Summary strategy for city-wide slum upgrading presented to Kigali Mayor. It contains detailed analysis and proposals to address systematically and scaled phisical and socio-environmental improvements. It is based on slum typologies defining a response package based on a strategy encouraging community based approaches for local development and environmental protection.

1. Government of Rwanda/UN Habitat
December 1th 2016
City-wide upgrading under-
serviced settlements in Kigali

2. Agenda
I. Diagnosis
II. Proposal
III. Alternative
implementation scenarios

3. Key definitions
• Underserviced settlements:
Areas lacking access roads,
water/sanitation, social services,
overcrowding and poor housing
building materials (4 UN Habitat
standards of adequate housing)
• Settlement typologies:
Differentiated according to socio-
territorial profile within the urban
structure (location, environmental
threats, land tenure, etc)
• City-wide strategy: Systematic,
integral and coordinated
interventions in all underserviced
settlements to upgrade the existing
case and prevent their proliferation
in future.

4. 1. Diagnosis
Land
shortage:
Topographical
restrictions
Infrastructure
shortage: Under-
serviced and
disconnected areas
Expansion of
rental markets
(shanty areas)
Unaffordable
housing and
building
materials
Low density sprawl
creating new under
serviced settlements
Lack of
social
cohesion.
Segregation

5. Population analysis.
Facts % Numbers
Kigali population 100 1300000
Informal settlements 65,8 855400
Total households 223000
Built up area (Km2) 731,24
Average urban density (person/km2) 1556
Population % Unplanned
Expected
unplanned
in 2022
Average
growth
rate
Nyarugenge 284860 25,08 210511 30,09 256606 1,92
Gasabo 530901 46,75 244218 34,91 404447 5,2
Kicukiro 319661 28,15 244661 34,98 376330 4,4
Kigali 1135422 100 699390 100 4
Source: 4th Population census 2012
Average number of persons per household: 3,88

6. City center (30 hh)
Fringe (22 hh)
Suburban (18 hh)
Settlements in city
centers
Peri-urban
settlement
Fringe
settlements
Urban growth trend

7. Housing facts
• 223.000 dwelling units currently
• 19% in good conditions
• 32% to be upgrade
• 48% to be replaced
Under-serviced settlements results of 48+32
approx.

8. Low density residential
development
Medium density residential
development
High density residential
development
City center functions
Case study selected for
settlement upgrading and
prevention

9. 2. Proposals
Causes of underserviced
settlements
Proposals
1. Expansion of rental housing
market
I. Increase rental housing offer
(densities)
2. Speculative land markets II. Encourage land banking
(public/private)
3. Infrastructure shortage III: Key missing infrastructures
supply to ensure full conectivity.
4. Unaffordable housing IV. Increase cooperative housing
offer and upgrade existing stock.
4. Lack of social cohesion IV. Encourage tenant housing
associations (new /build up areas)
6. Sprawl with low densities
creating new underserviced slums
VI. Harmonize master plan and
settlement standards

10. • City is modernazing rapidly with a
high number of under serviced
settlements
• Implementing Kigali master plan
requires land currently occupied by
congested under serviced area
(increasing densities)
• High economic and social costs
demanding important financial
resources (compensations)
• Peace-meal interventions
demonstrated to be insufficient
(rental market neglected).
Why city-wide upgrading upgrading

11. City-wide strategy approach
Urban planning Infrastructure Housing Participation
Infrastructure supply
Enabling building
environment
Disaster risk reduction
Housing association
Land management
Community
mobilization
Urban/metropolitan scale Community/housing scale
Transport

12. Settlements by size/risky areas
Areas dominated by
unplanned settlements
Small pocket
settlements
Relocation
because
location in risky
areas

13. 1. Up-hill settlements
2. Down-hill settlements
3. Urban inaccesible
settlements
4. Small pocket settlements
5. Center-overcrowded
areas
6. Peri-urban settlements
7. Relocation because
location in risky areas
Proposed settlements types

14. 3 districts 73,128 has
Nyarugenge 13.423 has
Gasabo 43,002 has
Kicuciro 16,702 has

15. Selection case studies
Settlement cases Average size Location Predominance by
district
I. Up-hill settlements Massive (more than 10
hectares)
Central Nyarugenge
II. Down hill Middle size (between 1
to 10 hectares)
Fringe Gasabo
III. Inaccesible Middle size (between 1
to 10 hectares)
Central Kicukiro
IV. Small pocket Small size (less than 1
hectare)
Fringe/Peri
urban
Nyarugenge
V. Overcrowded center Massive (more than 10
hectares)
Central Nyarugenge
VI. Periurban Small size (less than 1
hectare)
Peri-urban Gasabo
VII. Relocation because
location in risky areas
Massive/Middle/small Central Nyarugenge/Gasab
o/Kicukiro

16. Estimation of target households
per settlement types
Unplanned settlements
types % Households
1. Old crowded centers 20 29000
2. Up-hill sloped areas 40 58000
3. Down hill 15 21750
4. Inaccesible areas 15 21750
5. Small pocket areas 8 11600
6. Peri-urban areas 2 2900
100 145000
Upon 223.000 total household today. 65 %

17. Selected settlements in Kigali
Kagugu
Nyamabuye
Nyarurama
Gasabo district
Kicukiro districtNyarugenge district
Agatare
Tetero
Kora
Kiruhura
Kagunga
Rwampara

18. City-wide upgrade strategy per
settlement type
Gasabo district
Kicukiro districtNyarugenge district
I. Old center
overcrowded
Up hill- Down-hill
Inaccesible settlements
Small pocket settlement
Peri-urban settlement
New transport
facilities

19. Type Social profile Urban standards Challenges
I. Old
overcrowded
centers
Tenants
(100%)
High density/resid
(between 100 and 250
inh/has)
Overcrowding
Lack sanitation
II. Up-hill
sloped area
Owners/tenan
ts (40%/60%)
Medium density, (between
80 and 100 inh/has)
On going erosion.
Landslide risks
III. Down hills Dominated by
tenants
(80/20%)
Low-medium density,
mixed uses (between 80
and 100 inh/has)
Contamination of
the groundwater.
Destroy wetlands
IV Inaccesible
areas
Tenants
(80/90%)
Low-medium density/resid
(between 60 and 80 h/h)
Difficulties to
access/service
V. Small
pocket areas
Tenants
(70/30%)
Low density, mixed land
uses (between 60 and 80)
Overcrowding
VI. Peri-urban
areas
Mostly land
owners
(90/100%)
Very low density,
agricultural (less than 20
inh/has)
Loss of fertile land
VII. High risk
areas
Displaced
and migrants
Low density mixed uses High risks

20. I. Old over-crowded centers

21. Old-center overcrowded settlements

22. Proposed interventions
Renewal of the area building up
multistory building (up to 3)
increasing densities to match
those established by master plan
Creation of public
spaces designed to
serve whole city
Areas reserved for
expansion of public
infrastructure (transport)
Re-structuring of the area by
neighborhood cells (same land
owners and tenants)

24. Kiruhura, Nyabugogo

26. Agatare, Nyarugene

27. International
reference: Medellin,
densification
project. Quebrada
San Juan Bobo.

29. II. Up-hill slopped area

30. Up-hill informal settlement
intervention model

31. Proposed cross section for up-
hill and down-hill upgrade
2 km.
0,5 km.
Retaining walls
shaping terraces

32. Nyamugare

33. Proposed intervention up-hill
informal settlements
Opening border roads in the fringe with retaining walls
Stair roads in
concrete

34. Aerial view of settlement
upgrading vision

35. Proposal for land readjustment
The land readjustment
proposal take advantage of
risky areas (relocation of
population) to create public
spaces and connecting roads
Such improvement bring
benefits to improve
environmental management of
the area introducing basic
social services
Participatory land readjustment
systems gives the chance to
empower tenant roles in the
upgrading process
Planned expansion of the area through social
housing supply and rental housing subsidized by
the state mixed up with private investment

36. International reference:
Program Favela Rio

37. International reference: Favela-
Bairrio program (Brazil)

38. III. Down-hill area

39. Down hill informal settlements

40. Proposed intervention
Access roads with
retaining walls
Central point for
collection of
sanitation system
Sanitation network by gravitation
Physical boundary to avoid
expansion upon wetland

42. Model for land readjustment
El model proposes
subdividing the area
in basic cells of
around 10-20 plots
setting a friendly
agreement for
access roads and
public investments
in rataining walls

43. IV. Inaccesible areas

45. Inacessible informal settlements

46. Proposed interventions
Expropriation of empty plots to open key
access roads in unplanned settlements
behind consolidated neighborhoods
Opening of
access
roads
parallel to
drainages
Border road
front-back
neighborhoods
Re-structre of the settlement in
cells according to accesibility
Wat-San
network supply

47. Rwampara

48. Rwampara, Kigarama

51. International
reference. Buenos
Aires, Argentina

52. V. Small pocket areas

53. Small pocket informal settlements

54. Proposed interventions
Regulate corridors
and semi-public
spaces to ensure
privacy and good
access in
settlements
Creation of public spaces (gardens,
schools, health, etc) to increase the
exchange between neighborhoods
and unplanned settlements
Building material bank to support
tenants improving initiatives

56. VI. Peri-urban areas

57. Periurban settlements

59. Proposed interventions
Social services supply (school, health,
police) for peri-urban settlements
consolidation
Land tenure security for farming and support
through micro-business credit and tools
Provided irrigation system for farming
Micro-industrial agriculture
infrastructure (state funded)
Main road and public transport
system provided (subdivided)

60. Low cost-housing
types. Chile

61. Peri-urban development: IDP

62. Agricultural schemes
High cost of transportation (1000 KF daily)
Survival economy

63. 3. Alternative implementation scenarios
Scenario A. Scenario B. Scenario C. Scenario D.
Full Government
response.
Public housing
and
infrastructure.
Government+
community.
Public housing
infrastructure
Public-private
corporation
Private sector
(real estate,
land owners,
investors, etc).
Full package of
affordable housing
delivery in available
land (including
under-served
settlements)
Specific subsidized
interventions
targeting requested
community priorities
(infrastructures)
Prioritization of
public infra
needs for
under-serviced
areas (access,
wat/san,
transport)
Densification of
prime areas
(regulation) and
promotion of
rental housing
Taxes, mortages,
credits, other
revenues.
Taxes, land
capture value and
community work.
Public and private
investments
Private
investments pro-
poor regulatory
framework

64. Summary stakeholders
Tenant cooperatives
(construction new houses) Land owner associations
(urban renewal)
Neighborhood associations
(tenants+owners joint venture
for upgrading)
Public enterprises (specific
services supply)
Private real estate
developers
City-wide settlement upgrade
corporation
Government lead:
CoK/MINIFRA/RHA/Districts
Support with land and
housing subsidies Offer joint venture for land readjustment
plan to increase densities with rental
housing
Offer infrastructure support package in
exchange of community labor provided
Coordinate service supply according to CoK
master plan and socio-territorial priorities
Offer zonning for priority investment
in real estate development utilizing
land value capture mechanisms

65. Summary financial plan
Type Density
Inh/has
Cost analysis Estimated cost
per household
Land Infras (w/s) Housing
I. Old
overcrowded
centers
400
inh/has
Opening
roads (+ land
pooling)
Water and
sanitation
Upgrade +
build new
units
Big initial
investment/low
cost per HH
II. Up-hill
sloped area
150
inh/has
Sidewalk + re-
plotting
Retaining
walls-
Drainage
Upgrade/
renovation
Medium initial
investment/med
ium cost per HH
III. Down hill 80
inh/has
Sidewalk
Roads +
replotting
Water and
sanitation
network
Upgrade/
renovation
demolition
High initial
investment/high
cost per HH
IV
Inaccesible
areas
200
inhab/has
Plots
expropriations
Roads
Drainage
and bridges
Renewal/
renovation
Low initial
investment/low
cost per HH
V. Small
pocket areas
60
inhab/has
Semi-public
corridors. Re
location
Sanitation Renovation Low
investment/low
cost per HH
VI. Peri-
urban areas
50
inh/has
Land leasing x
agriculture
Transport Upgrade High initial
inv/high ct/ HH

66. Proposed strategy x case studies selected
Informal
Settement
District Name Project proposal Implementation
startegy
1. Old
overcrowded
centers
Nyarugenge/
Nyabugogo
Muhima Gitera
Nyarugenge
Kiruhura
Tetero Kora
Agatare
Complete
restructuring and
densification
Agreement with land-
owners and tenants
2. Up-hill Gasabo/ Gatsata Nyamugare
Nyambuye
Terracing for
improving access
and wat/san
management
Special taxes for
landowners
3. Down hills Gasabo/ Remera Nyarurama Stop expansion
Sanitation supply
Incentive for
cooperatives
4. Urban
inaccesible
Kicukiro/
Rwampara
Kigarama Expropriation of
entry-exit parcels.
Bridges
Negotiation with
neighborhs/
5. Small
pocket
Kicukiro
Gikondo
Kagunga Upgrade and
regulation to create
semi-public spaces
Agreement between
landowners and
tenants
6. Peri-urban Kicukiro/
Kigarama
Rwampara Guiding further
development
Agreement with land
owner

67. Financial/management model
Unplanned settlement upgrade
• Retaining walls
• Terracing plots
• Opening access roads
• Expropriating land for
accesing inaccesible
settlements
• Wat-san provision
• Land sharing for improvement
Materials provided by CoK
Labor provided by community
Corporate responsibility for Wat/san
Materials provided by CoK
Labor provided by community
Corporate responsibility for Wat/san
Tenants offered land lease (PILLAR)
Urban renewal
• Land readjustment schemes
• Rental housing construction
CoK+Land owner+tenant+developer
Urban expansion
• Supply of infrastructures and
social services
• Subsidies for development
CoK+Low income tenants
(cooperatives)+real estate developer

68. Strategies for strenghtening
community management
• Database of beneficiaries of the
upgrade and housing programmes
• Use of traditional mobilization
schemes.
• Micro-credits for housing and initiate
micro-business
• Leasing system facilitating that tenants
can become property owners along the
time.
• Profesional training in construction
(plumbing, etc) to play the role of
contractors for upgrading
• Land banking system (land and
materials) co-managed by CoK and
communities involved

69. Step by step plan
Activities Years
1 2 3 4 5 6 7 8
Adjustment of regulations
Community
empowerment
Urban Infras supply
Land banking (value
capture)
Land re-plotting
Neighbourhod association
self-upgrading
Housing associations
building new houses
Recovering of public
spaces (empty areas) and
social services supply
Real estate building
multistory rental apartm

70. Annex
• Methodology: set of combined key indicators obtained
through interview to District Engineers, residents, field
observation, aerial photo, and official statistics. Data are
combined to guess dynamics and rationale of informal
settlements (IS).
• Comprehensive variables: Urban factors (location and
access to services), physical pattern, land values, rental
market behaviour, social profile including income,
environmental threats, etc.
• Case studies: 3 areas representative of the three districts.
• Model for interventions: Model assess alternative
schemes to intervene in informal settlements according to
their priority needs and sustainable finance.

71. Information matrix
District
sector cell
Age Acces Slop Land
Own/
tenan
Market
values
Bdg Envir Socio-
econo
Upgrade
attitude
Nyarurarama
Nyamabuye
Kagugu
Rwampara
Kagunga
Kabuye
Kiruhura
Tetero
Kora
Agatare

72. • Urban renewal: Transformation of an existing built-up
area to increase densities (matching standards from the
master plan)
• Settlement upgrade: Process focus on improving social
wellfare in underserviced settlements keeping their
existing built up structures and patterns
• Rental markets: Areas where affordable renting is
provided to counterbalance the influence of no regulated
informal renting.
• Pro-poor funding schemes: Financial alternatives to
support social priorities through specific interventions
• Revenue mechanisms: Alternatives to recover public
resources invested in social development to extend
benefits.
Detailed definitions

73. Implementation strategy
City-wide settlement upgrade corporation
mandate:
1. Participative planning coordinated with
master plan priorities
2. Land banking (legal review and private land
purchase)
3. Guiding housing subsidies (social real estate
trust investment trust).
4. Leading urban renewal exercises (through
participative and inclusive land adjustment)
5. Funding project proposals from communities
(social and infrastructure nature)
6. Coordinate supply of public services. Capture
land value to finance city-wide actions
7. Define priorities for real estate development
investments

74. Population/areas per districts according to CoK
master plan
Nyarugenge Gasabo Kicukiro Kigali
Mixed land uses 68,29 168 177
High rise residential 13,23 55 112
Medium rise residential 806,29 955 1606
Low rise residential 359,38 1797 1389
Single family residential 78,58 4594 4097
Total 1325,77 7569 7381 16275,77
% informal settlements 70 35 55
Area occupied 1893,95714 21625,7143 13420
Average density
(inhab/has) 111,148766 11,2929449 18,231073
Population 210511 244218 244661 699390
Households 54321,7344 64424,7428 60058,7531 178805,23

75. Housing projection (master plan)
Housing
type
Housing
share %
Population
share
Housing
size (sq
meter)
Area Dwelling
unit
Single
family
55 28 250 93,12 40
Low rise 21.5 25,5 120 36,5 90
Medium
rise
20 40 90 33,21,65 160
High rise 1 2.5 90 4,08 200
Mixed use 2.5 4 90 1,68 160
Total 100 100

76. Inputs from the analysis
• Current trends indicates that underserviced areas
results of “natural” land market need for densification
• Implementation of the master plan will lead to
significant shortage of affordable housing triggering
underserviced settlements in the peripheries.
• Full interventions requires to combine simple land
market regulations with engagement of inhabitants and
owners of the different types of under-serviced
settlements.
• Harmonization of densities and land uses assigned
by master plan requires a detail planning exercise that
this proposal seeks to contribute.

77. Access to drinkable water
All cases are limited access to
drinkable water, specially critical
in those centrally located

78. Acess to health services
All cases has problems to access
health services, specially up-hill,
down hill and inaccesible
settlement types

79. Access to education
All cases has access to
education, except peri-urban
settlement types

80. Inputs from the Social Real Estate
Investment trust
Kigali Housing Commission
Kigali Trustees Corporation Ltds
Rwanda Real Estate Exchange
Citizen representation,
Hurman Rights, complains,
M&E, Master plan follow up
Environment to attract long
term funding
Environment to attract short
term funding in construction
and multiply real state
business

81. Participatory land readjustment scheme

82. 8. Expected outcomes
• City-wide settlement upgrading strategy, shared with
major stakeholders (RHA, CoK, communities, land
owners, tenents, developers, etc).
• Actions at multiple scales (city, neighborhoods and
housing) with multiple funding sources.
• Reconciliation of master plan and city wide IS
upgrading standards.
• Preliminary project interventions corresponding to the
6 different strategies proposed
• Mitigation strategies of gentrification effects
• Alternative financial models (existing, on going and
proposed)
• Regulatory framework focusing on land market and
rental market monitoring and control (out of the TOR).

83. Density analysis
Area Population % Densities Inh/has
City center 480000 11,7647059 30000 30
Fringe areas 1400000 34,3137255 22000 22
Suburban 2200000 53,9215686 18000 18
4080000 100
Densities Uses Persons/Km2 Persons/hectares
Low Suburban 3000 30
High Under serviced settlements 25000 250
Source: Master plan for CoK
Urban existing Urban 2025 Urban year x
Urbanized area (km2) 17 25 40
Area (Km2) 713,27 713,27 713,27
Population (inhabitants) 1200000 2900000 5000000
Gross density (inh/has) 16,70 39,50 68,50
Gross urban density
(inh/has) 11000 15850 17000

84. Guiding principes for upgrading
• City-wide coordination and
institutional capacity building
• Pro-poor participatory and
empowering
• Minimizing displacement by
creating alternatives
• Multiple upgrading strategies
according settlement type and
preferences of the residents
• Encourage joint venture between
tenants and land owners sharing
the same neighborhoods
• Promote construction of
affordable housing enabling land
markets and construction industry
• Financial sustainability
establishing a fair system of tax
and revenues based on social
priorities.

85. Township distribution provides a framework for settlement upgrading
and housing interventions: Massive upgrade, middle size and small
Proposed township distribution & upgrading plan

86. Gasabo district
Detail of Kagugu

87. Gatsata,
Nyamabuye

92. Kinyinya, Kagugu

96. Nyarurama,
Remera.

99. Building
regulations

100. Kicukiro district

101. Kicukiro district

104. Kagunga,
Gikondo

112. Marembo II

113. Nyarugenge, District

114. Kiruhura

117. Tetero, Muhima

119. Tetero

123. Kora, Gitera

126. Kora

130. Proposed financial strategy
Settlement
approach
Implemementation
scheme
Stakeholders Total target
(household)
1. Old crowded
centers
Densification with
land readjustment
Land owners
29000
2. Up-hill sloped
areas
Community contracts Land
owners+tenants 58000
3. Down hill
Wat+San companies
and community
contracts
Land
owners+companies
21750
4. Inaccesible
areas
Government
expropriate to open
roads
Government+Land
owners+tenants
21750
5. Small pocket
areas
Land pooling to
upgrade
Land owners
11600
6. Peri-urban
areas
Guided
relocation/IDP
Rural-Urban
communities 2900

131. Urban renewal: Agatare

142. Location
of case
studies
Agatare
Nyamabuye
Tetero
Kora
Kagugu
Kiruhura
Nyarurama
Kagunga
Gasabo district.
Kicukiro district.
Nyarugenge district.
Rwampara