Coping with Growth in Tehran

Strategies of Development Regulation


Term Paper, 2007

48 Pages, Grade: 1,3


Excerpt


Table of Contents

1. Introduction

2. Structure of Settlement in Tehran
2.1 Spatial Structure and Administrative Organization of TMA
2.2 Administrative Organization of Tehran City
2.3 Built-Up Structure of Tehran City
2.4 Socio-Economical Structure
2.5 Infrastructure

3. Stages of Growth and Regulation Measures
3.1 Phase until 1970: City Expansion in Course of Industrialization
3.2 Phase 1970s till 1980s: Rapid Growth and the first Efforts to Control Growth
3.3 Phase from 1980s: Modernization and New Regulation Efforts
3.4 Present Strategy of Decentralization

4. Evaluation of Regulating Local and Regional Development
4.1 Deficiencies Development Regulation in Tehran City
4.1.1 Centralized and Hierarchical Authority System
4.1.2 Inconsistent Control of Development
4.1.3 Unequal Regulation of Development
4.1.4 Inadquate Regulation Policies
4.2 Deficiencies Development Regulation of the Region
4.2.1 Insufficient Decentralization Strategy
4.2.2 Deficient Administrative Organization of the Regional Authorities

5. Recommendations for Development Regulations
5.1 On the Local Level
5.2 On the Regional Level

6. Final Conclusion

Appendix

I List of Abbreviations

II List of Illustrations

III Bibliography

1. Introduction

Tehran City is the national capital and the economical, cultural, and social center of Iran. The city and the surrounding urbanized region, referred to as “Tehran Metropolitan Area” (TMA), is one of the largest mega regions of the world, having the highest concentration of population in Iran and the Middle-East.

Illustration 1: Topography of Iran

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In course of industrialization and the increasing importance of Iran, Tehran has become magnet to companies and millions of migrants. Until 1970, the city has been the center of the national growth, fuelled by the centralization strategy of the national government. However, this changed as Iran’s government steadily began to limit growth in Tehran, while directing it into the surrounding towns of Tehran. Today, over 7 million people live in the city of Tehran and over 12 million live in the TMA (in 2005). The unprecedented and phenomenal growth has exacerbated several problems such as environmental problems, traffic congestion, air pollution, housing shortage, lack of governmental finance, increasing poverty as well as infrastructure deficiencies within the city and the TMA.

Illustration 2: The Metropolitan Region of Tehran

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Managing the development of the city as well as the regional growth has been and is still a major challenge for the responsible governmental agencies. In order to cope with growth, the government has made different regulation approaches and has come up with various development strategies. The paper explores the different regulation efforts of the governmental agencies to control Tehran’s development. Therefore, this paper intends to find out if the strategies to regulate development of Tehran city and the region are the appropriate tactics to cope with growth.

This paper is organized in the following way: It starts by giving an overview of the current settlement structure of the TMA and Tehran city. In the next section, the different stages of Tehran’s growth are examined by explaining the national circumstances, causes, and reactions of the governmental agencies to control the development by drafting policies or plans, and implementing measures.

This is followed by an evaluation of these approaches with regard to the evolving consequences and the effectiveness to cope adequately with growth. Recommendations and final conclusions are presented at the end of the paper, based on the findings of this study.

2. Structure of Settlement in Tehran

2.1 Spatial Structure and Administrative Organization of TMA

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Illustration 3: Tehran City and the Alborz Mountain Range

Tehran’s urban area between the Alborz Mountains in the north and the desert, Dasht-e Kavir, in the south is located on vast mountain slope with an altitude of 900-1700 m above sea level.[1] In higher altitude there are some snowy slopes and semi-humid mountainous climate conditions, whereas it becomes hot and arid on lower altitude. Limited by the mountains the city of Tehran has expanded towards the south and west. According to the Tehran Geographical Information Center (TGIC), the TMA spans over a land area of 18,814 km² of Tehran Province.[2] Tehran province is one of 30 provinces in Iran and is divided into 13 sub-provinces (shahrestans), which are subdivided into 34 counties (bakhshs). The counties of Tehran Province contain 48 cities (shahrs) and 77 villages (dehastans).[3]

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Illustration 4: Administrative Divisions of Tehran Province in 2004

Land use and development regulations are a function of the national government and the local governments. The basic development regulations are prepared by the national government that should be applied in the entire country, but most laws and regulations are provided at the local level. Due to the rules of the Interior Ministry, local law cannot conflict with the national rules and regulations. The adherence of regulations is supposed to be controlled by officials appointed by the Interior Ministry. The superior authority of the TMA is due to the national agencies of the Interior Ministry. They are responsible for drafting development plans and policies for regulating the development in Iran’s provinces.[4] Since 1960, this is in responsibility of the “Ministry of Housing and Urban Development” (MHUD) and its advisory committee, referred to as the “High Council of Architecture and Urban Planning” (HCAUP). Usually, the agencies of the Ministry of Interior hire consulting engineers to draft the plans.[5]

Since 1989 when the Constitution was changed to privatize the economy and provide more autonomy for Municipalities [ Stadtverwaltungen ], cities are autonomous units since the municipal government has the authority to pass laws on development regulation, for example to control land uses, densities of construction, or taxing. They are also economically self-supporting, meaning that they are responsible for the maintenance of infrastructure and the allotment of the funds by the central government. Before 1989 cities were completely financially and by law dependent on the decisions of the Interior Ministry. The municipalities were legally bound to implement the policies drafted by the national government.[6]

In contrast to municipal authorities, the rural local authorities of villages are not autonomous units since they depend on the decisions of the national agencies about the draft of policies and allotment of infrastructure investments for rural agglomerations.[7] The status to become a “city” is down to the Interior Ministry which mainly bases the decision on the existing infrastructure of the particular unit. The size of the administrative unit in terms of inhabitants is rather meaningless to become a “city”, since there are villages with more inhabitants than cities, and some of the urban agglomerations are not considered as independent divisions even though they cover the land areas of counties or sub-provinces.

The TMA has a polycentric spatial structure as it consists of vast rural and agricultural or industrial areas that separate urban agglomerations from each other, which are often scattered up to 100 km apart. The average population density of the TMA 645 p/km², which is high compared to Iran with 42.0 p/km² and low compared to Tehran City with 10,127 p/km².[8] The population distribution within the TMA is very unbalanced because of the heterogeneous structure of vast rural areas in the desert with very low population of 100-300 p/km², and the very populous villages and municipalities (i.e. in the city of Eshlambar are 8,100 p/km²). Of the 12,150,742 million inhabitants of the TMA, 84.2% live in urban areas and 15.8% in rural areas.[9] Tehran Province accounts for 17.7% of Iran’s population. Over 70.0% of the total population of the TMA lives in Tehran. Its population number is more than the sum of three other major cities of Iran; Mashhad, Tabriz, and Isfahan.[10] For example, the city of Karaj (40 km to the west) has “only” close to one million inhabitants; the city of Eslamshahr has even less (265.000). In the TMA are agglomerations which are much more urbanized than Tehran (9,600 p/km²), such as Akbarabad (82,500 p/km²) or Qarchak (21,200 p/km²).[11]

Illustration 5: Distribution of „Urban Population“ in Iran

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2.2 Administrative Organization of Tehran City

The municipal limits of Tehran include an area of 707 km². In addition to “Tehran County”, the limits cover parts of three other sub-provinces. The city is divided into 22 municipal districts (mantageh). There are also 112 sub-districts, and smaller subdivisions or neighborhoods (howzeh), but these do not have an administrative application.[12]

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Illustration 6: Administrative Division of Tehran City in 2004

Tehran Municipality is responsible for the management of the city, i.e. launching laws and plans, allotting finance, and the provision of basic urban services.[13] The supply of technical infrastructure such as gas, water, electricity, telephone is the responsibility of private utility companies.[14] The mayor is head of the Municipality and together with the Tehran City Council (since 1999) he supervises all activities of the city. The mayor and council make final decisions about the city development as they have to approve all municipal laws, plans and allotments of the budget. Since 1999, citizens of Iran elect the city council. Due to a change of the national Constitution, citizens can participate in the governmental elections as being represented by the city council. Since then Tehran City Council elects Tehran’s mayor who was previously elected by the Interior Ministry.[15] Nearly all of the city affairs such as social, cultural, educational, health, and economic activities are planned and achieved by certain agencies of Tehran Municipality (i.e. the Tehran Disaster Management Center is responsible for taking care of safety precautions due to earthquakes). In Tehran there is no explicit municipal committee which is assigned to manage Tehran’s city planning or development. The tasks referring to the city management are at the responsibility of several municipal agencies, whereas the areas of competences are not clearly defined. The only municipal board involved in passing city development regulations is “Tehran City Commission Number Five”, established in mid-1990s, which is also responsible for approving detail plans drafted by the authorities of the 22 districts.[16]

On the sub-level of Tehran there are 22 district mayors and councils that are elected by the City Council and appointed by the city mayor.[17] The district authorities supervise the diverse activities in their area of jurisdiction, and are assigned to prepare detail plans for their districts. The district authorities depend on the decisions and approvals of the superior authorities of the Municipality. All laws and plans drafted by the Municipality need to be in conformity to national laws.

2.3 Built-Up Structure of Tehran City

Illustration 7: High-Rise Buildings in Tehran

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The municipal limits define a city area of 707 km², inhabited by 7,160,094 persons.[18] The average population density is 10,127 p/km². Tehran is a capital with a rather low density, which is mostly due to the vast un-built areas. By taking only the built-up area in account, the density is higher with 14,600 p/km².[19] The built-up density differs between the zones, whereas the average density of the south is much higher with 30,000 p/km² than in the north with 4,000-9,000 p/km².[20]

Illustration 8: Population Density in Built-Up Areas in 1996

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This is mainly due to the floor space consumption in the north, which is four times higher, compared to the south. The average floor space consumption is 25.5 m² per person (m²/p).[21] Green spaces concentrate on the north-eastern and north-western margins. The city is composed of an irregular interconnected system of main roads. In the central area, within the traffic zone, there is the traditional small-scale network of streets, dividing this area into small quadrants. Highways are in the northern part of Tehran and lead around the city.

Illustration 9: Commercial Building in the CBD

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The disparity between the north and the south of the city, leading to a bipolar structure, is the most conspicuous feature of the city. Being the main east-west axis, boulevard Enqelab Avenue spatially separates these two contradicting city regions. In the north and northwest are mostly residential neighborhoods, while the north-eastern section is composed of mixed typology of uses. It contains the modern “Central Business District” (CBD) with several offices. In addition most governmental, cultural and public facilities of Tehran are located in the northern region, including embassies and ministries, theatres and museums, shopping malls, and the University of Tehran.

The structure of the buildings is mostly modern, and high-rise, modelled on Western style architecture. Contrasting the north, south of Enquelab Avenue are the older quarters of city, containing the traditional bazaar-center. This center contrasts the modern CBD as it is very low in density and lacks businesses and civic institutions. There are many abandoned buildings or institutional holding with run-down fabric, and just few older residential buildings. The whole southern region has deficiencies of cultural amenities and public institutions such as health and education facilities. This region is dominated by industrial worksites since large industrial companies and smaller manufacturing units are concentrated in the south. Therefore, this area is more polluted than the northern section. The aging residential buildings in this area are in dilapidated shape and constructed in a dense way, with very limited green space. Most buildings are five to seven storeys high, and consist of one-room tenements, which provide floor space of only 10 m²/p. On the southern margins are some informal homes or slums, which are characterized by even lower quality as they consist of non-durable materials. Most of these informal structures are huts, erected by squatters near the industrial worksites. Due to the low living quality in the southern parts of Tehran, real estate prices are significantly lower in this region compares to the north (see illustration 11).

Text Box: Illustration 10: Run-Down Buildings in the South

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Illustration 11: Land Prices in Tehran in 2002

In the north, land prices have always been higher due to the better climatic conditions. As in consequence, mainly low-income groups live in the south whereas high-income people prefer the modern north. The spatial separation is also reflected in a social segregation between Tehran’s income-classes.

2.4 Socio-Economical Structure

Tehran Province is the economical center of Iran as it contains about 30% of Iran’s economy, and represents 40% of Iran’s consumer market.[22] Tehran Province accounts for 26% of the Gross Domestic Product (GDP) of Iran, which is the highest GDP rate nationwide. The province has the 4th highest GDP per capita of all provinces.[23] Many large national companies are located in Tehran city. Tehran is the “first industrial zone of Iran” due to the concentration of 45% of Iran’s large industrial firms in the capital.[24] Industries include the manufacturing of electronics, weaponry, textiles, sugar, cement and pharmaceutical products. Especially the production of cars takes a large segment in the manufacturing sector. Tehran is also the leading center for sale of carpets and furniture and incorporates an oil refinery nearby.[25] Furthermore, 30% of Iran’s public-sector workplaces are located in Tehran.[26] Of the total active population in Tehran, one third has jobs in the industrial sector (Secondary Sector). In this sector, about 60-80% of the migrant population work as unskilled workers.[27] Considering the population of the TMA (excluding Tehran), even more work in this sector. However, most inhabitants of Tehran work in the service sector, whereas in the TMA, only half of the total active population have jobs in the Third Sector.

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Illustration 12: Table of Employment and Activity of Population > 10 years

Tehran has an exceptional high rate of economic participation, including employed and unemployed persons, as in comparison in Iran (41.1% in 2006).[28] Also the unemployment in Tehran is lower than in Iran (14 % in 2006). However, economists believe the unemployment rate of Tehran and Iran could be much higher as the official reports of the government. Some experts say it could be as high as 20%.[29] The growth of the national GDP was 5% in 2006, which was mainly due to the high oil price on the international markets. Nevertheless, the country faces economical problems associated with the current political instabilities, such as the rising political tensions in Iran’s foreign relations. This is reflected in the large deficit of Iran’s state budget, which was 71 trillion Iranian Rials (= 5.9 billion Euros) in 2005. In comparison to the previous year the deficit of the governmental budget increased by 70%.[30] Furthermore the high inflation rate of Iran, which is 15.5% in 2005 (in comparison, in Germany it is 2.0%), negatively affects the national economy as it impedes the economic growth.[31] This badly affected Tehran’s economy as the Tehran Stock Exchange dropped 20% within five months in 2005.[32]

Illustration 13: People in the City of Tehran

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The wages in Tehran are low due to the large segment of unskilled workers. It is estimated that about 20% of Tehran’s population lives below the poverty line (in 2005), “poor” being defined as those that have an income lower than 250 U.S. dollars per month.[33] The largest segment of population (33%) is between 20 and 40 years old, while the average age in the TMA is higher.[34] Besides Persians, there are Azeri, Armenian, Jewish and Afghani communities in Tehran. The vast majority of Tehran’s residents are Persian-speaking (98.3%), which is due to the migration of people coming from surrounding areas, such as the neighboring provinces in Iran.[35]

[...]


[1] TGIC 2004

[2] TGIC 2004

[3] SCI 2006 [3] (Administrative Boundaries in 2004-2005)

[4] Zebardast 2005, p.3

[5] Zebardast 2005, p.4

[6] TGIC 2004

[7] Bertaud 2003, p.22

[8] SCI 2006 [2] (estimation in 2005)

[9] SCI 2006 [2] (estimation in 2005)

[10] TGIC 2004

[11] TGIC 2004

[12] TGIC 2004

[13] All-Experts Encyclopedia 2006

[14] IIEES 2005, p.9

[15] IIEES 2005, p.10

[16] Zebardast 2005, p.9

[17] Thum, Shirazi [1] 2005

[18] Fernandez 2004, p.25

[19] Bertaud 2003, p.8

[20] Bertaud 2003, p.9

[21] Bertaud 2003, p.9

[22] Iran Country Study Guide 2004 (in 2001)

[23] Iran Country Study Guide 2004 (in 2001)

[24] United Nations - Cyber School Bus 2006

[25] IIEES 2005, p.8

[26] All-Experts Encyclopedia 2006

[27] Bayat 2006, p.291

[28] SCI 2006 [1] (in 2006)

[29] Samii 2006

[30] Iran Daily 2006

[31] German Industry and Commerce 2007

[32] Iran Focus 2005

[33] IIEES 2005, p.8

[34] TGIC 2004

[35] IIEES 2005, p.8

Excerpt out of 48 pages

Details

Title
Coping with Growth in Tehran
Subtitle
Strategies of Development Regulation
College
HafenCity University Hamburg  (Regional Planung / Regional Development)
Course
Arbeitsfelder der Stadtplanung im nationalen
Grade
1,3
Author
Year
2007
Pages
48
Catalog Number
V111865
ISBN (eBook)
9783640156856
ISBN (Book)
9783640156900
File size
1158 KB
Language
English
Keywords
Coping, Growth, Tehran, Arbeitsfelder, Stadtplanung
Quote paper
Mareike Schuppe (Author), 2007, Coping with Growth in Tehran, Munich, GRIN Verlag, https://www.grin.com/document/111865

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