PLACE IN RETURN Box to remove this checkout from your record. TO AVOID FINES return on or before date due. MAY BE RECALLED with earlier due date if requested. DATE DUE DATE DUE DATE DUE 2/05 c/CIRC/DateDueJndd-p. 15 EVALUATION OF THE PLANNING AND HOUSING INSTITUTIONS IN THE DEVELOPING COUNTRIES: A CASE STUDY OF THE IVORY COAST By Fatoumata Fofana ‘ N J Michigan State University 1 East Lansing, Michigan 48824 A PLAN B PAPER a Submitted to Michigan State University .in partial fulfillment of the requirements for the degree MASTER IN URBAN PLANNING School of Urban Planning and Landscape Architecture 1979 T -‘ .r ‘,"??~':T~';27‘Rv"§, TABLE OF CONTENTS LIST OF TABLES LIST OF MAPS . INTRODUCTION Statement of the Housing Problem Objectives . Scape and Methodology . Description of the Ivory Coast. Geography . . . Major Geographic Regions Climate . . People . . Historical Setting Economy and Transport. The Economy . The Transport Sector . The National Development Strategy. The History of Urbanization . POLICY-MAKING INSTITUTIONS . The Joint Ministry of National Planning Economy and Finances The "Direction de l'Amanagement du Territoire et de l'Action Regionale" or DATAR . . The "Direction des Programmes Pluriannuel" or DRP The "Commission Inter-ministerielle pour le . Development de la Region d' Abidjan" or CIDRA The Joint Ministry of Public Works, Transporta- tion, Urban Planning and Construction . . History of the Ministry of Construction and Town Planning SOGEFIHA ii Page iv —l dds—Odd thd-‘ONm-fi-h-hww—I‘ N O 20 21 21 22 22 22 Chapter DSHE . SICOGI BNETC. SETU . . . . . . . The Ministry of Interior . . . . . III. PROBLEMS AND CONFLICTS WITHIN THE INSTITUTIONS Organization of Planning and Housing Institu- tions and Decision-Making System . . General Structure of the Institutions . Conflicts Between the Planning Institutions Financial Problems . The Planning Staffs . . Summary of Problems and Conflicts IV. CONCLUSION AND RECOMMENDATIONS . Introduction . . Organization of the Housing Institutions . Central Institutions . Regional Institutions Local Institutions BIBLIOGRAPHY iii LIST OF TABLES Growth of Total and Urban Populations Urban‘Population Projected Rates of Natural Population Increase in the Ivory Coast from 1976-90 . Housing Allocation Four Main Types of Housing . Percentage Distribution of Planned Public Investment by Major Program, 1975- 77 . . Development of External Public Debt, l969-77 . iv Page 16 18 25 28 36 44 Map 1. May of the Ivory Coast . LIST or MAPS Page CHAPTER I INTRODUCTION Statement of the Housing_Problem Housing represents one of the basic human needs. Substantial housing affects human health, welfare, productivity, and social atti- tudes. But, despite the importance of housing in human life, the world has been facing serious housing problems. The housing situation is particularly serious in developing countries because of two major factors, which are: l. The rapid urbanization and population growth, especially in the capital cities 2. The inadequate approach to housing problems According to Michael A. Cohen in his article entitled "Cities in Developing Countries,"1 the rate of growth in developing countries is between 2.5 and 3 percent a year compared to the .5 percent rate of growth in Europe in the period of rapid urbanization. This rapid growth consists of rural-urban migration and the natural population increase. The rapid growth has been accompanied by the develOpment of slums and squatter settlements with all their social costs, as the 1Michael A. Cohen,“Cities in Developing Countries," Finance and Development 13 (March l976): absorptive capacity of the cities for more and more population becomes reduced. According to projections of the United Nations, urban popu- lations over the next 25 years will increase by 1.3 billion in developing countries. If present trends are permitted to continue, 75 percent of the populations will be slum dwellers. The Ivory Coast is a typical example of this type of housing situation. It was established during the first population census held in April 1975 that the total population was 6.7 million, about half a million higher than previously estimated. Population growth accel— erated from a rate of 1.4 percent a year for the period l920-l945, to 2.8 percent for 1955-65, and to 4.0 percent for l965-75. The increase in the indigenous population is estimated at 2.5 percent of the total population, the balance coming from heavy immigration. The propor- tion of the population living in urban areas rose from 13 percent'in l955 to 31 percent in 1973. The capital city, Abidjan, is one of the fastest growing cities in the world. The population of Abidjan increased eightfold in 20 years and was estimated to be about one million in l975 or some 50 percent of the total urban population. But, as in most developing countries, the Ivory Coast has very centralized policy-making institutions which are dependent on both western capitals and western technology and labor. As a result, the institutions are forced to adapt models developed for western technologically-advanced countries. The costs of this irrational approach are usually born by the poor majority of the population. Objectives The objectives of this research paper are (l) to evaluate the housing policy-making institutions of the Ivory Coast, and (2) to relate the findings and propose to the government some alternative strategies for a more efficient institutional organization. The evaluation of the structure of the decision-making insti- tuitions in planning and housing is the first stage in evaluation of the overall housing situation. The housing institutions are the ones which formulate and apply housing policies. Therefore, sound plan- ning and housing policies are impossible without sound institutional structure. An efficient approach to housing problems can only be adopted within a rational housing institution framework. Housing policy and design should take place within the con- text of the society which is to use it. The social, economic, envir¥ onmental characteristics, as well as the ideology of the society, are to be considered first in an efficient housing program. All the above elements, however, cannot be considered if we depend on western countries for capital, labor, and technology. Scope and Methodology_ The study of all the aspects of the planning and housing situation in the Ivory Coast is very complex and, therefore, requires more time and resources and goes beyond the scope of a Plan B research paper. It is, _therefore, the researcher's intention to concentrate only on the institutional aspects of planning and housing in the Ivory Coast. The research will be based mostly on secondary data from previous research done in the housing field by some European, American, and African authors and also by the World Bank and the United Nations. Some findings will be based on my own experiences as an Ivory Coast citizen. There will be three major points discussed in the paper and they are as follows: I. Description of the planning and housing institutions in the Ivory Coast 2. Problems and conflicts within the institutions 3. Recommendations Before analyzing the institutions, the Ivory Coast will be described. Description of the Ivory Coast Geography The Republic of the Ivory Coast lies at the western edge of the Gulf of Guinea between the fifth and tenth parallels north of the equator and is bisected by the fifth meridian west of Green- wich. With an area of about 124,000 square miles, it is almost twice the size of New England. It is bordered on the west by Liberia and Guinea, on the north by Mali and Upper Volta, and on the east by Ghana. There are 500 kilometers of Atlantic Ocean shoreline which form the southern boundary. Major Geographic Regions Almost all of the country is little more than a wide plateau, sloping gradually southward to the sea. There are no large rivers, ; M Mali Ivory Coast FAX“ 6.3% if} --Imioad W V” NORTH prer Volta “AK .1 : i 5 . é oBoundiali ‘ uu \' '1 i 3 \mzxfg: can Korhogo U .Fflkém ‘9 . i .s i 5 (ccmm $0 EAST T2 4, i M .Toubax: i i‘v‘jfl ‘Biankoymse‘u M33- :1} Dnmné ' " i WEST Noah!“ / 'Guiglo Map l.--Map of the Ivory Coast mountains, or marked climatic differences dividing the land into distinctive geographic regions. ‘The land is differentiated by zones of natural vegetation, extending east and west across the entire country, parallel to the coast line. There are three main regions corresponding to these zones and they are: l. The lagoon region which is a narrow coastal belt extend- ing along the Gulf of Guinea 2. The dense forest region which forms a broad belt that covers roughly a third of the country north of the lagoon region 3. The savanna woodland region which comprises all of the Ivory Coast lying north of the forest The sizes, types, and density of tree growth diminish pro- gressively from south to north. Cl i mate The dominant characteristics of the climate are sustained heat and seasonal rainfall. Since the entire country lies close to the equator, days vary little in length and solar radiation received is more intense and more uniform than in temperate latitudes. The features of winter and summer are absent. Instead, the alternate north-south movements of continental and maritime air masses bring about marked periodic differences in rainfall to dis- tinguish the climatic seasons. In the North are the dry harmattan created by the continental air mass and its prevailing northeast wind. In contrast is the warm maritime air mass with prevailing winds from the southwest in the South. In the southern part of the country there are two rainy and two dry seasons. Further north, the two rainy seasons merge into a single period of rain, alternating annually with a season of dry weather. The two resulting types of climate are named equatorial climate_(south) and tropical climate (north). Relative humidity is highest during rainy seasons. In the South the average is about 80 percent for the year and both the annual and bi-annual ranges are very small. Toward the north where the drying effect of the harmattan is stronger, yearly averages are 60 to 70 percent and the ranges are much more pronounced. Temperatures are warm throughout. In the southern third of the country, average minimum temperatures during the coolest months do not fall below 70°F. The average maximum tempera- tures during the warmest months may exceed 90°F but only in the far north. People Population characteristics.--The April 1976 population census estimated the Ivorian population at six to seven million people with an average of 21 inhabitants a square kilometer. The population has increased at a rate of 1.4 percent a year from 1920 to 1945, to 2.8 percent from 1955 to 1965, and to 4.0 per- cent from 1965 to 1975. Inl973 it was estimated that about 25 per- cent of the total population was foreign born. When children born to foreign parents are included, the number in the foreign population would be two million or 30 percent. About 100,000 Lebanese and Syrians and approximately 50,000 Europeans live in the Ivory Coast. The urban population, which was low in 1955 (13 percent), has increased rapidly to 31 percent of the total population in 1973. Projected figures for 1985 place the overall population at 7,070,000 with an urban sector of 42 percent.2 The rapid population growth is due mostly to foreign immigration, plus an estimated natural increase of only 2.5 percent. Table 1 gives the growth of total and urban populations from 1955 to 1975. TABLE 1.--Growth of Total and Urban Populationsa (thousands) Urban PopulationsB Year Total Population - Total Percentage Abidjan 1955 2,662.2 345.0 13.0 125.0 1965 4,302.5 . 946.0 . .21.0 340.0 1970 5,125.0 1,435.0 28.0 590.0 1975 6,700.0 2,300.0 34.3 1,000.0 a"Ivory Coast: The Challenge of Success," A World Bank Country Economic Report, p. 125. bThe term urban means settlements of over 4,000 inhabitants. As in most African countries, the Ivory Coast is characterized by a great ethnic diversity having two main types of people: the world of savannah (North), and the peoples of the forest (South). 2"Ivory Coast: The Challenge of Success," A World Bank Country Economic Report, p. 6. Customs, tradition, social organization, and language divide the population into 60 ethnic groups. But these 60 ethnic groups can be classified into four main groups: the Akan group, the Krou group, the Mande group, and the Lagunaire group. No ethnic group comprises more than about 15 percent of the total population. One ethnic group, the Senoufo (North), makes up 15 percent, but plays almost no role in the modern life of the country. Another group, however, of equal size, the Baoule (centre), together with culturally and linguistically-related groups of the south, runs the country. French is the official language and also the principal lan- guage of communication. Bambara (sometimes called Dioula) is the major African language used in trading. Most people practice the traditional tribal religions of their ancestors, but about 23 percent of the population, mainly in the North, have been converted uJIslam, and about 13 percent, mostly in the South, are Christians. Adherents of Christianity and Islam have not necessarily discareded all the beliefs of their tribal relig- ions. The government is officially secular, tolerant of all religions. Historical Setting_ The different ethnic groups in the Ivory Coast were first brought together by the accident of colonial conquest and made an entity for administrative convenience. The history of the country'ias a political unit dates only from 1893 when it became a French colony. Before that time the story 10 was one of disjointed tribal activities and of the encroachment of European traders along the coast. Penetration on the-coast through the dense forest and into the interior was a slow process. The French did not fully pacify the country and win effec- tive control until after World War I._ And intensive development was not undertaken until World War II. Throughout the colonial period the country had a measure of autonomy in.1ocal matters, but it was enjoyed only in the restrictive framework of the hugh French West African federation whose seat was in Dakar (capital city of Senegal). In fact, until 1958 the only ways in which the French colonizers treated the Ivory Coast as a distinct political entity were by establishing a territorial assembly to assist and advise in local administration and by requiring the colony to pay its own way in financial matters. The concept of a completely distinct nationality existed only a few years before August 7, 1960, the date of independence. There are two other fundamental legacies from the colonial history which continue to permeate economic, political, and cultural life. First, the nation's leaders were educated in French schools, steeped in French culture, and trained in French political institutions. Therefore, they not only think and act as Frenchmen, but apply, as a basic princi- ple of government, the French theory of "etatisme," the concept of the supremacy of the state and strongly centralized administration. And, secondly, the French social organization and education were adopted. Schools teach history from the European standpoint, rather 11 than the African standpoint. No real attempt has been made to Africanize the educational system. Since World War II, the dominant political figure of the country has been President Felix Houphouet-Boigny. On November 27, 1960, Houphouet-Boigny was elected President, and has been reelected up to now. The Ivory Coast has a presidential system with a single legislative chamber elected by universal suffrage and a single political party, the "Parti Democratic de cote d'Ivoire" (PDCI). The President is elected for five years and is the sole executive authority. Economy and Transport The Economy The French introduced primary export crops before World War II but it was only during the 1930's that coffee and cocoa began to make substantial gains in the economy. These gains were intensified after World War II. In 1950 the opening of the Vride Canal at the capital city, Abidjan, made it possible to build a modern seaport with facilities for handling all kinds of shipments on a large scale. The creation of the port in Abidjan encouraged the diversifi- cation of the export trade and built up domestic industry. Agriculture is still the prime factor in the economy. Most of the population, 90 percent, makes a living from the land and 75 percent of the total production of the country is from agriculture and animal husbandry. For climatic reasons, livestock breeding is well-developed only in the north and provides only a small portion 12 of the country's meat requirements. The major food crops are yams, bananas, and rice. Coffee, cocoa, timber, bananas, and pineapples are export crops. The Ivory Coast is the world's third largest producer of coffee and cocoa and the world's fifth largest producer of bananas and pineapples. Timber provides over 20 percent of exports. Since 1960 there has been remarkable expansion of the textile industry. . The country has valuable deposits of magnanese, iron, bauxite, copper, chromite, gold, diamonds, tins, and oil. I Domestic industry (both mineral and agricultural processing industries), practically nonexistent before the end of World War II, has shown substantial growth in recent years. The Transport Sector Transportation is centered in the capital city, Abidjan. There is a solid communication infrastructure, although it is unevenly distributed throughout the country, the southern half is much better equipped than the north is. This relatively well-developed transport infrastructure has been instrumental in the rapid growth of the coun- try's economy. The government has placed major emphasis on transport invest- ment and has provided a reliable and efficient infrastructure for the shipment of the major export products. The transport network of the southeastern region of the country links the area with the port of Abidjan. Economic development took place initially in agri- culture and forestry; products were first shipped to Abidjan by rail 13 and later over a system of paved roads. A similar pattern of devel- opment is currently underway in the southeastern region of the Ivory Coast where, in 1971, the deep-water port (second port of the country) at San Pedro was opened.‘ This pattern of growth has highlighted the regional imbalance between the south and the north, an area that has not been allocated comparable investment funds in the past. The government is now conscious of the need for a more bal- anced system of regional development. There has been an increase in total transport sector investment due in part to cost overruns, but also to the addition of new projects. The transport sector invest- ment as a whole during the 1971-75 period was estimated to be on the order of 53 billion as against the initial target of 43 billion or 22 percent higher. As a whole, the program represents about 22 per- cent of total public investment planned, with the road program accounting for 50 percent of total sector investment. In 1975 the network consisted of more than 38,000 kilometers of roads (of which some 2,200 kilometers were paved), 640 kilometers of railroads, two major seaports (in Abidjan and San Pedro), 400 kilometers of navigable lagoons (the rivers are not navigable), two airports of international standard, and eight domestic airfields. The transport sector constitutes an important source of employment. Roads are the principal mode of domestic transport, carrying about 78 percent of interurban passenger traffic and 70 3 percent of freight traffic. With the improvement in the road 3"Ivory Coast: The Challenge of Success,“ p. 269. i ”D 14 network over the years, the role of the railway as a long-distance means of transportation has been accentuated. The National Development Strategy_ The development strategy on the Ivory Coast is based on the productivity of export crop agriculture to support a modern urban industrial sector. This strategy requires cheap agricultural labor to maximize agricultural earnings and trained workers to operate the technology of agricultural growth. The Ivory Coast leaders have encouraged foreign African labot to work on coffee, cocoa, pineapple, banana, palm oil, and other agricultural plantations and trained Europeans, mostly French, to organize and expand the enterprises of modern commerce and indus- try. Foreign investment has been used to stimulate the industrial sector and develop modern infrastructures to promote rapid economic growth. The implementation of this strategy has involved a combina- tion of a free enterprise.system strongly encouraging foreign invest- ment and a strong state capitalism. This mixed policy reflects the government's continued economic and political reliance on France. The government attracts investors from many developed countries and uses a percentage of the profits of foreign firms for its own develop- ment projects. This statement from President Houphouet Boigny to the 1965 PDCI Congress emphasized the importance of foreign partici- pation in the economy: "We have affirmed with force that in the Ivory Coast we have no factories to nationalize, but to create; no 15 land to redistribute, but to improve: no commerce to publicly con- trol, but to organize."4 State capitalism is organized through more than thirty state- owned corporations which produce a wide variety of goods and services including palm oil, hardwood, rubber, pineapples, bananas, technical studies, and construction equipment. The profits of these corpora- tions are intended to expand activity within their individual sectors while being coordinated by the National Ministry of Planning and Economic Affairs. This strategy has produced spectacular indications of short- term economic growth. According to a World Bank report in 1978 on the current economic position and prospects of the Ivory Coast, "the annual growth rate in real terms of over 7 percent during the past twenty-five years is unique on the African continent." In 1950 with a per capita income of around $70, the Ivory Coast ranked among the poorest nations. At independence “11960, per capita income had risen to $145 and in 1974 it reached $450.5 The History of Urbanization As any developing country, the Ivory Coast is characterized by its extremely high rate of urbanization. The economic development is illustrated by the rapid growth in the capital, Abidjan, and by the slower, but progressive, growth of the upland cities. Table 2 4Michael A. 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