City Development Concepts and Strategy for Sahiwaluu.urbanunit.gov.pk/Documents/ProjectDocuments/5/149.pdfPunjab Intermediate Cities’ Improvement Investment Program (PICIIP) City

Punjab Intermediate Cities’ Improvement Investment Program (PICIIP)

City Development Concepts and Strategy for Sahiwal Prepared by:

Government of Punjab Department of Planning and Development

With assistance from: Asian Development Bank Consultant Team P46526-PAK

December 2015

Punjab Intermediate Cities’ Improvement Investment Program

ICDS Development Concepts and Strategies - Sahiwal 2

Acknowledgements The Team wishes to thank the officials and officers of the Department of Planning and Development and the Urban Unit in particular for providing us with the opportunity to assist them with this work. Directing the entire exercise were Mr. Abid Hussainy and Ms Sani Zahra of the Urban Unit under the overall guidance of Dr. Nasir Javed, CEO Urban Unit, who provided endless assistance with access to data, logistical support, guidance, patience and sharing of their substantial urban knowledge. In Sahiwal, the Administrator, Mr. Kashif Muhammad Ali and his staff provided the essential local knowledge, guidance and support throughout. We must also acknowledge the time and contributions of the many private sector individuals and NGO representatives who took the time to provide insights and share their thoughts on Sahiwal.



Table of Contents

I. Introduction .................................................................................................................. 6

A. Background ................................................................................................................ 6 B. Goals and Objectives of the Program ......................................................................... 7 C. Objectives of City Development Concepts & Strategies .............................................. 7 D. Policy Context ............................................................................................................. 8 E. Approach and Methodology - City Development Concepts and Strategies .................10

II. Urban Development Principles & Concepts ..............................................................11

A. Urban Development Best Practices & Principles ........................................................11 B. Sustainability and Resilience .....................................................................................12 C. Urban Development Form & Processes .....................................................................14 D. Two Elements of Urban Development ........................................................................16 E. Urban Development Components ..............................................................................17 F. Urban Development Project Cycle .............................................................................17

III. Urban Institutions & Management ..........................................................................18

A. Governance ...............................................................................................................18 B. Institutional Development – A Tool to Gain Competitive Advantage ...........................18 C. How is ICDS Integrated and Institutionalised? ...........................................................23 D. Proposed ICDS Municipal Management Structure .....................................................23 E. Union Councils and Mahallah Level Governance: ......................................................24 F. Land Management .....................................................................................................24 G. Participatory Budgeting ..............................................................................................27 H. Participatory Budgeting and ICDS – A Policy Framework ..........................................27 I. Sustainability .............................................................................................................27

IV. Sector Concepts & Strategies .................................................................................28

A. Basic Urban Structure ................................................................................................28 B. Mobility Strategy ........................................................................................................29 C. Green Public Space Strategy .....................................................................................30 D. Social Development Strategy .....................................................................................31 E. Economic Development Strategy ...............................................................................33 F. Water Supply Strategy ...............................................................................................36 G. Sanitation & Sewerage Strategy ................................................................................37 H. Drainage Strategy ......................................................................................................39 I. Solid Waste Management Strategy ............................................................................39 J. Resilience Strategy ....................................................................................................40 K. Expanding the City - New Mahallahs .........................................................................40

V. Sahiwal Urban Development Strategy - Context .......................................................41

A. Summary Sialkot SWOT Analysis .............................................................................42 B. Sahiwal’s Vision .........................................................................................................43 C. Sahiwal - Existing Situation - Summary .....................................................................43

VI. Sahiwal Urban Development Strategy ....................................................................45

A. Development & Growth Options .................................................................................46 B. Preferred Development Option and the Strategy ........................................................47 C. Revised Urban Boundary ...........................................................................................48 D. Sahiwal Inter-Jurisdictional Joint Planning .................................................................49 E. Urban Form Strategy .................................................................................................50 F. Urban Regeneration, Redevelopment and Densification ............................................52 G. Infrastructure .............................................................................................................54



H. Population, Housing, Land & Infrastructure ................................................................58 I. City and Regional Economy Strategy .........................................................................58 J. Institutional Strategy ..................................................................................................61 K. Urban Design & Green ...............................................................................................62 L. Heritage .....................................................................................................................62 M. Climate Change Resilience Strategy ..........................................................................63

VII. Sahiwal - Strategic Summary ..................................................................................63

VIII. Implementation Plan ................................................................................................64

A. Integration ..................................................................................................................64 B. ICDS and Supporting Plans .......................................................................................64

List of Figures Figure I-1: Sahiwal Location .................................................................................................. 7 Figure II-1: Successful Cities ................................................................................................11 Figure II-2: Sustainable Development Goals .......................................................................13 Figure II-3: UN Pillars of Sustainable Cities ..........................................................................13 Figure II-4: Urban Growth Processes ...................................................................................14 Figure II-5: ICDS Components .............................................................................................17 Figure II-6: Urban Project Cycle ...........................................................................................18 Figure III-1: Urban Structure & Governance .........................................................................18 Figure III-2: Existing TMA Org Chart .....................................................................................19 Figure III-3: Integrating ICDS ................................................................................................23 Figure III-4: Proposed ICDS City Management Structure .....................................................25 Figure III-5: Land Management ............................................................................................26 Figure IV-1: Conceptual UC - Muhalla Structure - The Base ................................................29 Figure IV-2: Mobility Strategy ...............................................................................................30 Figure IV-3: Open Green Space Strategy .............................................................................31 Figure IV-4: Social Development Strategy ............................................................................32 Figure IV-5: Economic Develoment Strategy ........................................................................34 Figure IV-6: Informal Sector Hierarchy .................................................................................35 Figure IV-7: Providing Space for the Inormal Sector .............................................................35 Figure IV-8: Water Supply Strategy ......................................................................................37 Figure IV-9: Sanitation & Sewage Strategy...........................................................................38 Figure IV-10: SWM Strategy .................................................................................................39 Figure IV-11: Conceptual Example of a New Mahallah .........................................................40 Figure V-1: Sahiwal’s Existing Urban Form ..........................................................................43 Figure VI-1: Sahiwal Urban Development Concept ...............................................................47 Figure VI-2: Proposed New Urban Boundary Components ...................................................48 Figure VI-3: Proposed Sahiwal Urban Boundary - 2035 .......................................................49 Figure VI-4: Sahiwal’s Development Strategy - Urban Form .................................................51 Figure VI-5: Upgraded Mahallah ...........................................................................................53 Figure VI-6: Grain Market/Rail Redevelopment ....................................................................54 Figure VI-7: Conceptual Street Management ........................................................................55 Figure VI-8: Pedestrianised Market Street ............................................................................56 Figure VI-9: New Residential Land Requirements to 2035 ...................................................60 Figure VIII-1: Implementation Plan - Sahiwal ........................................................................65

List of Tables Table III-1: Municipal Goverance & the ICDS Approach .......................................................21 Table V-1: Summary SWOT Analysis - Sahiwal ...................................................................42 Table VI-1: New Residential Land Requirements .................................................................59 Table VI-2: New Infrastructure Cost Estimates ....................................................................61

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Acronyms

Term Description

ADB Asian Development Bank

ADP Annual Development Programme

Cantt Cantonment

CDIA Cities Development Initiative for Asia

CRVA Climate Risk and Vulnerability Assessment

DEM Digital Elevation Model

EPA Environmental Protection Agency

GCISC Global Change Impact Studies Centre

GDP Gross Domestic Product

GHG Greenhouse Gases

GIS Geographical Information System

GT Road Grand Truck Road

HR Human Resources

HQ Head Quarter

ICDS Integrated City Development Strategy

IPCC Intergovernmental Panel on Climate Change

MC Municipal Corporation/Committee

MDG Millennium Development Goals

NGO Non-Governmental Organization

ODP Outline Development Plan

OFWM On-Going Water Management

P&D Planning and Development

PEPA Pakistan Environmental Protection Agency

PFS Pre-Feasibility Stage

PHA Provincial Housing Authority

PICIIP Punjab Intermediate Cities Improvement Investment Program

PHA Provincial Housing Authority

PLGO Punjab Local Government Ordinance

ROW Right of Way

RUA Rapid Urban Assessment

SDG Sustainable Development Goals

SME Small and Medium Enterprises

SWM Solid Waste Management

TMA Tehsil Municipal Administration

TMO Tehsil Municipal Officer

TO (F) Tehsil Officer (Finance)

TO (I&S) Tehsil Officer (Infrastructure and Services)

TO (P&C) Tehsil Officer (Planning and Coordination)

UC Union Council

ULC Urban Local Council

UU Urban Unit (Punjab)

WHO World Health Organization



I. Introduction 1. The Governments of Pakistan and Punjab recognize the importance of well-developed urban centres for the future social and economic health of the nation. A number of forward-looking policies are in place guiding urban growth, and the Government of Punjab (GoPb) must now put those into practice. Intermediate cities are considered to be of particular importance. The introduction of an Integrated City Development Strategy (ICDS) approach as a framework for urban planning, implementation and management is a first step. GoPb, through the Department of Planning and Development and the Urban Unit is preparing the first two of these for the cities of Sialkot and Sahiwal. Furthermore, GoPb recognizes the need to incorporate measures to strengthen climate change resilience into all aspects of urban development, and is preparing a parallel Climate Risk and Vulnerability Assessment (CRVA). Both the ICDS and CRVA provide integrated guidance to an initial series of proposed infrastructure investments in the two cities supported by a Pre-Feasibility Study (PFS). This (Draft) City Development Concepts and Strategies for Sahiwal is the third phase of the ICDS and was prepared during October 2015 following completion of the Inception Report and Rapid Urban Assessments. This report should be read in conjunction with the PFS and CRVA Reports which are closely inter-related.

A. Background 2. Punjab has been the most rapidly urbanising province in Pakistan accounting for over 53% of the country’s urban population with rural-urban migration being the major driver. Urban environments and services are increasingly stressed as growth exceeds government’s capacity to keep pace. Since 2001 overall public sector investment in urban infrastructure and service delivery has declined1. Estimates indicate an annual shortfall in urban water

supply and sanitation of about $500 million in capital expenditure and about $95 million in operation and maintenance expenditures. 3. Exacerbating the urban servicing and management challenges is the fact that the majority of new growth is happening in a low-density, informal manner with little or no development control. Built-up areas extend well beyond official boundaries and adequate service zones. This is exactly the situation facing Sahiwal with some aspects further exaggerated by the dominance that the strong private industrial sector exerts on the city. As with other Pakistan urban centres the lack of capacity and inadequate investment result in:

inadequate infrastructure inadequate regulatory framework inconsistent urban statistics limited local governance capacity isolated planning standards limited professional knowledge of urban service financing keeping costs high and

qualities low limited development control

1 The investment program is included in ADB 2014 Country Operations Business Plan: Pakistan 2014-2016, Manila



B. Goals and Objectives of the Program 4. The impact of the investment program will be improved quality of life of the residents of the selected cities of Punjab province. The program outcome will be improved quality of urban services available to the residents of those cities. Key outputs will include:

Introduction of integrated urban planning Improved institutional framework for urban services at the city level Strengthened business processes of urban utilities Improved urban infrastructure

Figure I-1: Sahiwal Location

C. Objectives of City Development Concepts & Strategies 5. The Integrated City Development Concepts and Strategies (ICDS) provide the short, medium and long-term frameworks for socio-economic and climate-resilient development in these cities, while also promoting the concepts of competitive cites, green cities and inclusive city development. More specifically, the ICDS sets an integrated, strategic approach to policy development and implementation incorporating the needs and aspirations of a full cross-section of stakeholders to achieve the city’s own future vision.



D. Policy Context 6. The City Development Concepts and Strategies are prepared within the context of a number of higher-level Government policies and guided by ADB and CDIA development policies. 1. Pakistan and Punjab

Pakistan 2025: One Nation - One Vision Punjab Growth Strategy 2018 Punjab Urban Development Sector Plan 2018.

The underlying principles of this Plan recognize that cities are the Engines of Growth; are central to Punjab’s long-term growth strategy; and will only fulfil those roles is they concentrate on Density and Conglomeration. These two words are fundamental to all that follows.

Punjab Mid-Term Development Framework 2013-2016 (MTD 2013-2016) Pakistan Vision 20252: 7. Unlike the past versions, Vision-2025 also provides implementation aspects. It encompasses a road map and an implementation strategy for Pakistan for the next one decade. Pakistan Vision 2025 is designed to represent an aspirational destination. It will serve as a critical guide-post for the development of an effective strategy and road-map to reach the national goals and aspirations. It is not meant to represent the resultant strategy and programme itself. The Vision will be realized through strategies and programmes defined in associated five-year and annual plans. The seven pillars of Vision-2025 are:

1. People First: Developing social and human capital and empowering women 2. Sustained, indigenous, and inclusive growth 3. Governance: Democratic governance: institutional reforms and modernization of

the public sector 4. Security: Energy, water, and food security 5. Entrepreneurship: Private Sector and entrepreneurship-led growth 6. Knowledge Economy: Developing a competitive knowledge economy through

value addition 7. Connectivity: Modernizing transport infrastructure and regional connectivity

Punjab Growth Strategy3 8. For sustained improvement in living standards, the growth strategy has to be private sector-led, employment intensive and export intensive, regionally balanced and environmentally sound. The strategy for growth, furthermore, has to address the unsatisfactory health and education outcomes that lower living standards of the poor. Punjab’s growth strategy also has to provide, in tandem with initiatives of the Federal Government, an adequate safety net for the bottom quintile of the population. 9. The Government believes that for sustained job creation and improvement in living standards, we must tap into several drivers of growth, which underpin the proposed Growth Strategy 2018. Economic growth in Punjab must be:

2 Source: Pakistan 2025, One Nation – One Vision, Planning Commission, Ministry of Planning, Development &

Reforms, Govt. of Pakistan, 2015. 3 Source: Punjab Growth Strategy 2018, First Draft, Planning & Development Department, Govt. of Punjab,

Lahore, 2013.



Led by the Private sector Based on improvements in Productivity of resources Focused on employment intensive job creation Anchored in better functioning urban clusters Bolstered by better skilled and more employable youth by addressing critical

gaps in human capital

10. The instruments for implementing the Punjab Growth Strategy 2018 are:

Public funds in the Provincial Annual Development Program (ADP), including

Donor assistance. Provincial capacity to forge public-private partnerships in the provision of

physical and social infrastructure. Provincial regulatory framework that affects Punjab’s investment climate

and encourages productivity-led growth. Engagement with the Federal Government to enhance the enabling

environment for Punjab’s growth (i.e. sound macro-economic management, conducive trade policy, adequate energy, efficient logistics and connectivity).

Engagement with the Federal Government to improve the Federal regulatory framework that affects Punjab’s investment climate (i.e. tax policy and tax administration).

Punjab Urban Development Sector Plan, 2018

11. A central principle of the Sector Plan is that “density” and “agglomeration” are central to economic development, higher productivity, social equity and human development. To make Punjab competitive for investment and development, cities are going to play a vital role, because they can benefit from a large and skilled labour force, economies of urban scale, and economies of agglomeration (i.e. Efficiency resulting from clustering of f irms in a given industry or related industries), and the resulting demand for goods and services.

12. Further, rural-urban migration and urbanization can only lead to higher income if manufacturing and services grow fast enough to absorb the supply of labour. Pakistan will have to invest in many cities at the same time to ensure a more geographically balanced rate of urbanization and the creation of a system of cities an efficient network of urban centres whose manufacturing and services industry are connected. Harnessing and promoting this approach of “system of cities” will lead to faster job creation and higher growth of productivity.

13. Placing urban development (with an emphasis on density and commerce) at the Strategy has several advantages: dense multi-function urban areas create jobs and are free from barriers to entry and exit; and density attracts investment and helps the growth of the construction of industry as well as commerce, which are employment friendly. 2. Asian Development Bank (ADB) 14. In addition to ADB’s overall mandates, at the urban level it is guided by the Urban Operational Plan 2012-2020, which recognises cities as the keys to social and economic growth and stresses the need to achieve a more integrated “3E” approach to urban investment:

Environmental (Green) Equitable (Inclusive) Economic (Competitive)



3. Cities Development Initiative for Asia (CDIA) 15. CDIA’s mandate is to contribute to sustainable and equitable urban development, leading to improved environmental and living conditions for all in Asian cities. CDIA full recognizes the value of an Integrated City Development Strategy as the platform for inclusive, competitive and resilient cities. The current project is guided by their expertise.

4. Global 16. The UN’s newly released Sustainable Development Goals (SDG) follow upon the previous MDGs and are targets for the year 2030. They provide overall urban development guidance for the Governments of Pakistan and Punjab, and the ADB.

Goal 1: End poverty in all its forms everywhere. Goal 2: End hunger, achieve food security and improved nutrition and promote

sustainable agriculture. Goal 3: Ensure healthy lives and promote well-being for all at all ages. Goal 4: Ensure inclusive and equitable quality education and promote lifelong

learning opportunities for all. Goal 5: Achieve gender equality and empower all women and girls. Goal 6: Ensure availability and sustainable management of water and sanitation for

all. Goal 7: Ensure access to affordable, reliable, sustainable and modern energy for

all. Goal 8: Promote sustained, inclusive and sustainable economic growth, full and

productive employment and decent work for all. Goal 9: Build resilient infrastructure, promote inclusive and sustainable

industrialisation and foster innovation. Goal 10: Reduce inequality within and among countries. Goal 11: Make cities and human settlements inclusive, safe, resilient and

sustainable. Goal 12: Ensure sustainable consumption and production patterns. Goal 13: Take urgent action to combat climate change and its impacts. Goal 14: Conserve and sustainable use the oceans, seas and marine resources for

sustainable development. Goal 15: Protect, restore and promote sustainable use of terrestrial ecosystems,

sustainable manage forests, combat desertification , and halt and reverse land degradation and halt biodiversity loss.

Goal 16: Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels.

Goal 17: Strengthen the means of implementation and revitalise the Global Partnership for Sustainable Development.

E. Approach and Methodology - City Development Concepts and Strategies 17. Preparation of the City Development Concepts and Strategies continued to build on the participatory stakeholder process initiated during the Inception and RUA stages. Inputs were sought from a wide range of interest groups, field work was continued, and more examples of global best practices woven in with appropriate adaptations for the Punjab context.



II. Urban Development Principles & Concepts 18. This Chapter presents a series of urban best practices and principles applicable to all cities in Punjab and Pakistan. Then at a more specific level, it presents a series of Sector Development Strategies applicable to both Sialkot and Sahiwal. These are the “building blocks” for preparation of the overall City Development Strategies. The Sector Development Strategies are designed to be applicable to upgrading the existing city; incorporating and formalising surrounding peri-urban areas, and planning new expansion areas.

A. Urban Development Best Practices & Principles 19. Preparation of this Urban Development Strategy is guided by a series of Global Best Practices, internationally applied Urban Development Principles, a series of typical urban development processes and appropriate development concepts for the Punjab context. 20. A number of guiding "Best Practices" are currently accepted world-wide as fundamental to successful and resilient urban development. These apply equally to the urban centres of Punjab as they strive to achieve their Visions of healthy, competitive, inclusive, liveable and resilient. Figure II-1 illustrates some components of a successful city.

Figure II-1: Successful Cities

Source: HABICO

21. Application of the following Guiding Principles will further ensure that Punjab’s cities achieve their vision. These may also serve as monitoring and evaluation references to check that individual planning and development proposals are supportive of individual city’s goals.



Cities must be "inclusive" making appropriate provision for all socio-economic groups.

Plan preparation must be consultative and participatory involving a full range of stakeholders.

Plan preparation must integrate planning and development needs across all levels of government, civil society and the private sector.

Plan preparation must integrate all sectors: social, cultural, economic, environmental, institutional, financial and physical (land, infrastructure, building).

Planning proposals must be locally appropriate, acceptable, implementable and affordable.

Planning proposals must recognize the needs of the full spectrum of socio-economic groups.

Planning proposals must provide for the needs of the full range of both formal and informal economic sectors.

Planning proposals must encompass consideration of environment, gender, sustainability and resilience.

There must be a balance between development and nature to protect the health of all.

There must be a balance between heritage and development; Development must provide convenient access for all to a full range of economic

opportunities and social amenities; Planning proposals must recognize that a city needs a "heart and soul" in

addition to roads, pipes and buildings. Planning proposals should build on the good to take full advantage of existing

strengths. Maximum use should be made of existing (or rehabilitated) infrastructure in

existing built-up areas before new land is developed. i.e. urban sprawl should be minimised;

Development must be strictly managed in all parts of the Plan Area to eliminate inefficient land use, destructive invasion and ad hoc expansion;

Elements of a city must be integrated so that the goals of one sector support the goals of another.

22. Another set of Principles to be considered that focus more specifically on sustainable and resilient urban development include: 4

Sustainability (Resilience): committing to environmental management; Accessibility: facilitating ease of movement; Diversity: maintaining variety and choice for all; Open Space: maintaining natural systems to make cities green; Compatibility: maintaining harmony and balance; Incentives: to renew and redevelop declining areas; Adaptability: able to accommodate change; Density: design compact cities with appropriate transit; Identity: create and preserve a unique sense of space.

B. Sustainability and Resilience 23. Pakistan and Punjab are particularly concerned with developing strongly resilient cities to address both climate change and economic impacts. This is also one of three main points of

4 "City Building", Kriken, John Lund, 2010



ADB’s Urban Operational Plan 2012-2020. One set of resilience/sustainability goals applying not only to cities, but nations as a whole is illustrated in Figure II-2.5 24. The UN describes 4 Pillars of Sustainable Cities6 (Figure II-3), all of which have direct application to future of Sialkot and Sahiwal and the Development Strategies prepared to support them.

Figure II-2: Sustainable Development Goals

Figure II-3: UN Pillars of Sustainable Cities

5 Urban Gateway

6 UN/DESA, Development Policy and Analysis Division



C. Urban Development Form & Processes 25. All urbanising areas grow in two fundamental ways: densification and expansion. Sustainable cities grow through a managed combination. Within these two broad categories are a number of more specific development processes influencing growth and the form of the city. The following describes examples of common development processes that will be found in various combinations and proportions in all Growth Strategies. Figure II-4.

Figure II-4: Urban Growth Processes

1. The Drivers 26. Urban areas grow as a result of social and economic demands driven by private sector interests, formal and informal, and desirably with public sector support. The benefits of close proximity and collective synergies are what allow cities to exist and thrive. Trying to keep a balance between public and private initiatives is the underlying key to efficient, sustainable urban management, and will clearly be seen as an underlying theme throughout this document. 2. Upgrading and Rehabilitation 27. One of the key principles of sustainable urban economics is to make maximum use of existing investments in infrastructure and serviced lands. This mandates that already serviced properties be put to best use in order to justify the costs of infrastructure and create



the capacity to pay property taxes and service fees to maintain infrastructure - assuming the required municipal management practices are in place. Large portions of built up and previously well-serviced areas in both of the Project's urban centres have been allowed to decline through failure to adequately invest in infrastructure management and maintenance, or development controls. Along with service decline comes a decline in the quality of development on the adjacent properties with accompanying challenges to the overall health, safety and economic well-being of residents. 28. In general, upgrading and rehabilitation is the most cost-effective way of improving urban social, economic, physical and environmental conditions. However, for many under-resourced local and provincial government agencies, and for many funding agencies, rehabilitation is considered too complex to coordinate and not politically attractive enough to be a priority. New, easier, more visible, but typically more expensive "green field" developments are chosen instead. 3. Redevelopment and Regeneration 29. Redevelopment may apply to individual property improvements, i.e. buildings, or to whole sections of a city including infrastructure, public spaces and buildings. In many situations throughout the Project's urban centres poorly constructed, dilapidated, under-utilised, incomplete or abandoned structures occupy otherwise well-serviced and potentially productive sites. These structures represent poor use of infrastructure investments, may be health or safety hazards, reduce the vitality of a community and are generally an impediment to efficient and sustainable urban growth. There are numerous reasons for the abundant number of these structures including limited owner resources, limited access to development finance, weak land management and development control, and lack of property tax motivation. However, putting in place mechanisms to encourage the redevelopment of underutilised sites either for their original purpose or something more appropriate in current conditions is essential to affordable and sustainable urban development. The more holistic regeneration of sections of the city will enhance city revenue potential and improve residents’ quality of life.

4. Infill 30. Returning to the fundamental principle that economically efficient urban development must make maximum use of existing infrastructure investments, it is imperative that serviced urban lands be put to the most appropriate productive use. Many sites sit vacant in all parts of all the Project's urban centres. The reasons again are varied included traditional cultural values, but the absence of a free, fully functioning land market and measures to encourage development, such as effective property tax, make it both difficult and not worthwhile to either develop or sell undeveloped lands.

31. Urban areas cannot afford to support empty land while forcing new develop to spread outwards with the associated infrastructure costs, inconvenience and environmental impacts. An overview look at both Sialkot and Sahiwal (without detailed calculation) suggest that much of projected urban population growth in the two over the next 15-20 years could quite easily be accommodated within the current built-up boundaries if vacant or underdeveloped lands were fully utilised.

5. Expansion 32. Regardless of the amount of rehabilitation and infilling, there will always be legitimate requirements for some amount of urban expansion. At some point population growth will exceed the amount of developable land within the current built-up area, or new opportunities not anticipated in previous planning and appropriate for expansion lands will emerge.



Typically, expansion should either be contiguous with existing built-up areas, infrastructure and services for economic sustainability, minimised new transportation needs, etc. or clearly defined and well planned satellite development. Random sprawl must be avoided. Long-term planning for urban development must take this into account by exerting some level of control over a broad adjacent "Planning Area" to ensure that ad hoc development does not preclude orderly expansion and economic servicing when the need arises. The current situation in both Sialkot and Sahiwal is one of ad hoc sprawl which is going to present difficulties for future managed, competitive and resilient growth. 6. Satellite 33. Satellite development refers to going outside of an existing built-up urban area, skipping over an area of undeveloped or underdeveloped land, and establishing a new development node. This may be functionally specific as in the development of an industrial satellite, or it may take the form of a "New Town" comprising the full range of social and economic amenities required by the new local population. The concept of "satellite" developments is sometimes perceived as a solution to the problems of existing built-up areas and the complexities of trying to rehabilitate them: ignore past mistakes or inefficiencies and attempt to start over again. However, it is typically far more economically viable to rehabilitate than it is to start over again. The urban centres of Punjab are already seriously lacking in municipal resources to maintain existing infrastructure and services. Developing a new satellite means full new investment in complete infrastructure, housing, and social and economic amenities - something that Punjab is ill-prepared to afford at the moment. However, new capital expenditures and their related large-scale contract opportunities are typically, and unfortunately, more attractive to decision makers than rehabilitation and maintenance expenditures. In other instances there may be a particular economic opportunity that lies outside of the main urban area and development of a supporting satellite makes sense. This is certainly the case with desired industrial development and improvements in both Sialkot and Sahiwal. These are discussed under their respective Development Strategies. 7. Consolidation 34. This term applies to the combination of upgrading, rehabilitation, infilling and redevelopment. Collectively it is typically the most socially, economically and environmentally viable first approach to addressing the needs of an urban area. Consequently, consolidation features prominently in the Cities Development Concepts and Strategies.

D. Two Elements of Urban Development 35. Urban development includes the two elements of "software" and "hardware" which must be carefully integrated. 1. "Software"

36. "Software" refers to the institutional components: governance at all levels, management, administration, political will, legal and regulatory, and community involvement. These are typically the most difficult components of sustainable and resilient urban development to establish efficiently and maintain, often the most ignored, the most easily abused, and by far the most important for sustainable urban growth and management. 2. "Hardware" 37. "Hardware" includes the physical components such as roads, water supply, sanitation systems, power supply, drainage channels and buildings. These are essential capital



expenditure items, the most common requests and usually the focus of urban development. These cost a lot and require constant management and maintenance to protect the investments and ensure continued benefit to the community. These are also the easy parts and the ones most politically attractive.

38. The Development Strategies presented here illustrate more of the hardware, but stress the fact that without fully established, institutionalised, trained, dedicated and adequately resourced institutional components, the hardware elements will fail to deliver the desired social and economic benefits.

E. Urban Development Components 39. Figure II-5 illustrates the range of integrated components (sectors) comprising a city. To develop a resilient, competitive and inclusive city all must be developed and mutually support one another. The “glue” to hold these together is institutional capacity and political will, while the process is based on participation. Strategies for developing and integrating these sectors are presented in Chapter IV.

Figure II-5: ICDS Components

F. Urban Development Project Cycle 40. Every project or program, including those proposed by PICIIP, require attention to the 3 stages of Plan, Implement and Manage. The “Manage” stage includes on-going monitoring and evaluation which identifies beneficial modifications and puts the process back into the Plan stage for improvement before continuing to implement. Too many urban projects are considered and funded only through the first two stages. The result is a rapid depreciation of capital assets through lack of maintenance, and/or continuation of projects/programs that are not being successful. Resilience, inclusiveness and competitiveness are threatened.



Adequate attention, resources and political will are essential for all stages. As stressed throughout, Institutional strength and institutionalisation of processes are the key. The next Chapter discusses Urban Management.

Figure II-6: Urban Project Cycle

III. Urban Institutions & Management

41. The urban institutional structures, capacities and processes, as stressed throughout the PICIIP, are the keys to successful cities. This Chapter reviews the current Institutional Structure identifying issues and opportunities; discusses “governance” at both formal and informal levels; pays specific attention to Land Management recognising that land is the foundation for urban development; and presents some suggested revised structures for institutionalising urban management consistent with the proposed paradigm shift to an Integrated City Development Strategic approach.

A. Governance 42. “Governance” of a city happens at a range of levels, formal and informal. Figure III-1. All must be considered if the city is going to respond inclusively to its full set of needs. The stress on “participation” during the planning and development process is a reflection of this.

B. Institutional Development – A Tool to Gain Competitive Advantage 43. The institutional situation is directly linked with City Competitiveness and “ease of doing business”. 44. Investors desire a location with a clear, transparent, consistent and predictable regulatory and approvals environment. That currently does not exist in Punjab’s cities.

Figure III-1: Urban Structure & Governance



There is also a need to tie functioning Institutions to sustainable urban management: full and sustainable tax and user fee collection, budgets based on reality and actually used/managed as planned – that would set the base for both city and private sector growth. 45. It is therefore important to address the issue of institutionalising the CDS and find a “home” to entrench the CDS into the province’s and cities’ planning/ development processes. Efficient integrated planning and development has not been occurring and the CDS is suggesting “go forward” improvements. These will take place within existing (or revised legislative instruments including: 1. Local Government Ordinance - 2001 46. Past performance of TMAs across the country has not been satisfactory. Headed by an elected Nazim (presently appointed Administrators in absence of elected House), under whom is a Tehsil Municipal Officer, and four Tehsil officers: an Engineer, Urban Planner, Finance officer and Regulations officer7, and the staff below them. The existing, typical city Organization chart is presented in a simplified form in Figure III-2. The four departments tend to work in isolation with little interaction or coordination. In the present set-up, there is no centralised Planning & Coordination Department, nor any monitoring and evaluation system to support a paradigm shift to Integrated Strategic Planning. 47. Many of the provincial functions have been devolved to local level. However a crucial deficiency is the lack of capacity of TMAs to carry out these functions. The Government is reverting back to Pre-2001 Local Government System under Local Government Ordinance 2013, which is closer to Local Government Ordinance of 1979.

Figure III-2: Existing TMA Org Chart

77 Their official designations in the same order are Tehsil officer Infrastructure, Planning & Coordination, Finance

and Regulations.



Source: TMA Budget 2015-2016 and TMA Staff

2. Punjab Local Government Act 2013 48. The Provincial Government intends to establish an elected local government system to devolve political, administrative and financial responsibility and authority to the elected representatives of the local governments; to promote good governance, effective delivery of services and transparent decision making through institutionalized participation of the people at local level; and, to deal with ancillary matters. The municipal institutions under the Act have not yet been established and the old system continues. 49. The “municipal services” to be provided under this act include urban planning and development control, all intra-city infrastructure networks, fire-fighting, roads, bridges and pedestrian ways. Parks and public green spaces are also municipal responsibilities. 50. Districts are divided into urban area and rural areas in the following categories:

Metropolitan Corporation

Municipal Corporation (Population more than 500,000)8

Municipal Committee (Population 30,000 to 500,000)

District Council for the rural area of a District 51. Some functions may be further devolved to Union Councils for improved and efficient service delivery to the citizens. Similarly, a local government may assign any of its functions

8At divisional headquarter, an urban area having a population less than five hundred thousand to be a

Municipal Corporation, and an urban area having a population less than thirty thousand to be a Municipal Committee.



to a public or private organization or enter into public-private partnership for efficient performance of any of its functions. Of particular importance to the adoption and implementation of the strategic CDS approach to city management is the need to formally and consistently coordinate plans between the various levels. 52. Detailed responsibilities of the various local bodies are contained in the Local Government Act 2013 and need not be repeated here. A summary of their potential roles, responsibilities, and integration into the ICDS process is presented in Table III-1. Responsibilities in the structure of local bodies under the Local Government Act 2013 is discussed below:

Table III-1: Municipal Goverance & the ICDS Approach Union Councils Relation to ICDS Municipal

Committees Relation to ICDS Municipal

Corporations Relation to ICDS

Community mobilization for maintenance of UC level Infrastructure.

ICDS Process - IEC Unit

Prepare spatial plans for the local government,

ICDS Process – Landuse cell

Approve spatial plans, master plans, zoning, land use plans

ICDS Process – Physical Planning Unit

tree plantation & landscaping

ICDS Process - Environmental Management Unit.

execute and manage development plans;

ICDS Process – Planning & Development Cell

environment control, environment,


Prevention/removal of encroachments

ICDS Process – Development Control Unit.

exercise landuse and zoning control

ICDS Process – Development Control Unit

urban design, urban renewal


provide and maintain rural water supply/sources of drinking water in coordination with community organizations,

ICDS Process- Infrastructure Services Cell

Provide/maintain public open spaces, graveyards, public gardens and playgrounds;

ICDS Process – Physical Planning Cell

ecological balances;

Environmental Management Unit.

Arrange for registration of births, deaths, marriages and divorces

ICDS Process - Social services for public health and welfare.

enforce all municipal laws, rules and bye-laws regulating its functioning;

ICDS Process – Magistrate, Legal aspects.

implement rules and bye-laws governing land use, housing, markets, zoning,


support relief measures in the event of emergencies/ natural calamities.

ICDS Process - Social services for public health and welfare. Entire City Administration

regulate affixing of sign-boards and advertisements;

Development Control Unit

prepare budget, approve taxes and fees; manage properties, assets financial statements and present them for internal and external audit in the manner as may be prescribed;

Planning & Development Unit, Finance & Taxation

identify deficiencies in delivery of services

ICDS Process – Infrastructure Services Cell.

provide, manage, operate, maintain and improve the municipal infrastructure and services

ICDS Process – Infrastructure Services Cell

prevent and remove encroachments; regulate affixing of sign-boards and advertisement

ICDS Process – Development Control Unit.

Execute development

ICDS Process – IEC Unit

fire fighting; parks, play

ICDS Process – Physical Planning

provide, manage, operate, maintain

ICDS Process – Infrastructure



Union Councils Relation to ICDS Municipal Committees

Relation to ICDS Municipal Corporations

Relation to ICDS

works in the prescribed manner; and maintain such statistics and data as may be prescribed and disseminate information on matters of public interest.

grounds, open spaces and arboriculture; slaughterhouses;

Cell. and improve the municipal infrastructure and services,

Services Cell

prevent and remove encroachments

ICDS Process – Development Control Cell

environmental control, urban design and urban renewal programmes;


prepare budget and long term municipal development programmes

ICDS Process – Planning & Development Cell

conserve historical and cultural assets; undertake landscape,


maintain a comprehensive data base and information system

ICDS Process -GIS Section under Physical Planning Cell

approve taxes and fees; collect approved taxes, fees, rates, rents, tolls, charges, fines and penalties;

ICDS Process – Financial management & taxation

establish and maintain regional markets and commercial centres;

ICDS Process – Planning & Development Cell in coordination with District Government.

manage properties, assets and funds vested in the local government;

ICDS Process – Financial management & taxation

maintain a comprehensive data base;

ICDS Process – GIS under Physical Planning Unit

develop and manage schemes, including site development;

ICDS Process – Physical Planning Cell

infrastructure and public utilities;

ICDS Process – Infrastructure Services Cell

maintain municipal records and archives;

ICDS Process – GIS under Physical Planning Unit

exercise control over land-use, land-subdivision, land development and zoning


conserve historical and cultural assets;


assist in the provision of relief in emergencies/ natural calamities,

ICDS Process - Social services for public health and welfare. Entire City Administration

prepare financial statements and present them for internal and

ICDS Process – Finance & taxation



Union Councils Relation to ICDS Municipal Committees

Relation to ICDS Municipal Corporations

Relation to ICDS

external audit in the prescribed manner.

C. How is ICDS Integrated and Institutionalised? 53. ICDS sits under the umbrella of two Departments, i) Department of Local Government, which is ICDS’s ‘Policy Home’, and ii) Department of Planning & Development, (Urban Unit), which is ICDS’s ‘Technical Implementation Home’. The ‘Operational Home’ of ICDS is in the cities with an important need to integrate planning and development with their respective Districts. Figure III-3.

Figure III-3: Integrating ICDS

D. Proposed ICDS Municipal Management Structure 54. Secondly, that process must be translated down to the District and City levels with City-level detailed suggestions for re-structuring presented in Figure III-4. However, at present the Local Government Ordinance 2001 is enforced, soon to be replaced by Local Government Ordinance of 2013. This is an opportunity to introduce further CDS-supportive amendments. The Provincial Government has established three transition teams (Provincial, Divisional and District) to guide the transition of local governments to the new proposed one (Metropolitan Corporation, Municipal Corporation, Municipal Committee, District Government etc.)



55. The transition teams have representation from a full cross-section of different provincial departments. These teams will finalize the new administration setup, finalize organizational chart for local governments, establish parameters for distribution of assets and liabilities amongst successor local governments, finalize the parameters for deployment plan for adjustment/ distribution of existing employees in local governments and employees of health and education department in the authorities. 56. The existing municipal management structure is not conducive to a policy driven, integrated, strategic development approach to urban development. The current structure results in “siloed” ad hoc activities without the coordination vehicles in place. This is an opportune time to introduce suggested restructuring to achieve those goals while transitional plans are being made. Figure III-4. illustrates a proposed municipal structure that will support a strategic and integrated planning and development approach. The necessary umbrella structure is suggested to promote integration and inclusive thinking. The proposed Planning and Development unit, something that is missing in the current structure, will have the major technical coordinating role. Three other new key units are introduced: a Strategy and Policy Unit; a Communications unit to develop and implement a robust IEC (Information, Education and Communication) program within government agencies, key decision makers and the general public promoting participation; and an Economic Development Unit to serve as a city promotional unit as well as a one-stop-shop for interested investors.

E. Union Councils and Mahallah Level Governance: 57. A Union Council comprises of Mahallahs or wards in the case of urban areas. There are formal wards at Union Council level, but there can also be informal community based organizations to address local issues. These informal Mahallah level organizations are an important part of city governance. Community leaders, be they Kasjid Imams, school teachers, retired soldiers etc are important and for many people may be more relevant and part of daily life than formal city government is. Detailed functions of the Union Council are given in Local Government Act of 2013.

F. Land Management 58. Land is the physical foundation for urban development and managing it requires consideration of a complex mix of hard and soft factors. Figure III-5. It is largely the deficiencies in institutional capacity to deal holistically with land management that has led to the root problem of urban sprawl facing both cities now. As institutional capacity building proceeds, considerable attention will be required on land as a starting point.



Figure III-4: Proposed ICDS City Management Structure



Figure III-5: Land Management



G. Participatory Budgeting 59. Participatory budgeting is a process of democratic deliberation and decision-making, in which ordinary people decide how to allocate part of a municipal or public budget. Participatory budgeting allows citizens to identify, discuss, and prioritize public spending projects, and gives them the power to make real decisions about how money is spent. If Participatory budgeting is taken seriously and is based on mutual trust, local governments and citizens can benefit equally. It may even raise people's willingness to pay taxes. Participatory budgeting generally involves several basic steps: (1) Community members identify spending priorities and select budget delegates (2) Budget delegates develop specific spending proposals with help from experts (3) Community members vote on which proposals to fund (4) The city or institution implements the top proposals 60. The purpose of institutional reforms under PICIIP-ICDS is to strengthen local city governments. This will be achieved through (1) enhanced and gender sensitive enabling environment for local governments and citizen participation; (2) more effective, inclusive, responsive and equitable local government decision-making and resource use and management; and (3) improved, accessible, accountable and sustainable service delivery at the local level. 61. In Local Governments there has always been a deficiency in developing, implementing and sustaining an effective planning and management system. Most of the development planning and decision-making is based on how much development funding these governments receive from the provincial government. More often than not, the annual budget allocations set the direction for development schemes without due consideration of citizen needs and priorities. At present (and in the past) resources available to the local government are not allocated as to where and how to spend. As a result, all local governments (regardless of their fiscal resources) are at loss when it comes to the development needs of the area, and funds are utilized in a manner that does not always correspond to citizen needs. This will change under an ICDS process.

H. Participatory Budgeting and ICDS – A Policy Framework 62. The City Chairman should invite City Council members (who are also chairmen of the Union Councils falling in the city jurisdiction) to submit proposals for development initiatives for their respective UCs. These proposals should be based on discussions with residents in their respective Union Councils. The list of proposed initiatives should then be forwarded to the City for compilation before submitting to the City Council for consideration, and inclusion in the Annual Development Plan of the City. At all stages the public must be encouraged and enabled to transparently follow the process. An important part of the review and approval process will be relating proposals back to the overall direction of the ICDS to ensure they are contributing in an integrated and forward manner.

I. Sustainability 63. Urban areas have significant unexploited potential to enhance their sustainability through better revenue generation. In most cases, potential sources of revenue have not been effectively tapped. In general, revenue collection needs to be more effective at the local level where the



potential sources of revenue are better known. Taxpayers are also more willing to pay taxes if the utilization of their money is obvious to them, and the public entities managing such tax revenue are within their reach in terms of political supervision and control. Decentralized management of public funds creates an opportunity not only for increasing total revenue, but also for spending these funds more wisely, inclusively and effectively, including benefit to the disadvantaged groups. This, however, requires adequate systems of checks and balances to be institutionalised. 64. The current sources of revenue include property taxes, land use change/registration fees, signage & hoarding, building permits and service user charges. The main source of revenue is and should be property taxes. However, these are nominal, not applicable in rural areas and are currently politically difficult to levy at the rate required for sustainable urban growth and management. Addressing this issue is likely the key to on-going resilient and competitive growth. Contributions from other sources as listed above are not significant, but have potential to be increased subject to political will. Property Tax is administered under the Urban Immovable Property Tax Act of 1958. However, rates and processes require an overview and updating to be more robust and reflective of the increased urban requirements. 65. Fines for encroachments and non-compliance with buildings by-laws etc. are low and the recovery rate is poor. Fines need to be enhanced with more effective mechanisms for recovery. In summary, collection against demand and investment in services does not meet O&M costs. 66. Cities also need to improve the way in which they openly respond to the needs of its citizens in a transparent fashion. To date, the approach adopted by many city officials has typically been to limit the access provided to residents to the way the city does its business. There are examples of improvements in Sialkot and Sahiwal in the complaint management systems, and some attempts at improvement in the services and mapping of the system that can be further developed to enhance transparency and stakeholder participation. As a start, physical access to TMA offices should be open, prominent, inviting and celebratory of their prime role in managing the city. This is not the case in either Sialkot nor Sahiwal.

IV. Sector Concepts & Strategies 67. A city is the composite of a series of sectors as discussed above. Each have their own physical as well as institutional needs, and each must consider integration with the others. The following presents a schematic series of Sector Strategies applicable to the typical, largely residential, UC and Mahallah in any Punjab city. Inner city business core UCs are slightly different and are discussed under the respective city strategies.

A. Basic Urban Structure 68. Officially, Punjab cities comprise a series of administrative Urban Council Units. However, the real life of the city takes place within the cultural norm of “Mahallahs” - neighbourhoods. These are where people live, interact, do much of their shopping, play and possibly work. They take all sorts of physical forms but are typically centred on the mosque with some nearby commercial areas, a community hall, a school, perhaps a health facility, and in in the fortunate ones, some recreation space. The Strategies developed for Sialkot and Sahiwal use the



Mahallah as the building block, while knowing that they are comprised of neighbours and families, and in turn make of UCs and Tehsils. A strong sense of “community” is the key to development, and paying attention to community-level needs is fundamental to building a resilient city. Figure IV-1.

Figure IV-1: Conceptual UC - Muhalla Structure - The Base

B. Mobility Strategy 69. The ease of movement of people and goods - mobility - is key to social and economic development. The infrastructure supporting mobility is also typically the main physical framework of a city. Inclusive and competitive cities must acknowledge and accommodate a variety of mobility/transport modes: motorised and non-motorised. Sialkot and Sahiwal are, for the most part, struggling to manage the full range of transport modes with, as in most places, the motor vehicle dominating and pedestrians relegated to whatever space they can find. Not healthy, safe, efficient or supportive of more resilient, climate-responsive non-motorised modes. Figure IV-2 schematically illustrates an inclusive Mobility Strategy providing segregated spaces for motor vehicles, public transit, non-motorised vehicles and pedestrians in a network that provides easy inclusive access to the social and economic amenities that citizens need. Details of how this can be physically accomplished by “managing the street space” are conceptually illustrated in the next Chapter.



Figure IV-2: Mobility Strategy

C. Green Public Space Strategy 70. Public green space serves a number of critical functions within a city, but is often sacrificed due to a municipal government’s inability to dedicate the resources in the face of other priority needs such as water supply. Without a strong sense of community, or in the absence of development control, public awareness and other supporting services, intended open green spaces tend to become dumping grounds or are encroached on for other purposes. However, a good network of open green spaces can serve as healthy community meeting spaces, add to the “lungs” of the city with vegetation, can play important functions in storm water management and generally contribute to a more livable city. Figure IV-3 illustrates a Green Space Strategy that also integrates with the Mobility Strategy. The creation and retention of public green spaces



needs to start with physical planning, be valued by residents, but can be a good PPP opportunity for private sector entities to adopt and maintain in exchange for some advertising rights.

Figure IV-3: Open Green Space Strategy

D. Social Development Strategy 71. Social Development is the underlying reason for focusing attention on city development. All other strategies are aiming to support this. Very specifically, the Social Development Strategy is concerned with key elements of community, housing, health, education and recreation. At the physical planning and development level this first requires provision of space for the desired facilities. Mahallah Centres either need to be planned in new parts of the city or created within existing parts of the city to serve as the social hubs. The mosque is central for most. Related and nearby should be space for other Mahallah meetings, a primary school, local health facility and recreation space. The Mahallah Centres support stakeholder participation in the affairs of the city, support inclusion of all members of society, serve as both formal and informal IEC (Information, Education, Communication) centres. Figure IV-4.



72. Housing - safe, healthy, affordable, appropriate - is perhaps the first social need for a family and may be considered a basic human need and right. Housing and its related infrastructure typically covers 60-70% of a city’s built-up footprint and is one of a city’s major challenges. It is housing that is largely responsible for the uncontrolled sprawl that presents Sialkot and Sahiwal with their most challenging issue. Housing must be inclusive and serve a full-range of socio-economic needs. The housing component of the Social Development Strategy calls for providing a range of densities and housing typologies to reduce sprawl, provide options, focus development around infrastructure for more efficiency, reduce travel distances and generally put cities into more sustainable and resilient positions. Higher density housing development/redevelopment is proposed around major transportation corridors and hubs, around major economic. employment centres, and at a smaller scale close to Mahallah Centres. 73. At the present time, the provision of health and education services is a District responsibility, but space must be logically provided through city-level planning. It is also suggested that basic Public Health services become part of a city’s responsibilities providing Mahallah-level health education and awareness, and perhaps special local services for children, the elderly and other vulnerable groups who are not mobile.

Figure IV-4: Social Development Strategy



E. Economic Development Strategy 74. The Mahallah-UC level Economic Development Strategy is aimed at two inter-related dimensions: 1. supporting the local everyday needs of residents, including employment and access to goods and services; and 2. promoting the city’s level of competitiveness within the province, the country and international markets. Being “competitive” revolves around creating an attractive “ease-of-doing-business” environment. That quality of that environment is determined by both the quality of physical infrastructure and land available, and the ease, efficiency, completeness and transparency of institutional elements including legal and regulatory, taxation, physical planning, development approvals, and security. Pakistan ranks 128th out of 189 surveyed countries in 20159 so individual cities are starting from a challenging position. On the positive side, of the 13 Pakistan cities surveyed, the top 3 were all in Punjab: Lahore, Faisalabad and Multan, although Sialkot ranked 11th. Sahiwal was not surveyed. City-level Economic Development is discussed in Chapter V. 75. Figure IV-5 conceptually illustrates a Mahallah-level Economic Development Strategy. The guiding principle is that formal spatial and service provision must be made for both the formal and informal economic sectors. Traditional urban planning, and decision making, typically ignores the inform sector considering street vendors and hawkers as inconvenient intrusions in the city. However, the reality is that 70% of Sialkot’s and 76% of Sahiwal’s employment is in the informal sector10. Although no statistics are available, it is likely that an even greater percentage of the cities’ total economy rests in the informal sector with 100% of the population somehow involved. From an urban planning perspective at the Mahallah-UC level, the Economic Development Strategy includes: Convenient access to employment opportunities, goods and services at city, Tehsil,

District, Mahallah and home levels is fundamental. Formal, appropriately serviced urban space for the informal economic sector is required to

both support their livelihoods and reduce the street congestion caused by not having a space to operate close to their market. Many cities have attempted to relocate the informal sector to remote locations which never works. It breaks the proximity link between provider and customer and would deprive vendors of their livelihood if they accepted the move. However, they cannot afford to accept relocation and are typically soon found back in their original, carefully assessed location. The solution is not relocation, but acceptance and management.

Infrastructure and services as discussed in other strategies are obviously essential support for economic activity and all should be aiming at affordable 24/7 service.

Transparent and equitable preparation and institutionalised application of regulations, licensing and inspection services are essential for both formal and informal sectors. The informal vendor’s licensing process should not consist of paying the local policeman on a daily basis.

A discussion of the city-level Economic Development Strategy is presented in Chapter 5.

9 World Bank Ease-of-Doing Business Survey, 2015 10 Punjab Development Statistics 2014



Figure IV-5: Economic Develoment Strategy

76. There are several wholesale and retail levels in the informal sector supply chain. Each one needs urban space, good connectivity (Mobility) and varying levels of supporting services. Figure IV-6. 77. Managing and providing for the informal sector is also key to improved Mobility, as much of the current street congestion in Punjab’s intermediate cities is due to conflicts between traffic and vendors who have no other space in which to operate. The provision of formal space for informal economic activity will help both. Figure IV-7 is a schematic of how this space can be created while also providing enhanced public space.



Figure IV-6: Informal Sector Hierarchy

Figure IV-7: Providing Space for the Inormal Sector



Source: HABICO

F. Water Supply Strategy 78. The proposed UC and Mahallah level Water Supply Strategy is based on the overall goal of delivering 24/7 safe and healthy water. It also takes guidance from the existing system and system improvements being proposed by the overall PICIIP program with the further addition of longer-term climate-change resilience components. 79. The existing water supply system is already locally based on a series of tubewells and overhead reservoirs rather than relying on one large water treatment facility and major trunk main distribution. The locally-based system lends itself well to a more sustainable, resilient and affordable water supply that integrates nicely into the UC-Mahallah base for other proposed sector strategies. It has the flexibility to expand or be rehabilitated without worry about a single main supply facility. 80. The main concern is the climate change impact on the water source as Himalayan and Karakorum glaciers melt, rivers become less reliable and aquifers drop. This is projected to be accompanied by increasingly severe and unpredictable storm events. These will present a flooding and damage threat, but should also be considered an opportunity to harness a new water source as a resilience response. For this, the Water Supply Strategy encourages the introduction of rainwater harvesting. Demonstrating and promoting the potential should be led by the public sector with installations made on public buildings, and encouraged for individual households. Sialkot and Sahiwal both have a dynamic private sector which is already responding to environmental standards required by international customers and are another excellent demonstration point. Public demonstrations of rainwater harvesting could be integrated into the suggested PPP Green Space initiatives helping to re-charge aquifers. Mahallah Centre rainwater harvesting should be the starting point as they will be visible to all, are of a manageable scale and can demonstrate benefits for mosques, schools, green spaces, commercial facilities, with excess going to aquifer re-charge. Figure IV-8 illustrates the integration of both approaches. Integral to sustainable water supply and the cities’ climate change resilience response is public awareness and education. This is partly why a Communications Department is proposed within the new City Management Structure, and why Public Health initiatives are proposed to be added to city responsibilities.



Figure IV-8: Water Supply Strategy

G. Sanitation & Sewerage Strategy



81. The main Strategy point is that cities must start to fully treat their sewage and industrial effluents before disposing of them into water bodies or allowing them to percolate back into underground aquifers. The existing high levels of pollution being directly discharged into the environment is unacceptable and unsustainable. The proposed Sanitation and Sewage Strategy follows the current smaller locally-based treatment facility approach, as opposed to a shift to one large central system. Figure IV-9. The city-specific ICDS (Chapter V) creates special Industrial Parks where industrial effluent can be separately treated without mixing with domestic as is currently the case. The benefits of smaller, local systems include ease of expansion by adding new small systems as new Mahallahs/UCs are developed, less costly, and easier to devolve maintenance/management responsibilities if that were to be suggested as an administrative change. Technical details of what is required in terms of system upgrading, replacement or expansion is covered in the accompanying PFS Report. As part of integrating this infrastructure component into the overall ICDS approach to planning and development, it is proposed that the city develop a Public Health Department with Mahallah-level offices to promote good health and hygiene, awareness of using and looking after sanitation and drainage infrastructure and address health aspects of water use and solid waste management systems. This may be done through the schools and special community events.

Figure IV-9: Sanitation & Sewage Strategy



H. Drainage Strategy 82. Much of the flooding occurring in urban areas is the result of degraded or non-existent stormwater drainage systems. The infrastructure itself has been allowed to deteriorate or be modified by adjacent property owners who also, and through a lack of awareness or other SWM options, use drains as garbage dumps. Both hard and soft comonents of the issue need to be addressed. At the same time, there are opportunities to transform stormwater from a problem to an opportunity by introducing stormwater retention/management ponds throughout the city, which can be used for small-scale irrigation at the Mahallah level to reduce consumption of treated water, and/or as contributions to aquifer re-charging.

I. Solid Waste Management Strategy 83. The absence of efficient and effective SWM systems in these intermediate cities has numerous negative health, environmental, social and economic impacts. Addressing SWM is a priority and one that can be accomplished relatively quickly at reasonable cost. An appropriate hierarchy of waste collection steps fits very nicely into the Mahallah/UC structure used as the ICDS building block. The existing narrow streets in many locales do not permit large vehicle entry so small-scale, perhaps private operators are required to gather solid waste to central points for truck collection. Figure IV-10. This also provides opportunities for separation at source or at the Mahallah collection points for re-cycling. Re-cycling is already extensively practiced by the informal sector, but significant revenue potential is being lost by not formalising the processes at Mahallah, UC or City levels. Re-cycle revenue could do a lot to support Mahallah-level social facilities and activities. Technical details are presented in the accompanying PFS Report.

Figure IV-10: SWM Strategy



J. Resilience Strategy 84. At the Mahallah-UC level, increasing resilience to climate change starts with a robust program of public awareness and local political leader support. The concept of increasing the prominence of social facilities at Mahalla centres is directly related to improving Mahallah residents’ interaction and communication. At the technical level, increased resilience depends on implementing the coordinated combination of the various small initiatives outlined under each sector. In turn, these must, of course, be integrated into the overall city-level components of the same sectors.

K. Expanding the City - New Mahallahs 85. At some point the city will have to consider formal expansion. Advance planning is essential to prevent the continued ad hoc development that characterises the cities today. When all of the principles, concepts and sector strategies are combined from the beginning it will be much easier to develop inclusive, resilient, liveable, and competitive Mahallahs building the city. Figure IV-11 is a conceptual example with size based on easy walking distance to all facilities.

Figure IV-11: Conceptual Example of a New Mahallah



Source: HABICO

V. Sahiwal Urban Development Strategy - Context

86. Sahiwal’s existing situation, unique characteristics and current role as an intermediate central-Punjab city is presented in the accompanying Sahiwal Rapid Urban Assessment. The following presents highlights upon which the proposed ICDS for Sahiwal is based. It should be kept in mind throughout that overall guidance in the preparation of this Strategy is drawn from



the main principles stressed in Punjab’s Urban Development Sector Plan 2018 of supporting cities to be “engines of growth” based on being “dense” and “agglomeration”.

A. Summary Sialkot SWOT Analysis 87. Table V-1 presents a summary SWOT analysis resulting from field work and stakeholder participation sessions held in Sahiwal. Other details are presented in the accompanying Rapid Urban Assessment Report for Sahiwal.

Table V-1: Summary SWOT Analysis - Sahiwal

Strengths Weaknesses Opportunities Threats

Formally planned urban core dating from colonial era. Solid planning and development base.

Underdeveloped municipal infrastructure: water supply, power, drainage, sanitation, public transport restrict competiveness.

Use colonial planning base to develop a model of efficient, well-organized, compact urban development.

Resource, development competition from other China-Pak Corridior urban centres.

Prime location along planned China-Pak Development Corridor

Sprawling, unplanned urban growth hindering efficient infrastructure provision, unsustainable land-uses and loss of agriculture.

Develop Punjab model examples of efficient, livable, inclusive streets including pedestrian-only zones & efficient public transit

Climate change impact on future water supply.

Well established start to agro-processing industrial base.

Limited urban planning, development and management institutional capacity at city level.

Implement a model ICDS approach to urban management.

Failure to gain competitive advantage in absence of strong supporting infrastructure.

New nearby power generation attractive to new industry

Limited local revenue generation to support urban services

Build on existing start to agro-processing industrial base taking advantage of prime agricultural area, strengthened transportation, new power sources.

Failure to bring unplanned urban sprawl under control will lose productive agricultural land and create unsustainable municipal service demands.

Solid urban support available from the Punjab Urban Unit.

Develop a model of improved “good governance”, revenue generation, sustainability, resilience adaptations

A Chamber of Commerce ready to be more involved with urban development

Demonstrate pro-active, integrated climate change impact resilience mitigation measures as a model for Pakistan.



B. Sahiwal’s Vision 88. Based on the SWOT analysis, the residents of Sialkot have started to formalise a Vision for their future as the over-riding guide to future development. Some of the suggestions that have been put forward as possible components of a Vision include:

“A model city” “A city owned by the people” “A clean, well-managed city”

89. Sahiwal does have the opportunity to achieve all of these, and is particularly well-placed to become a model city as an industrial and transport hub displaying the best of a green and well planned and managed place.

C. Sahiwal - Existing Situation - Summary 1. Urban Form 90. Sahiwal’s official boundary currently encompasses an area of 12.81 km2. However, the actual “urbanisation” area is quite different as illustrated in Figure V-1. Uncontrolled, low-rise sprawl is the easiest way to describe the city’s urban form and one that is central to most of its planning, development, sustainability and resilience challenges. 2. Demography 91. Sahiwal’s City’s population in 2015 is estimated at just under 290,00011 and projected to reach over 420,000 by 2035 (within the current boundary). Note that Urban Boundaries are being revised as discussed in Section VI-C and this captures more existing population with the result that the total urban population by 2035 is estimated to be 581,574. At the same time, Punjab’s urban population will increase from 32% to 40% (59 million out of 150 million). Within the urban area this translates into an average density of 95 persons per acre, which because of the predominant low-rise building form, is congested in some areas. The average household size is also quite large at 6.2 persons12. 3. Employment 92. Formal employment is centred around the more than 220 factories, of varying sizes, located in Sahiwal and its environs13. These are providing some 8,200 jobs. Agro-related industry is of particular importance as an employment generator. The following summary points are of particular interest with respect to Sahiwal District. The share of employment in the informal sector is over the national average at 76.5% for Sahiwal compared to 72.9% nationally.14 This is a key point considered in the future planning of Sahiwal where, as in most cities, no formal space is being provided for this major employment sector.

Figure V-1: Sahiwal’s Existing Urban Form

11

Punjab Development Statistics 2014, extrapolated. 12

Poverty and Social Impact Analysis, 2008, for Urban Unit by Semiotics Consulting (Pvt) Ltd. 13

Sahiwal Chamber of Commerce 14

District Level Employment Trends 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics unless noted.



4. Urban Poverty 93. The Poverty and Social Impact Analysis (PSIA), 200815 assesses conditions in urban Punjab putting urban poverty at 26%, almost equivalent to the national average.. Sahiwal is not specifically assessed, but there is little reason to indicate the conditions are significantly different despite the high level of industry. 5. Housing 94. Housing and related infrastructure occupies approximately 60% of Sahiwal’s urban footprint. According to the PSIA only 30% of Sahiwal’s housing is provided through the formal sector with the other 70% developed informally and primarily on converted agricultural land without planning approval. In 2015 there were over 90 private sector ‘illegal” housing societies (estates) developed or being developed around Sahiwal. Only 15% of the informal housing is through infill and densification within the city boundaries. 80% are owners, 18% renters and 2% shared accommodation. The high level of ownership is a solid start for wealth accumulation and investment opportunities if the land registration and supporting documentation systems are functioning efficiently. According to the Sahiwal TMA, the major of properties are officially titled with records currently being digitized. These will be tied into the Urban Units extensive GIS database. Future housing demand needs are assessed in Chapter V.

15

for Urban Unit by Semiotics Consultants (Pvt) Ltd.



6. Economy and Role in Punjab and Pakistan 95. Sahiwal is a major agricultural centre in one of the richest wheat and cotton producing areas of the Punjab. There is a good base of agro-based industrial development with significant room for expansion as infrastructure improves and the linkage benefits improve with construction of the China-Pakistan Economic Corridor. Although a controversial development, a new coal-fired power generation could attract further industry, if real negative impacts and perceptions can be overcome. 96. The Sahiwal Chamber of Commerce is active in urban affairs and fully supportive of additional development that will help build their competitive advantage. 97. As with every urban centre in Pakistan and in most emerging economies the informal sector likely accounts for the majority of the economic activity, although by its very nature statistics do not usually capture this. A simple look at any street is indicative of the high level and importance of the informal sector in which 76.5% in Sahiwal16 are actively engaged and probably 100% participate. At the same time, their dominant presence in the urban setting is ignored from a planning perspective with the resulting street chaos evident everywhere. The ICDS pays particular attention to the inclusive needs of this major group by providing appropriate formal urban space and encouraging their participation in planning and development decisions. 7. Competitiveness Enablers 98. Sahiwal is located in a prime location along the new China-Pakistan Economic Corridor and has a pro-active and entrepreneurial private sector interested in the city, leading its industrial economic base, and ready for more PPP participation to move the city forward. Good road and rail transport connections exist and are now have the potential to be greatly enhanced as part of the China-Pak Corridor. The CDS is building on this opportunity. 99. Establishing a leading “ease-of-doing-business” environment is an essential competitive need. The existing lack of equitably applied and transparent development planning, approval and inspection processes are not conducive to investment. Significant institutional reform is required. At the same time 24/7 water and power with efficient solid waste management and public transport would be strong competitive advantages.

VI. Sahiwal Urban Development Strategy 100. This Chapter is structured with an initial discussion of the overall growth option concepts that could be pursued by the future Sahiwal. Each is presented with its advantages and disadvantages in the Sahiwal context concluding with a recommended growth option. The option is then developed and presented in greater detail as Sahiwal’s proposed Integrated City

16 District Level Employment Trends - 2009-2010, Gov’t. of Pakistan, Federal Bureau of Statistics



Development Strategy (ICDS). Key features of the ICDS are discussed. Behind the ICDS are the sector building blocks described in Chapter IV.

A. Development & Growth Options 101. The generic set of urban growth options are presented in Chapter IV. In this Section they are reviewed within the specific context of Sahiwal. 1. Continued Multi-Directional Expansion 102. This approach would, in essence, see a continuation of the current situation and is not sustainable. The built-up footprint of Sahiwal is already double that of its official boundaries. As pointed out, unplanned sprawl is environmentally degrading, very inefficient and expensive to service, consumes valued agricultural land, creates long and costly travel for residents, reduces the ability of the city to manage a robust programme of building resilience to climate change impacts and generally prevents Sahiwal from attaining the inclusive, green and competitive status it is striving for. This option will not be pursued. 2. Densification 103. The Punjab Urban Development Sector Plan 2018 stresses the importance of “density” and “agglomeration” for cities if they are to achieve their roles as leading “engines of growth”. Pursuing this principle underlies the ICDS. Density is the key to providing affordable infrastructure and services; sustaining viable public transit; reducing the built-up urban footprint thereby preserving agricultural land and other natural habitats; makes the best use of land that is built-up; provides proximity to social and economic amenities without lengthy and costly travel and creates sustainable markets for commercial activities. Increasing density is recommended as one of Sahiwal’s growth options. 104. There are several mechanisms for Increasing density in Sahiwal while also improving the quality of life for its residents. These include regeneration, redevelopment, infill and upgrading. Among the major development opportunities identified are the relocation of the existing, predominantly wholesale Grain Market to an expanded Industrial Zone with enhanced transportation access, and re-location of the Prison which currently occupies over 160 ac of prime inner-city land which could be much more productively and sustainably used for mixed-use residential, commercial and open-green recreational activities. 3. Concentrated & Managed Expansion 105. Although densification can and should accommodate a significant amount of urban growth, there will also be a need at some point for expansion as populations increase, new economic opportunities develop, or some current land uses need to be relocated. The key to expansion is careful planning and management to ensure resilient, environmentally sustainable and compatible site selection, ease of servicing, access to the transport required for the intended land use, and proximity to other social and economic amenities appropriate for the expansion. As a general rule, expansions should be contiguous with existing development for efficiency of land use and infrastructure provision. Expansion should not be used as a replacement for efficiently managing the inner core. Too often cities attempt to “leap-frog” over their problems planning to start over in a new location. This is seldom a socially, economically or environmentally sustainable approach.



4. Satellite 106. Developing a satellite centre or “new town” is an expensive option for accommodating growth, but may sometimes be appropriate. A satellite normally requires another full set of investments in all forms of infrastructure, social and economic facilities, and perhaps even separate administration. Again, it should not be seen as a “leap-frog” solution to existing city woes. Satellite development does not appear necessary nor desirable for Sahiwal. A policy of compact, contiguous development should be pursued. 5. Combination of Densification and Expansion 107. Every growing city is likely to need a combination of densification and expansion to adequately address all of its needs and opportunities. Sahiwal is no different, but a balance is needed. One rule of urban management tied to land and infrastructure economics is that maximum use should be made of existing land and infrastructure before expansion is considered. This means a concentration on densification as a priority first step. Densification may be more difficult to achieve given the need to have in place a strong strategic plan; fully functioning land market; appropriate taxation; the ability to upgrade infrastructure as needed (though typically less expensive than building new infrastructure); ability to attract the private sector investment that will implement densification; full institutional support and understanding; and a robust communication and stakeholder participation process. However, the longer-term resilience, sustainability and therefore competitive advantages are considerable.

B. Preferred Development Option and the Strategy 108. Following an assessment of Sahiwal’s situation and aspirations, the potential growth options available to it, and participatory reviews with Sahiwal and Urban Unit officials, a preferred growth option was decided upon for development into the Sahiwal Development Strategy. Five major prioritised elements are included, all in support of achieving an inclusive, competitive, resilient, green and livable city:

1. Industrial Park and logistical support development including new Multi-Modal Transport Hub.

2. Managed upgrading, redevelopment, regeneration and densification of the city’s core 3. Upgrading and selective redevelopment and densification of existing Mahallahs as

the key community-based urban building block; 4. Selective incorporation and upgrading of surrounding unplanned Mahallahs; 5. Limited and contiguous expansion with well-planned and serviced new Mahallahs. Figure VI-1 conceptually illustrates these 5 elements.

109. The overall Development Strategy comprises a series of sub-strategies similar to those presented at the Mahallah-UC level, but expanded to city-wide scale.

Figure VI-1: Sahiwal Urban Development Concept



C. Revised Urban Boundary A key step in beginning to implement a new urban strategy is to clearly define an urban boundary - the line within which new investments and developments will be concentrated. This does not correspond to the currently existing official Administrative Boundary. The components of the new proposed urban boundary are illustrated in Figure VI-2 with the final urban boundary for Sahiwal illustrated in Figure VI-3. The boundary is based on the key principles of densification and agglomeration with calculations of land required to accommodate population growth with their required social, economic and infrastructure needs, and projected industrial growth. For Sialkot, the new land requirement is based on Scenario 3, as presented below in Section VI-C, which assumes 75% of population growth will be accommodated within the existing built-up area, and 25% accommodated on new serviced lands. It must be noted, however, that this proposed Urban Boundary still remains conceptual. To confirm a boundary in detail requires an extensive technical exercise combining field work, City-District-Provincial consultations and a careful assessment of existing Mauza17 boundaries which will be used to establish the detailed final boundary.

Figure VI-2: Proposed New Urban Boundary Components

17

The smallest revenue/census land unit.



D. Sahiwal Inter-Jurisdictional Joint Planning 110. At present there is little or no planning coordination between TMAs and their surrounding District. One of the consequences is the proliferation of un-planned and under-serviced settlement sprawl around cities, including Sahiwal. It is strongly recommended that an Inter-Jurisdiction Joint Planning mechanism be established to manage that interface between urban and the largely rural surrounding District. All planning and development decisions that may affect the other require consultation and joint agreement.

Figure VI-3: Proposed Sahiwal Urban Boundary - 2035



E. Urban Form Strategy 111. Figure VI-4 conceptually illustrates the proposed Urban Form Strategy within a new Urban Boundary. . The overall urban form strategy, as discussed several times elsewhere if based on “density” and “agglomeration”. To rapidly help prepare Sahiwal for a competitive advantage along the China-Pak Corridor, priority is given to development of a comprehensive Industry zone to the south of the main city. Second priority is given to beginning the process of upgrading and redeveloping the existing core for maximum compactness and best use of land and infrastructure. This will be a lengthy exercise relying on private-sector investment within a government-led framework. Expansion is achieved through selective absorption and upgrading of adjacent Mahallahs, and in the longer-term, new contiguous ones will be formally developed. The relatively low-density of Sahiwal, particular the western parts, provide the opportunity to accommodate significant growth within the existing built-up area. It is further proposed that the existing city jail, which occupies approximately 94 acres of prime inner-city land, be relocated outside of the city. This facility is not necessary in the middle of the city and makes poor use of the land potential when Sahiwal aims to become a compact, more liveable and resilient city.



Figure VI-4: Sahiwal’s Development Strategy - Urban Form



F. Urban Regeneration, Redevelopment and Densification 112. The social, economic and environmental benefits of giving priority to urban regeneration including renewal, redevelopment, infill and densification are discussed above. The overall desire is to maximise the potential of inner city lands and infrastructure. Sahiwal has one low layer of development spreading across the city with many land parcels undeveloped, underdeveloped or in derelict condition. There is significant development potential here if the business environment is in place to encourage that mobilisation of capital. At present there is little incentive and numerous disincentives to private sector investment in many of these areas. Low taxation creates no need to develop. The congested streets, lack of public transport and poor condition of other infrastructure and services do not invite investment. However, Sahiwal will have trouble resiliently and sustainably developing in a competitive manner unless it begins to address these issues. Sahiwal is growing and has a growing need for developed real estate. Spreading to the outside may look like an easy alternative but it is diminishing the city’s sustainability. Land taxed at its full potential value based on an adopted Land Use Plan will create the incentive to either develop or sell to one who can. 113. Figure VI-5 illustrates an example of how a typical existing Mahalla can be upgraded with minimal redevelopment to provide improved social and economic amenities, infrastructure services and enhanced quality of urban space and environment. These initiatives are all in support of making Sahiwal more livable, green, and therefore more sustainable, resilient and competitive. By targeting upgrading at the Mahalla level across the city, investments will also be inclusive providing benefits to all socio-economic groups. 114. Figure VI-6 suggests redevelopment of the current Grain Market and portions of the existing railway lands as a proposed new Multi-Modal Transport be developed in the proposed Industrial Park area to handle increased freight traffic along the new China-Pakistan Economic Development Corridor. The existing station remains for convenient passenger traffic. The present Grain Market is largely a wholesale operation and does not require a congested inner-city location with the related transport access problems. The site is prime for development as a comprehensive Mahallah Centre for the surrounding residents. 115. An approach to Urban Regeneration: The skills and resources required to undertake comprehensive urban regeneration typically exceed those available at municipal/TMA level. Global practice favours the establishment of separate Urban Regeneration Companies, or similar special purpose vehicles to undertake these complex initiatives through a variety of PPP arrangements. Funding urban regeneration requires strong public-private partnerships merging the resources of both for sustainable implementation. The public sector brings the planning and regulatory frameworks, prime infrastructure and potentially seed capital to the partnership, while the private sector provides technical and managerial skills and collective access to far more financial capital than Punjab’s cities have on their own. There are numerous global examples of Urban Regeneration programmes18 established by provincial, regional or city governments to promote urban regeneration by providing seed capital and an integrated umbrella under which to operate. Focal areas include infrastructure, public spaces and housing. One of the key requirements for implementation of these programmes is well functioning, transparent and equitable planning and approval processes in order to gain the confidence of private investors.

18

Examples: UK, “Homes and Communities”, a series of housing and infrastructure support funds; Australia: “Infrastructure Partnership Australia”; Canada, “Places to Grow Implementation Fund”



Figure VI-5: Upgraded Mahallah



Figure VI-6: Grain Market/Rail Redevelopment

G. Infrastructure 1. Mobility - Transportation Strategy 116. There are three components proposed under this strategy in addition to the generic ones discussed in Chapter IV:

a. Street Management Addresses the management of the wide variety of activities that take place in the city’s street spaces: public transit vehicles, motorised private vehicle traffic, non-motorised vehicle traffic, parking of both, pedestrian traffic, informal sector commercial activity, access to formal sector commercial activities, and social interaction. The streets are also, typically, the corridors for other urban infrastructure including water, sewerage, drainage and power. These are all legitimate street activities but can be in conflict if each is not given its own space, rules and supporting equipment. At the moment there is very little street management other than some attempts to manage the vehicle component of it. The Strategy calls for re-structuring some of Sahiwal’s major street arteries to provide designated space for each activity. The historic planning base of Sahiwal provides it with an excellent opportunity to model this sustainable and more livable approach to street space management. Figure VI-7 is a conceptual illustration of how this may be achieved with little expense while greatly improving the quality of life along those streets for all involved.



Figure VI-7: Conceptual Street Management

In addition to managing the main traffic arteries there are opportunities to greatly enhance the quality of life on some of Sahiwal’s small-scale streets. The existing inner-core fruit and vegetable market streets are prime examples. These play an important role in the city’s daily economic activity, but are not managed. All modes of traffic are allowed, congestion is rampant, customer and vendor environments are poor, access and egress for products in and waste out are challenges, wholesale and retail activities mix. The situation is poor leading to calls to have these facilities re-located to the far edges of town. This would be a mistake as they are central to the daily economy of the city and need proximity to customers. Management is the answer, not re-locatoin. There are opportunities to demonstrate a much more livable, green, sustainable and efficient model. The majority of customers are pedestrians, and much of the last steps in product delivery are by small hand carts or other small-scale vehicles. Some streets could be pedestrianised throughout the retail portion of the day, with larger wholesale delivery and solid waste removal activities scheduled at other hours. Figure VI-8 illustrates a pedestrianisation example.



Figure VI-8: Pedestrianised Market Street

b. Traffic Management Improved traffic management can only be effectively achieved when the streets are properly managed. Details of proposed intersection, signage and related management details are discussed in the accompanying PFS Report.

c. New Transport/Mobility Modes and Facilities A number of specific new initiatives are proposed as part of the strategy to improve Sahiwal’s competitive advantage and improve the overall urban environment:

Develop efficient urban public transit (refer to PFS Report); Establish a new multi-modal rail-road in conjunction with an Industrial Park

development; Re-locate current rail freight activities out of the city centre to the new multi-

modal; Develop new long-distance bus terminals at two major entries to the city

connected to improved urban public transit; Develop a small-scale, local public-transit hub adjacent to the current rail

passenger terminal for inter-modal ease;

d. Water Supply



The main objective is to provide residents of Sahiwal with reliable 24/7 healthy water supply for domestic use and the same for industry to boost its competitive advantage. Detailed proposals for technical and managerial improvement of Sahiwal’s water supply are discussed in the PFS Report. From the broader Development Strategy and climate-change resilience perspectives, Sahiwal has an opportunity to start looking at alternative, longer-term water sources as the existing aquifers, Sahiwal’s sole source of water, are depleting. The traditional Himalayan glacier sources are melting as a result of climate change, and more intense storms and increased rainfall are forecast. To tie the two together, Sahiwal should be working with the District and Province to develop a series of upstream watershed stormwater catchment/harvesting facilities to supplement future water supply.

e. Sewerage and Sanitation

As with water supply, the overall sanitation strategy is to provide 24/7 safe, healthy and environmentally sound service. At the moment there is little or no functioning sewage treatment with effluent being discharged directly into the city’s two canals or directly onto adjacent lands with all related negative environmental and health impacts. The situation is unacceptable and unsustainable, and fully recognized as such by the residents and leaders of the city. As industry and export expand, Sahiwal will find itself under international pressure to establish a greener industrial environment if it wishes to gain a competitive advantage. Developing planned, serviced and managed Industrial Parks is one proposal to address this issue so that industrial effluent can be segregated and properly treated. Adding a community-based Public Health service as part of the city’s responsibilities is another. Technical details of other sanitation recommendations are presented in the accompanying PFS Report.

f. Solid Waste Management

One of the stated stakeholder visions for Sahiwal is to have “a clean city”. The proposed strategy for solid waste management (SWM) is simply based on that. SWM challenges continues to grow in magnitude with increased population and consumerism, and cross-cut a wide range of urban concerns: health, urban image, quality of life, drainage and environmental degradation among them. A great part of the challenge is to instill a culture of collecting. That culture is missing, for the most part, in all Punjab cities where the tendency is to simply toss waste into the drains, onto the street or into the landscape. Public awareness and an attitude shift is the first step. Secondly, SWM logically breaks down into a hierarchy of steps that can be quite easily implemented starting at a household and community-based level. The Mahallah-UC strategy for SWM is discussed in Chapter IV and applies appropriately to Sahiwal. The strategy also recognizes the considerable re-cycling economic potentials with SWM. Considerable recycling is taking place in Sahiwal by the informal sector. Carts loaded with empty drink containers and cardboard are frequently seen. At some point these collections enter the more formal sector as they are consolidated and transported to recycling facilities. Sahiwal should be tapping into this economic potential by beginning to formalise separation and collection at the Mahallah level where revenue could then be directly applied back into improving Mahallah public services. In general, solid waste must be taken out of the drains, off the streets and away from ad hoc dumping. Technical details of SWM including the major engineering challenge of establishing a properly managed disposal site(s) are discussed in the accompanying PFS Report.



g. Drainage

In addition to the obvious need to have drainage systems working, maintained and not used as garbage dumps, there are opportunities to enhance the approach to storm water drainage in support of the city’s climate change resilience efforts. At the moment, storm water is a problem and a loss. The introduction of upstream catchment area reservoirs would help control flooding and also become an alternative source of water supply as the traditional ones disappear. Storm water retention ponds can also be introduced throughout the city as a smaller-scale version of the same control mechanisms with water used for urban agriculture and other non-potable applications. The strategy also suggests the promotion of rainwater harvesting as another climate-change resilience response at Mahallah and household levels, which would further contribute to both drainage management and water supply. The Sahiwal CDS also proposes that the 2 existing irrigation canals running through the city be developed and exploited as public green space city assets rather than solid waste dumping sites.

H. Population, Housing, Land & Infrastructure 117. Residential land and associated infrastructure and services account for approximately 60% of a typical city’s land use. Consequently the impacts of growth on land and infrastructure are a major part of the CDS. The discussion on urban densification versus expansion comes into play here. Table VI-1 presents some facts and 3 sample growth scenarios. Figure VI-9 illustrates the new serviced land requirements under the 3 scenarios compared to the size of existing Sahiwal. 118. In summary, if the same average settlement density is applied to accommodate all projected population growth on new serviced land it will require a total of 1,155 ac (50 Kanaal or 4.7 km2). Servicing this land is estimated at a total cost of almost Rs 1.7 billion ($ 17 million)19, or an average of Rs 16,425 per person ($ 164). Table VI-2. If 50% of the new population is accommodated through densification, the amount of new land required obviously falls in half, as does the need for new infrastructure and the environmental impact. However, infrastructure cost per person is even lower, as the cost of providing upgraded infrastructure for densification may be as little as 50% that of new infrastructure (highly variable, depending on starting condition) and that infrastructure benefits all existing residents as well. Cost per beneficiary in this case may fall to Rs 6,116 ($ 61) if 75% of new growth is absorbed into the existing city. These are very indicative estimates only, but do illustrate the benefits of densification over expansion.

I. City and Regional Economy Strategy 119. Everything discussed above for physical and institutional improvements contribute to a stronger and more competitive environment for economic development in both formal and informal sectors. All recommendations contribute to creating a more conducive “ease-of-doing-business” environment. Government’s own resources, their levels of human, technical and financial capital, are dwarfed by those of the collective private sector. Government’s role is to establish that conducive environment in order to promote the mobilisation of private sector capital in all its forms: cash, creativeness, sweat equity, skills and entrepreneurship in both the formal and informal sectors. The proposed Economic Development Strategy strongly promotes a more inclusive role for the private sector in city development. Sahiwal has an opportunity to

19

Source: Lahore School of Economics, 2000, extrapolated to 2015 at 15% inflation



distinguish itself along the China-Pakistan Corridor with its central location and agro-processing industrial potential. PPP initiatives need to be explored and built upon to capture the private-sector’s resources for the benefit of all. It is solidly in the private sector’s interest to have a well-functioning, resilient city. PPP can not only benefit large-scale infrastructure projects, but can support small-scale social facilities such as parks and green spaces, and a wide range of community-building civic events. Municipal government capacity is needed to effectively develop and implement additional PPP activities.

Table VI-1: New Residential Land Requirements



Figure VI-9: New Residential Land Requirements to 2035

Conversions 1 Marla = 225.0 sf (urban) 20.9 m2 0.05 Kanal (K)

1 Kanaal = 4,500.0 sf 418.2 m2 20 Marla (M)

1 ac = 43,560.0 sf 4,000.0 m2

1 km2 = 10,760,000.0 sf 1,000,000.0 m2 247 ac

1 ac = 8 Kanaal (K)

1 ac = 160 Marla (M)

Standards Marla Sq Feet Sq Metres Acres Kanal Sq Km

Average urban lot size 7.5

Gov't. Project Max. Lot Size 20.0

Privat Project Max. Lot Size 40.0

Average HH Size (Persons 6.2

Land to Add for Infra/Services 40%

Sahiwal Population Growth 2015 2035 Pop. Change

Population 288,948 421,021 132,073

New HH at 6.2/HH 21,302

Sahiwal Urban Area (2015) 3,164.0 12.81

Sahiwal Density (2015) p/ac 91

Sahiwal Land Required to 2035 Marla Sq Feet Sq Metres Acres Kanal Sq Km

Scenario 1:

100% Expan. 0% Densification

Density p/ac 91

Popul. Absorbed in Existing City 0

Population on New Lands 132,073

New Existing City Population 288,948

Land Req'd at Average Lot Size 159,765 35,947,187 3,340,817 825 103.2 3.3

Add 40% for Infra/Services 63,906 14,378,875 1,336,327 330 41.3 1.3

Added Popul. as % of Existing 0

Total New Land Required 223,671 50,326,061 4,677,143 1,155 144.4 4.7

Scenario 2:


New Density Existing City p/ac 112

Popul. Absorbed in Existing City 66,036




Total New Land Required 111,836 25,163,031 2,338,572 578 72.2 2.3

Scenario 3:


New Density Existing City p/ac 123

Popul. Absorbed in Existing City 99,054




Total New Land Required 55,918 12,581,515 1,169,286 289 36.1 1.2



Table VI-2: New Infrastructure Cost Estimates

J. Institutional Strategy 120. The ICDS-supportive institutional strategy for is as described in Chapter III. It warrants repeating that institutional capacity - human, technical and financial - and the full

Infrastructure Costs Land to Serv. Rupees US$

New Infrastr. Cost per ac 1,500,000 15,000

Average Cost/Person @ 100 p/ac per benefic. 16,425 164

Upgraded Infrastr. Cost per ac assume 50% 750,000 7,500

New Land Infrastr. Cost(ac)

Scenario 1 1,155 1,732,991,089 17,329,911

Scenario 2 578 866,495,544 8,664,955

Scenario 3 289 433,247,772 4,332,478

Per Beneficiary Cost

Scenario 1: density 100 pers/ac per benefic. 16,425 164

Scenario 2: density 123 pers/ac per benefic. 6,685 67

Scenario 3: density 135 per/ac per benefic. 6,116 61



institutionalisation of all related policies, plans, regulations and procedures lies at the heart of an ultimately resilient, sustainable, inclusive and competitive city.

K. Urban Design & Green 121. In addition to the various specific land use elements, infrastructure and facilities required in a city, there needs to be an integrating sense of character, human scale, and features that make life pleasant for its inhabitants. 1. Creating a City Centre - A Sense of "Place" 122. Every city benefits from having a recognised centre, or focal points for residents and visitors alike. Sahiwal has an historical advantage over many Punjab cities due to its historical planning that created a centre and large green space in the central oval. However, the real centre of activity has shifted to the east leaving this and several other once prominent spaces less central. Greater use should be made of these assets as public amenities. The TMA office is another obvious landmark that should be celebrated as the centre of governance for the city. However, at the moment public access is denied except through a back alley creating unwelcoming impression rather than the open, welcoming and participatory one that should be promoted to citizens. There are also major intersection points that could be developed as more meaningful focal points. PPP opportunities should be explored to develop and maintain these landmarks. 2. Street Landscaping 123. Most of Sahiwal’s main streets would benefit from focusing on the improved quality of pedestrian space, adding urban furniture including benches and lighting, sculptures, landscaping, controlled street crossings, and limited and carefully managed street vendors. This will all be integrated with improved vehicle traffic flow and public transit facilities. Figure VI-5 presents a conceptual illustration of a typical opportunity. The detailed planning, design and development of new roads and Mahallahs should continue to incorporate public green space and pedestrian consideration.

3. Green Space 124. Urban green space is essential for the health of the community and enjoyment of the city. Sahiwal has an advantage over many cities with its historical green spaces. These are valued heritage assets and should be taken full advantage of as open public spaces through rehabilitation and added vegetation and public space facilities. Vegetation, as well as improving the overall liveability of the city serves as a significant cooling and air filtering mechanism. Vegetation is also rainwater harvesting/flood control instrument as part of countering climate change and increasing city’s resilience.

L. Heritage 125. Development needs to seek a balance with a place’s heritage, Sahiwal is surrounded with history dating back thousands of years including the nearby ruins of Harappa. More recent



history includes a wealth of colonial area planning and buildings. The city has the opportunity to develop a program of managing, protecting and promoting its valued heritage assets, physical, cultural and natural.

M. Climate Change Resilience Strategy 126. A Climate-Change Resilience Strategy needs to be treated as an umbrella cross-cutting strategy rather than a separate initiative. It starts with the need for strong public awareness and political commitment. The various contributing technical and administrative elements of the Strategy are found in, and must be embedded in, every individual sector of the city’s planning and development. Accepting the culture of climate-change resilience as an integral cross-cutting need is essential.

VII. Sahiwal - Strategic Summary The overall goal of Sahiwal’s ICDS is to promote a highly liveable, economically strong city equipped to manage the risks associated with climate change in a resilient, green manner while strengthening its competitiveness regionally and nationally. This will be achieved in support of Punjab’s recognition that urban centres are the engines of growth and must emphasise compact, dense growth patterns to fulfill that role. Sahiwal has the opportunity to build on its existing agro-processing industrial base, and it’s prime location along the new China-Pakistan Economic Development Corridor. These goal will be achieved through strengthening the institutions responsible for the city’s planning, development and management including the institutionalisation of stakeholder participation and an ICDS approach; improving the infrastructure (transport, water, sanitation, SWM) required to support social well-being and expanded, modern industry including development of dedicated industrial parks; and provide the social amenities allowing all residents easy access to health, education and recreation facilities in an improved urban environment. Sahiwal has the vision of becoming a model of good urban planning for Punjab and the nation. To achieve this will require economic growth by providing the investment environment needed to attract valued entrepreneurial and technical skills. Increased attention must also be paid to the pending impacts resulting from climate change already affecting some agricultural crop types in Punjab and possibly leading to a re-structuring of the key agricultural industry. Climate change is also going to impact traditional water supplies calling for some forward thinking on alternatives. Through activities highlighted in the many sub-strategies above, Sahiwal must work to increase its climate change resilience as well as its economic growth and competiveness resilience. In order to achieve all of these goals improved municipal revenue collection, budget management, and development planning and control implementation and transparency are required. A significant amount of new growth will be accomplished through urban regeneration, redevelopment and densification of the city’s existing built-up areas. Consideration will be given to establishing a special purpose Urban Regeneration entity to manage this complex process.



VIII. Implementation Plan

A. Integration 127. Implementation of the Sahiwal Integrated City Development Strategy is an on-going process. It begins with institutionalisation of the concept and process; develops the necessary capacity at all levels; and proceeds with a prioritised and integrated series of specific sector initiatives beginning with more detailed physical planning and financial management. Throughout is the need for continuous top-down and down-up coordination and dialogue, particularly between Province, District, City and residents. Also essential are robust and on-going IEC and Monitoring and Evaluation Programs. Together, these provide the mechanisms for mid-course correction to individual projects and ensure a continuous participation process by all stakeholders. Figure VII-1 sets out an indicative Short, Medium and Long-term Implementation Plan, subject to continuous monitoring and revision.

B. ICDS and Supporting Plans 128. The ICDS is not a replacement for the traditional detailed land use and zoning maps theoretically used to control urban development. A comment concern of municipal officials used to the historic processes is that the ICDS may contradict their present land use regulations. The point of the ICDS is to instill a more inclusive, strategic approach to all aspects of urban development. Existing land use plans, detailed plans and development controls may not support the integrated ICDS approach and will have to be revised accordingly with the accompanying paradigm shift. This will likely create some discomfort and concern amongst long-term civil employees and require some training and transition time.



Figure VIII-1: Implementation Plan - Sahiwal

ICDS Approach Adopted Formal external monitoring and evaluation

Design/Plan/Train Implement On-going Implementation/Management

Component 2015 2018 2023 2030 2035

Short Medium Long-Term

National - Provincial Policy Integration

Province-District-City Policy Support & Integration

Provincial Technical Support

On-Going Monitoring and Evaluation

Institutional

ICDS Integration into Planning Processes

Institutional Capacity Building - City Level

Strategic Planning

Financial Management

Planning & Development - City Level

Strategic Growth Planning

Strategic Financial Planning

Land Use Planning - City Level

District Planning Integration

Redevelopment, Densification Planning

Detailed UC/Mahallah Planning

Development Control

Urban Regeneration Vehicle - Establish

Sector Strategies

Social Development

Economic Development

Street Management

Mobility/Transport

Public Transit

Multi-Modal Hub

Existing System Upgrading, Expansion

Climate Change Resilience Responses



Component 2015 2018 2023 2030 2035

Short Medium Long-Term

Urban Design, Public Open Green

Water Supply



Sanitation & Sewerage



Drainage



Solid Waste Management



Heritage

Programme, Preserve, Manage



Punjab Intermediate Cities Improvement Investment Program (PICIIP) Integrated Cities Development Strategy (ICDS)

(Draft) City Development Concepts and Strategy, Sahiwal December 2015