to limit/prohibit urban side road developments
which will infringe and forever limit the freeway capacity in the long term.
b. To protect the priority of future necessary infrastructure on the interstitial unbuilt or
unconsolidated urban land. The future sustainability of the metropolitan accessibility
depends on it.
c. To define and obtain the land for the future freeway north of the Accra-Tema Motorway,
the next structural trunk road that will be necessary for future growth.
3) Environmental Protection: To protect the unbuilt areas within the metropolitan structure, with
special attention to the waterways and humid areas not yet invaded by urban settlements.
4) Social Housing and Metropolitan Structure: The land housing provision is part of the
efficiency of the metropolitan system both in equity and economic terms. It requires immediate
action to organize the explosive expansion of Accra. Priority location of housing is along the rail
centralities. Land must be obtained and built upon with a metropolitan management policy. It is a
short term necessity with a long term vision. Centralities will be required in an intermodal and
mixed-use approach (see appendix).
For more information, please contact (in Washington): Pedro Ortiz (FEU UR) Email: [email protected]
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Appendix:WB Area relevant projects
GH-Economic Management Cap. Bldg. Proj. Ghana
Project ID: P092986 | Project Status: Active
Abstract* last updated: 30-NOV-2007
This Project Paper seeks to (a) provide an additional credit to the
Republic of Ghana for the Economic Management Capacity Building
(EMCB) Project; and (b) introduce certain changes in the project
and accompanying amendments to the project's legal documents.
The additional Credit would help finance the costs associated with
scaling up the Public Sector Reform (PSR) Component (Part A) of
the EMCB Project for which the Government of Ghana (GoG). The
proposed additional financing and restructuring would support
extending the PSR activities of the Project with a focus on (i)
increasing the capacity of the public service for accountable,
transparent, timely, and efficient service delivery through reform of
Ministries, Departments and Agencies (MDAs); (ii) establishment of
a sustainable pay policy and effective HR management framework
in the public service; and (iii) a pilot program for financing of
severance payments to support restructuring of select Subvented
Agencies (SAs).
Transport Sector Project
Ghana
Project ID: P102000 | Project Status: Active
Abstract* last updated: 02-JUL-2009
The objective of the Transport Sector Project for Ghana is to
improve mobility of goods and passengers through reduction in
travel time and vehicle operating cost, and to improve road safety
standards. There are seven components to the project. The first
http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.html -
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component of the project will support to Ministry of Roads and
Highways (MRH). This is targeted at carrying out feasibility studies,
developing a geographical system, strengthening management
information system, and participation in training courses. The
second component of the project is support to road sector and
educational entities. This component will support the activities of
four agencies: Driver and Vehicle Licensing Authority (DVLA),
National Road Safety Commission (NRSC), Kwame Nkrumah
University of Science and Technology (KNUST), and Government
Technical Training Center (GTTC). The third component of the
project is improvement of trunk roads. This will be implemented by
the Ghana Highway Authority (GHA) and consist of rehabilitation of
a major trunk road from Ayamfuri-Asawinso, including provision of
technical assistance for the supervision of the works and related
environmental and social safeguards measures, capacity building
and equipment. The fourth component of the project is
improvement of urban roads and infrastructure. This component
will be implemented by Department of Urban Roads (DUR) andconsist of rehabilitation of arterial roads (Burma Camp Road and
Giffard Road) and public transport infrastructure, including
provision of technical assistance for the supervision of the works
and related environmental and social safeguards measures, and
capacity building. The fifth component of the project is
improvement of feeder roads. This component will be implemented
by DFR working towards improving rural access through feeder
roads rehabilitation and spot improvement program. The sixth
component of the project is support to Ministry of Transport (MOT)
and other transport sector entities. The support being provided to
the MOT will benefit: Ghana Airports Company Limited (GACL),
Ghana Railway Development Authority (GRDA), Ghana Civil
Aviation Authority (GCAA), Ghana Ports and Harbors Authority
(GPHA), Regional Maritime University (RMU), Ghana Maritime
Authority (GMA), and Volta Lake Transport Company (VLTC). The
seventh and the final component of the project is project
management. Provision of technical assistance, vehicles,
equipment and other operational support to the implementing
agencies to carry out coordination, administration, monitoring,
evaluation and audit of the project.
Land Administration Project Ghana
Project ID: P071157 | Project Status: Active
Abstract* last updated: 03-NOV-2008
http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.html -
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The objective of the Restructuring of the Land Administration
Project for Ghana is to undertake land policy and institutional
reforms and key land administration pilots for laying the foundation
for a sustainable decentralized land administration system that is
fair, efficient, cost effective, and ensures land tenure security. Thisphase of the program will focus on the effective implementation of
the policy and institutional reform agenda in the sector, whilst
carrying out some pilots in connection with, inter alia,
decentralization of deeds registration, systematic titling,
demarcating allodial boundaries, reducing backlog of land disputes,
alternative dispute resolution, community based land use planning
and management, development of a computerized land information
system, establishment/strengthening of customary land
secretariats, inventory of state acquired and occupied lands,
revaluation of district assemblies' properties, and establishing
geodetic reference points.
Ghana Urban Transport Project
Ghana
Project ID: P100619 | Project Status: Active
Abstract* last updated: 05-JUN-2007
The key objective of the Urban Transport Project is to: Improve
mobility in areas of participating metropolitan, municipal or district
assemblies (MMDAs) through a combination of traffic engineering
measures, management improvements, regulation of the public
transport industry, and implementation of a Bus Rapid Transit
(BRT) system. The key GEF objective is to: Promote a shift to moreenvironmentally sustainable urban transport modes and encourage
lower transport-related Greenhouse Gas (GHG) emissions along the
pilot BRT corridor in Accra. The project has five components: i)
Institutional development which will strengthen capacity of
Ministries and agencies concerned with urban transport, transport
operators and MMDAs; ii) Traffic Engineering, Management and
Safety whose subcomponents are (a) traffic management in the
http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.htmlhttp://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/GHANAEXTN/0,,pagePK:141159~piPK:141110~theSitePK:351952,00.html -
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Accra MMDA areas; (b) area-wide traffic signal control in the Accra
MMDA areas; (c) traffic management in the Kumasi MMDA areas;
(d) area-wide traffic signal control in the Kumasi Metropolitan Area;
(e) enforcement of traffic rules and education; and ( f ) design and
supervision of works under sub-components (a) through (e); iii)
Development of BRT system whose subcomponents are as follows:
(a) BRT infrastructure implementation (including segregated bus-
ways, interchange facilities, and terminals and facilities for
pedestrians); iv) Integration of Urban Development and Transport
Planning for Better Environmental Management v) Project outcome
monitoring whose subcomponents are studies to support the
monitoring of project outcomes through evaluation of (a) transport
and social impact indicators, (b) environmental impact indicators,
and (c) capacity development indicators.
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Appendix 2:
- Peri-urban land allocation principles (to be developed for WBI land use course)