August 2008

Municipality of Tirana

Urban Regulatory Plan Tirana

DRAFT FINAL REPORT

Pour traiter: Fred Wenger urbaplan interna t i ona l

0687-Rapport final-909-FW-nm.doc-19.05.09-FW-nm

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INDEX

PART I: POL IC Y AND ST RAT EG Y FO R T IRANA 7

1. URBAN D E VE LOPM ENT S AND CHA L LENG E S 8 1.1 Int ro du ct io n 8

1.1.1 Tirana is a new metropolis in the Balkans 8 1.1.2 Incertainity about the future 9 1.1.3 Purpose and content of the URPT Final Report 9

1.2 U rb an de ve lop m ent al c ont e xt 10 1.2.1 Environmental context: the basis of Tirana’s identity 10 1.2.2 Spatial development of Tirana: from the city to the urban region 12 1.2.3 International context: the new geography South Eastern Europe 13

1.3 P rosp e ct s a nd ch a ll en ges fo r T i ra na ’s d ev e lop m ent 15 1.3.1 Population growth assumptions 15 1.3.2 Development needs and potentials 16

1.4 Cons t r a int s and op p ort unit ies fo r u rb an de ve lop m ent ma na ge m ent in T ir an a 21

1.5 A lt e rn at iv e D ev e lop m ent St r at e gy 24 1.5.1 Three scenarios of spatial development 24 1.5.2 Comparison of the scenario 27

2. T IRANA SPAT IAL DE VE LOPM ENT CONC EPT 29

2.1 O bj e ct iv es of sp at ia l de ve lop m ent co nc ep t 29 2.2 F e at ur es o f t h e sp at i a l d ev e lop m ent con c ep t 31 2.3 Int e gr at ed d ev el op me nt of t he T ir an a-D urr ës urb an

cor ri dor 35 2.4 Imp l e me nt at i on of t h e co nc ep t 37

3. FROM T HE CONC EPT T O AN UR BAN D E VE LOPM ENT ST RAT EG Y 40

3.1 In it i al d ev el op me nt sc he m e 40 3.2 Id ent i fi c at io n o f d ev e lop m ent s t r at e gy and p rio rit ies 41 3.3 P ol i cy i mp li c at io ns f or t r ansp ort at io n and m ob il it y 42

3.3.1 Constraints and assumptions 42 3.3.2 Strategic aims 42

P ART II : R EGUL ATOR Y S YS TE M 44

4. APPROACH OF T H E R EGU LAT OR Y SYST EM FOR T IRANA 45

4.1 T h e Re gu lat o ry P l an as e le m ent in a re gu lat o ry sy s t em 45 4.2 L e p l an ré gu lat eur p our i mp oser l ' int é rêt co l le ct i f 46 4.3 P urp ose of t he R e gul at ory P l an i n T i ra na 47 4.4 P ot ent ia ls an d li m it s of t he R e gul at ory P l an 47

5. M ET HODOLOGY FO R T HE E LABO RAT ION OF T H E REGU LAT OR Y SYST EM 49

5.1 T h e ch a ll en ge of r e g ul at io n 49 5.2 Regulato r y Plan fo rm ulation : an i tera ti ve proces s 49

6. LAND U SE 2 020 52 6.1 P urp ose of t he l an d us e 202 0 52 6.2 L and Use 20 20 fe at ur es 53

6.2.1 Natural boundary 53 6.2.2 Natural features 54 6.2.3 Transportation network and hubs 55 6.2.4 Centres and main facilities 57 6.2.5 Residential land use 59 6.2.6 Administrative and expansion boundaries 60

7. GENE RAL Z ONING P LAN 62

7.1 P urp ose a nd m et hod ol o gy 62 7.1.1 Local development guidelines 62 7.1.2 Modes of intervention in the urban territory 63

7.2 D ef in it i on of z o ni n g c at e gor ies 65

8. T HE R EGULAT OR Y PLAN 67

8.1 P urp ose of t he R e gul at ory P l an a nd Cod e 67 8.2 Int e rv ent i ons t o b e o r gan ise d 68 8.3 Bou nd ar ies 70 8.4 Z o ni n g c at e gor ies 72 8.5 St r uct u re of t he Z on in g Co de 72

General provisions 72 Part I: Specific provisions to categories 74 Part II: Special conditions 75 Part III: Standards 75 Part IV: Glossary and schemes 75

8.6 Ap p li c ab il it y of t h e Re gu lat o ry P l an 75

9. Z ONING CODE 77

10. ROAD NET WORK H IE RARCH Y AND PARK ING PROVI SION S 122

10.1 Co nc ep t ion du r ése au 122 10.2 Co nf i g urat ion du r ése au ro ut i er 123 10.3 L es s e ct io ns d es vo ies 126 10.4 Ro ad i nt ers e ct io ns d es cr ip t ions 126 10.5 Pa rk in g r equ ir e me nt s 128

11. IM PLEM ENT AT ION OF T HE REGU LAT OR Y P LAN 129 11.1 C ap ac it i es an d r eso ur ces 129 11.2 T he n ew u rb an p l an ni n g l aw 130 11.3 P l an ni n g ins t r um ent s 133

11.3.1 Le context of intervention in urban development 133 11.3.2 New planning and management instruments 133 11.3.3 Planning obligations and approval process 135

11.4 M onit or in g p l an i mp le m ent at ion a nd co ns t ru ct io n p oli ce 136

P ART II I : AC T ION PL AN 137

ANN E X 141

Urbaplan-0687-19.5.2009 7

PART I: POLICY AND STRATEGY FOR TIRANA

Urbaplan-0687-19.5.2009 8

1. URBAN DEVELOPMENTS AND CHALLENGES

1.1 Introduction

1.1.1 Tirana is a new metropolis in the Balkans

Tirana today is a big city. In just 20 years, the dynamism exhibited by the populations of

Tirana and its surrounding region in constructing a city that now counts in the Adriatic

basin and the Balkans has been simply phenomenal.

"What is happening in Tirana is the effect of the huge energy on the levels of the individu-

als, the family and the community, spreading like a river with non-predetermined direc-

tion. This energy can and should not be stopped by any academic process. The planning

process therefore has to include the energy of the citizens and the promotion of every

idea. "

Edi Rama in, Metropolis, Berlage Institute, 2002

This development, which is exceptional in Europe for its magnitude, has taken place

against the backdrop of the political changes that marked the beginning of the 1990’s in

Albania, but is also due to the redrawing over the last 20 years of the political map of the

Balkans. Tirana has thus become, in a short space of time, a new key to the political,

economic and cultural geography of this part of Europe.

With the rapid economic expansion and multiplication of international exchanges, the port

of Durrës and the international airport of Rinas have became key points for the organisa-

tion of the regional territory. A new functional entity is taking shape in the form of an

urban metropolis covering the territory that stretches from Durrës to Tirana. At interna-

tional level, it is this metropolitan entity that constitutes the real challenge for develop-

ment. And the future dynamics of the cities of Tirana and Durrës as well as a major part

of the Albanian economy will depend on its organisation.

Tirana has become a Mediterranean which:

> spreads over the entire area stretching from Tirana at the foot of the mountains to

Durrës on the coast,

> has a population of nearly 1 million inhabitants, i.e. more than one quarter of country’s

population,

> stands out as Albania’s main economic pole, the location of most of Albania’s business

enterprises,

> comprises the cultural capital of all Albanian speakers and, last but not least,

> straddles a major European transit corridor linking southern Europe, through Italy, to

Istanbul and the Near East.

Urbaplan-0687-19.5.2009 9

This brief description illustrates the extent to which the development of the Municipality

of Tirana linked to that of the Tirana-Durrës urban region.

The Urban Regulatory Plan of Tirana (UTPR) applies to the Municipality of Tirana,

whose jurisdiction does not extend beyond the Municipal boundaries, to the metropolitan

region beyond. The MoT is, however, an actor of primary importance in this region. Thus,

during URPT investigations and Regulatory Plan preparation, reference has always made

to the regional context. Indeed, it is no longer possible to think about Tirana without

considering the organisation of the entire urban region.

1.1.2 Incertainity about the future

"The Municipality of Tirana can strengthen its role in shaping the future of the city by

recognizing the uncertainty of future trends and accepting the limitations of what it can

do in response to those trends. This statement might appear to be internally contradic-

tory. It is not. The days when government at any level could dictate future urban devel-

opment in Albania are gone. Government is no longer a single, all-powerful centralized

institution. Decentralization has created multiple, independent layers of government.

Democracy and the private market economy have multiplied the number and type of

private and non-governmental actors on the urban stage. The urban land market is a

force that Government can try to regulate but cannot control fully. Accession to the

European Union and integration to the world economy will change Albania, including to

some extent the structure and functions of government in general. "

Extract from “Tirana Development Policy”, MoT (Francis Conway), 2007

1.1.3 Purpose and content of the URPT Final Report The purpose of the Final Report is to present the findings and recommendations of the

URPT project, including a summary of the analysis and assessment of urban development,

an outline of the methodology that has led from analysis to the proposed regulatory plan,

and a description of the Regulatory Plan, Zoning Code and related instruments.

Part 1 of the Final Report describes the development perspectives of Tirana and the chal-

lenges of managing its development to meet the future needs and aspirations of its grow-

ing population. It addresses issues of development strategy in order to determine how, in

the current developmental context it will be possible to shape the future development of

the city in spatial as well as organisational terms.

Urbaplan-0687-19.5.2009 10

1.2 Urban developmental context

1.2.1 Environmental context: the basis of Tirana’s identity

Tirana’s identity is strongly influenced by its striking natural setting. The western, eastern

and southern boundaries of the city are defined by a chain of hills (Sauk, Kerrabe and

Vaqarr) – gently sloping and not more than 300 m in altitude. Beyond the hills to the East,

Dajti Mountain rises to 1612 m.

Urbaplan-0687-19.5.2009 11

Figure 1 : Map 1 and 2: Map showing hills and city development plan

The maps show the city in the context of its spatial development and highlight topographical constraints and natural elements that give the city its identity.

Tirana is built on an alluvial terrace, between the lowland of Tirana River and the first

plane of the hilly landscape system of Kerraba. The average altitude of the city is 110 m

above sea level. The hilly terrain has a slightly downward slope towards the North-

Western direction, enabling a natural drainage to the sea.

The forested hills that surround Tirana to the North, East and South comprise an impor-

tant factor in the visual and structural identity of the city. They serve, at the same time as

regenerators of the urban atmosphere, natural reserves and valuable recreational re-

sources. However, due to high develop pressures construction has already begun to en-

croach upon these hills.

Surface water systems comprise another important natural amenity which includes the

Lana and Tirana Rivers as well as other small streams and the lakes at Farka and Pasku-

qan. Besides their recreationa l potential these water bodi es represent a critical interface

through which polluted surface water (including the bulk of urban waste water) may enter

the aquifers that underlie the city.

Urbaplan-0687-19.5.2009 12

1.2.2 Spatial development of Tirana: from the city to the urban region

Figure 2 : Growth of the urban territory of Tirana

These pictures show the development of the city’s spatial footprint and highlight urban sprawl, one of the major challenges of the city’s development

Tirana developed rapidly during the period 1950 to 1990, a period in which the city was

transformed into an industrial centre under the communist regime. Following the dramatic

political changes of 1990, the city’s spatial growth has again accelerated, driven by mas-

sive urban migration. The city’s population has doubled during the latter period and

stands today at around 650,000 inhabitants, according to official figures.

The city of Tirana now extends far beyond the actual administrative boundaries of the

Municipality of Tirana, forming a continuous entity that includes the communes and

municipalities of Farka, Dajti, Paskuqan, Kamza, Kashar, Vaquarr and Tirana.

As noted, the future development of Tirana and Durrës – and that of a large part of the

Albanian economy – will depend upon the organisation, efficiency and productivity of

this emerging metropolitan entity. This presents a formidable challenge to the urban man-

agement capacities of local authorities concerned. It presents them with an urgent impera-

tive to invent new and more effective forms of collaboration and cooperation in the inter-

est of improved management of urban development in the metropolitan region. These

challenges are, for the most part, beyond the scope of the Regulatory Plan.

Urbaplan-0687-19.5.2009 13

Figure 3 : Map of regional urban area and Tirana-Durrës Corridor

The map shows the mechanisms of formation of this urban area, which has arisen from the tow ns and the development of activities of the port of Durrës and Rinas airport. (Extract from Landell Mills, Tirana-Durrës Corridor, Synthesis report 2007)

1.2.3 International context: the new geography South Eastern Europe The development context of the city of Tirana is marked by political and economic up-

heavals on an international scale.

Political mechanisms have redrawn the map of the Balkans, including the emergence of

new countries – most recently Macedonia and Kosovo. This situation places Tirana in the

position of a regional centre in both cultural and geographical terms.

Urbaplan-0687-19.5.2009 14

Figure 4 : Map of Albania and the southern Balkans

The map shows the importance of relations with Albania for the opening up of Macedonia and Kosovo thanks to the new link between Pristina - Durrës and Tirana.

Another consequence of this new map of the Balkans is the emergence of a new interna-

tional transport route between the South of Italy and the Bosphorus. The European Com-

munity has identified this as a key link connecting Southern Europe, via Albania, to the

Black Sea region.

Albania and, more particularly, the Tirana-Durrës urban region occupy a key position

within these geographic developments; a significant long-term impact on the development

of the region may be expected.

Figure 5 : Map of european transportation axe n°8. This map shows the importance of this international connection and the opportunities for Tirana and its region.

Urbaplan-0687-19.5.2009 15

1.3 Prospects and challenges for Tirana’s development

1.3.1 Population growth assumptions

Public programmes to promote and accommodate future development of the city are

necessarily based on projections of future population growth. Population projects, make it

possible to estimate the investments required to accommodate the needs and demands of

the future population in such fields as: housing, utilities, public services, employment,

commercial out lets, recreation, etc., as well as mobility – the ability to get from one place

to another in the city.

However, population projections are not a sufficient basis for planning future develop-

ment. In addition to the satisfaction of needs, questions arise regarding the quality of life

that this population aspires to, and the relative priorities of its various demands. Authori-

ties and politicians need to elaborate an adequate policy framework in order to order

priorities and achieve the most satisfactory solutions with available resources.

Estimations of the future population of Tirana have been based on projections which the

United Nations Department of Economic and Social Affairs has prepared projections of

the population of every country of the world under various assumptions, assumptions

regarding the urbanisation of Albania’s population the relative position of Tirana within

this urbanisation process.

Adoption of high, medium and low growth assumptions produce three projections of

Tirana’s for population by the year 2020 (see Table 1). It is not likely that any of these

projections will prove correct. It is not possible to plan for the future simply by projecting

past trends. The variables that determine national population growth, such as fertility,

mortality and international migration trends, are likely to change, as are the underlying

economic factors, and this will have important impact on the size and composition of the

future population. Migration patterns within Albania and within the Tirana conurbation

also may change with even more dramatic effect on the size of the population and the

labour force, the number of children of school age, the number of elderly living on pen-

sions, as well as household size and composition. In spite of such uncertainties, we must

nevertheless work with projections, based on reasonable assumptions, as a basis for long-

term development planning. At the same time, shorter-term planning and implementation

mechanisms must have sufficient flexibility to deal with unexpected changes and devel-

opments.

Urbaplan-0687-19.5.2009 16

Table 1: Tirana population projections, all variants 2005 - 2020 (thousands)1

The population project based on medium assumptions foresees that Tirana’s population

will increase by about 400,000 persons between 2007 and 2020. The capacity of the city

to accommodate this population in the existing urban area of about depends on the densi-

fication potential of the existing urban tissue. However, it is difficult to be

It is difficult to determine exactly how the future population will be distributed spatially

within the urban area. Where future inhabitants of Tirana will find a place of residence

will depend upon opportunities that will be influenced by the policies and actions of the

Municipality of Tirana and those of other municipalities and communes in the urban

region.

1.3.2 Development needs and potentials The following table outlines the general requirements that future plan will have to ac-

commodate, based on population projections, policy objectives and the assessment of

present needs and deficits2

.

1 Source: Population Division of the Department of Economic and Social Affairs of the United

Nations Secretariat, World Population Prospects: The 2006 Revision and World Urbanization Prospects: The 2005 Revision, http://esa.un.org/unpp, Tuesday, August 07, 2007; 2:35:40 PM.

2 These factors are presented and discussed in the URPT Diagnostic Report, especially Chapters 4-8 and 12.

years

High Variant Medium Variant Low Variant

population annual rate of

growth population

annual rate of

growth population

annual rate of

growth

2007 645 000 - 645 000 - 645 000 -

2010 734 701 4,44% 734 701 4,44% 734 701 4,44%

2015 935 921 4,96% 888 074 3,86% 781 528 1,24%

2020 1 225 932 5,55% 1 047 988 3,37% 795 243 0,35%

Urbaplan-0687-19.5.2009 17

Table 2: Summary of Policy Framework Objectives

3 Assumptions: Rate of working population: 42%, future working population 2020: 400 000 persons, 66% in private sector (existing trend). Hypothesis: 20% of future em-ployments are in the industrial sectors. Estimation of number of job/ha per type of activities taken from international standards:

- 80 jobs/ha for industrial activities and warehouses - 500 jobs/ha for commercials activities (services)

4 Data from the “ terms of reference for the regulatory plan of Tirana City” prepared by the MoT, p202

Policy Framework Objectives Needs and potentials

Management of urban growth

> Control urban sprawl through the densification of the existing neighbourhoods

> Encourage the densification of the 1800 ha of low den-sity area (< 100 inhabitant/ha)

> Potential densification of 5 majors vacant plots that represents a total of 73 ha of vacant land

> Balance urban development and promote a full mix of activities at every scale

> 14 secondary centres identified to be developed through the application of specialised development and regula-tory instruments

> Creation of 5 new secondary centres

> Provide accommodation for all categories of inhabi-tants

>A diversity of residential development models must be

included in the Regulatory Plan

Economic de velopment and employment

> Establish balance between population growth and places of employment within the city boundary

> Creation of 200 000 new jobs

> Assuming 66% are in the private sector and 20% in indus try, keeping a balance between population and em-ployments would required to double the existing areas for both industrial/warehouse and commercials activities

> Creation of 187 ha for commercial activities and 340 ha for industrial zones/Warehouses3

> Existing "brown field" areas must be used for non

residential use

Institutional activities and public facilities

> Improve access to public services

> Affirm the role of Tirana as the national capital

> Introduce a land acquisition policy with adequate re-sources

> Rehabilitation/extension of the 4 majors hospitals and 15 polyclinics

> Equipment/construction of new polyclinics in peripheral area

> Rehabilitation of construction of a minimum of 17 new schools4

> Construction on a surrounding communes of a new campus gathering several universities/student dwelling units/ high technology companies and sports facilities

> Decentralisation / extension of existing administrative services in sub-centres

> All public land controlled by ministries, the armed forces, the city authorities, etc, must be preserved for use by

Urbaplan-0687-19.5.2009 18

Following aspects of this table should be stressed:

a. Economic development and employment

Reference values do not take into account the need for remedial measures to offset

current unemployment. Indicative reference values of the population/job ratio in com-

parable cities are in the order of one job per two inhabitants.

b. Public facilities

The construction of facilities is a responsibility shared between the State and the Mu-

nicipality. However, neither the State nor the Municipality has land available in the

public facilities > A land acquisition fund must be set up to allow local authorities to become active in the real estate market

Policy Framework Objectives Needs and potentials Public open space and green space > Develop networks of green space and public places > >Creation of additional 175 ha of green area (horizon

2020)

> large green spaces in the urban area should be preserved: Lake Park, Farka Park and Paskuqan Park .

> systematic tree planting in the city’s streets is a way of offsetting the lack of green spaces

> green spaces must be stipulated as a requirement in new development projects

Mobility >Traffic management solutions must focus on people, not

on vehicles.

> Establishment of an integrated hierarchy of roads and

transport facilities

> Expand off-road parking facilities

> Improve the attractiveness of pedestrian movement

>Strategies should aim to reduce the dependency on cars, improve road-based public transport services and promote human-powered mobility, it means…. >Build the outer ring road in three steps, according to the current and future traffic:

1rst: west and south parts

2nd: north part

3rd: east part

> Create dedicated bus line (“bus only lanes”) in the city centre and on the main arterials of Tirana

> Construct the new railway stations; acquire new rolling stocks; establish connections with bus stations; new rail lines

> Implement a specific off-street and on-street parking policy

> Create pedestrian and cyclists path in the city centre and along the Lana river;

>Traffic management solutions must focus on people, not

on vehicles.

Urbaplan-0687-19.5.2009 19

city which could be reserved for the construction of public facilities. This factor will

make the task of building public facilities particularly difficult and costly in the case

of Tirana.

c. Forecasts for the development of mobility

Demand for mobility in the city and the region is skyrocketing. The city continues to

grow larger and the number of cars on the road is increasing rapidly. And at the same

time, neither measures to strengthen public transport nor road building are capable of

keeping pace with spiralling demand for mobility. The situation of congestion on

some main roads at the present time illustrates that mobility is now a major challenge.

Figure 6 : Growth in the number of cars on the road.

The figure shows growth forecasts for the period 2000-2020 from the ECAT study.

Growth forecasts for the number of vehicles on the road are alarming. The ECAT

study showed that during the period 2000 to 2021, the population of Tirana will have

doubled, but the number of vehicles will have increased by a factor of 9. Compared to

the situation in 2007 when the number of cars in Tirana was around 70,000, there is

likely to be a fourfold increase between now and 2020, taking the number to around

300,000 vehicles. These forecasts are not fanciful. Even after the anticipated growth,

the rate of car ownership would only be half the rate of most northern European coun-

tries.

d. Infrastructures and public services

A large part of the city is poorly served by public services. The sanitary conditions of

the population and the environment depend upon the satisfactory condition and func-

tioning of these facilities and services, for which local authorities are, in principle, re-

sponsible. Of course, the Regulatory Plan has little direct influence on the organisa-

tion and distribution of infrastructure and public services, except for the critical meas-

ure of reserving the areas required for major installations and facilities required by in-

frastructure networks: waste disposal sites, water t reatment plants, power stations, etc.

With urban expansion, some of these facilities will have to be located outside the city

for functional reasons, and because of land availability. Collaboration between the lo-

cal government units concerned is essential in order to achieve adequate solutions to

the outstanding infrastructure needs.

Urbaplan-0687-19.5.2009 20

e. Green spaces

Uncontrolled development of the city of Tirana over the past two decades has pre-

vented green spaces from being preserved in the city and thwarted a strategy of devel-

oping green spaces in residential districts. Presently, "Lake Park" is practically the

only recreational space available to the city’s inhabitants.

Cooperation between towns and municipalities of the urban region is indispensable to

realisation of a "Central Park" type strategy, which would to preserve the only re-

maining unspoiled green spaces – namely "Lake park", the Farka reservoir to the

south east of the city and the Paskuqan reservoir to the north –to develop them as pub-

lic green spaces which would, at the same time, be key elements in the future organi-

sation of the urbanised area.

f. The issue of housing

At present, housing production is left almost entirely to the private sector real estate

market. In theory, developers would produce housing units for the market which are

affordable to the majority of the population. In fact, the housing market appears to be

largely supp ly-driven. Most residential development aims at the high income buyers;

there is little interest in producing low-cost housing.

In general, local authorities are forced to implement public housing policies to allow

less well-off families to be housed and to offset the effects of the market. This prac-

tice is in its infancy in Tirana. Part of the informal sector in Tirana allows less well-

off families to be housed.

The regularisation of urbanisation practices aimed at allowing the community to better

organise its development should avoid increases in the cost of access to housing. The

town planning scheme must ensure in particular that it offers housing possibilities for

a wide diversity of applicants, since disparities between families’ financial means are

clearly very large. This disparity may in part be offset by data in the plan able to vary

town planning prescriptions.

Urbaplan-0687-19.5.2009 21

1.4 Constraints and opportunities for urban deve lopment manage ment in Tirana

Even a first rate Regulatory Plan – one that reflects well-elaborated urban development

policies and has the support of practical implementation instruments – would not neces-

sarily ensure a significant improvement in the management of Tirana’s urban develop-

ment. The Regulatory plan is only one component of the urban management system and if

the capacity to apply and implement this plan are not sufficient, the impact will be slight.

The assessment has revealed a number of critical weaknesses and shortcomings in Ti-

rana’s urban management system:

a. The management approach is essentially passive; development is driven and shaped

by the relatively short-term interest of private actors.

b. Land use and development control functions are operating without the guidance of

clear development policy objectives.

c. Equipped with out-dated and inappropriate planning and regulatory instrument s,

Municipal authorities have inadequate capacity to manage the extraordinary develop-

ment pressures facing Tirana.

d. Urban policy formulation, management and regulatory functions suffer from insuffi-

cient coordination and collaboration between central and local government authori-

ties.

e. The increasingly urgent metropolitan dimension of urban development in the Greater

Tirana region is not being adequately addressed.

f. Incomplete fiscal decentralisation, and the absence of effective mechanisms for shar-

ing the costs and benefits associated with urban development limit the potential for

pro-active urban development planning and management.

g. The way in which the specific – but very extensive – issue of informal settlements is

being managed undermines potential development by:

> splitting responsibilities for the regularisation process, on the one hand, from proc-

esses of local development planning and up-grading, on the other, and

> failing to establish effective mechanisms for equitable sharing of costs and benefits

of development.

While improvements are possible regarding all of the above factors, and many are indeed

underway, the proposed new Regulatory Plan cannot be based on dramatic change in all

of these factors. The central issues are:

> What improvements in the urban management system can be realistically assumed as a

basis for designing the Regulatory Plan and its related instruments?

> What improvements in the urban management system must be achieved in order for the

new regulatory system to be successful?

Urbaplan-0687-19.5.2009 22

To respond to these questions, it is important to clarify what is meant by "management

capacity". The following factors are important:

> Institutional delineation of responsibilities

The draft new planning law represent considerable improvement regarding the delineation

of responsibility and authority for in the framework of decentralisation. However, it still

leaves some areas of ambiguity and possible conflict. Besides the new law, effective

improvement would require:

> Establishment of a platform for central-local coordination of development issues related

to the national capital,

> Establishment of a "metropolitan forum" to coordinate the development vision and

policy, as well as planning and infrastructure development in the Greater Tirana region,

- Strengthen working relationships by addressing concrete shared issues.

> Policy making

Explicit broadly agreed – but also concrete and measurable – policy objectives are a

precondition for concrete collaboration and productive issue oriented disputes among the

actors concerned. They are an important basis for public participation and for transparent

local governance. Important steps include:

> Coordinated elaboration of a vision for the development of Greater Tirana,

> Completion and consensus building on Tirana’s long term development policy,

> Formulation of a Greater Tirana Masterplan.

> Strategic priorities

The resources and capacities of the Municipality are limited. It is therefore crucial set

priorities so that development efforts may be coordinated and available resources focused

to achieve an op timal impact:

> Formulation and consensus building regarding an overall metropolitan strategy,

> Identification and agreement on a limited number of priority development projects

within the overall strategy,

> Elaboration of adapted instruments (package of measures) capable of mobilising par-

ticipation of a wide range of actors in priority projects.

Urbaplan-0687-19.5.2009 23

> Resource mobilisation

The impact of strategic planning evidently depends upon the mobilisation of adequate

financing. Improvement would call for:

> Establishment of principles (i.e. in the Planning Law) and practical mechanisms for

equitable sharing of the costs and benefits (value increase) associated with urban devel-

opment in general and, in particular, with regard to the regularisation of informal set-

tlements,

> Acceleration of registration process and building an effective prop erty tax regime,

> Formation of public-private partnership for priority development objectives,

> Design of "bankable" projects.

> Planning and regulatory instruments Effective planning and development controls requires a hierarchy of instrument in which

long-term, concrete and measurable policy objectives are combined with flexible, strate-

gic implementation instruments. To achieve this:

> The Regulatory Plan should be understood and designed as a framework which ex-

presses long-term development objectives in terms of a spatial structuring, but desig-

nates the type of procedures and instruments that apply to each zone without yet fixin g

the outcome of these instruments in detail,

> Specific instruments or packages of measures need to be prepared for each zone within

the regulatory plan.

> Organisation and staffing

The organisation, staffing, leadership, professional qualifications and motivation of local

government agencies and departments should be tailored to the approach and tasks at

hand. In particular, the capacities required for "regular" permissions and approval proc-

esses according to administrative procedures call for quite different organisational profile

from that of the department charged with pro-active planning and project mobilisation.

This implies:

> Appropriate organisational design, including operational procedures, performance

targets, job descriptions, etc.

> Dedicated capacity development programme with in-house support,

> General training programme.

The design of the Regulatory Plan is based on the assumption that significant progress is

possible in each of the above areas. However, this needs to be discussed and confirmed as

the basis for the next phase of work (Stage 3).

For the regulatory system, the key aims would be to "streamline" and "focus". In other

words, steering functions such as building permissions processes within the framework of

Urbaplan-0687-19.5.2009 24

the Regulatory Plan need to be simplified and streamlined as far as possible. At the same

time, pro-active planning and development efforts would focus on a limited number of

high priority objectives within the strategic development concept.

The main challenge is to create urban management instruments and capacities that enable

authorities to efficiently "steer" urban development within the framework of the Regula-

tory Plan while effectively "leading" development in selected priority areas

1.5 Alternative Development Strategy

1.5.1 Three scenarios of spatial development

What principles and concepts of spatial ordering will guide the development of Tirana

over the coming 10-15 years – the likely period of validity of the Regulatory Plan – and

beyond?

The long-term development of an urban region is normally described in a policy-level

planning document such as a "strategic development plan", "structural plan" or "master

plan". As has been noted, Tirana lacks such a document. The "Greater Tirana Strategic

Plan" of 2002 contains several elements of the required policy document, but is has not

been integrated into a policymaking process by the concerned parties.

Providing a perspective on the spatial organisation of an urban region implies a multitude

of questions which, according to the political disposition, role, preferences and cultural

disposition of the respondent, may produce quite different responses. Urbanism is not a

science but an exercise in public policy making; the outcome is a function of political

processes. For example:

> The issue of mobility might be resolved through investment in public transport.

However, it could also be addressed by limiting the spatial dispersion of residential

areas thus facilitating local mobility based pedestrian traffic and bicycles. On the

other hand, the decision may be taken to commit massive investments to the road

network, accepting the risk of encouraging an increasing number of activities to

move outside of the city where automobile access is easier.

> The promoting activities that generate employment may be addressed in collabora-

tion with neighbouring communes – through the development of industrial and

commercial zones, for example – or it may be addressed in relation previous indus-

trial sites in the city – which may be developed for mixed economic and residential

use instead of purely residential use, as is presently the case.

Urbaplan-0687-19.5.2009 25

> Finally, with regard to housing needs, the Municipality may take a passive position,

allowing new residents settle on the periphery of the city or, by contrast, the Mu-

nicipality may consider the acquisition of new residents to be a policy objective, and

thus promote housing programmes, with the cooperation of developers, within the

Municipal boundaries.

These examples could be extended. The possible choices are diverse, and their differing

impact on development processes in the metropolitan region would, over time, produce

very different results. It is thus instructive to project the potential consequences of differ-

ent strategic choices on the development structure of the urban region, in the form of

development scenario, and to assess the resulting outcomes with regard to their desirabil-

ity and feasibility.

Following an approach that has become classic in Europe and elsewhere, three general

scenarios may be envisioned for managing the development of a growing urban agglom-

eration such as Tirana.

A. Concentrated development: the "Manhattan" scenario

The first scenario builds on the traditional mono-centric concept of Tirana as expressed in

the present Regulatory Plan. It addresses the shortage of available land through high-rise

development and densification in central Tirana.

Figure 7 : Concentrated development scenario

If the problems of polarisation between centre and periphery and issues of access to public

services can be overcome, and if authorities prove capable of the planning coordination

required to promote concentrated high-rise development in the urban centre, this scenario

has certain attractiveness. However, the constraints appear to be very difficult to surmount

and the scenario may be characterised as, "ambitious, problematic and unachievable". A

more detailed assessment is made following the description of all three scenarios.

Urbaplan-0687-19.5.2009 26

B. Dis persed development: the "Los Angeles" scenario The second scenario would accept and build upon existing tendencies of dispersed settle-

ment and, in particular, linear developments along the Tirana-Durrës axis. It would facili-

tate – while as far as possible formalising – ind ividua l residential development throughout

the urban periphery and continue to tolerate scattered high-rise development in the hills

surrounding Tirana.

Figure 8 : Dispersed development scenario

The existing dispersed development tendencies are reinforced by the absence of coordina-

tion at the metropolitan scale. At present, this form of development appears to be simple,

relatively cheap and effective for local authorities because it depends entirely on the

initiative of private actors. In the medium term, however, the costs of dispersed develop-

ment would have to be confronted, either through massive up-grading investments of in

the urban periphery or lingering shortage of service access. In sum, this scenario may be

characterised as "likely, but unacceptable and not inevitable",

C. Poly-centric development: the "Amsterdam" scenario

The third scenario corresponds to the model adopted by most European cities to reconcile

needs for the development of new services and activities in the city while, at the same

time, preserving the quality of historic urban centres where major urban activities are

maintained.

Figure 9 : Poli-centric development scenario

Urbaplan-0687-19.5.2009 27

The poly-centric scenario has evident advantages with regard to reduction of social isola-

tion of peripheral areas, improving access to public services and reducing the demand for

mobility. In is a more efficient structure with lower environmental impact. In spite of the

apparent difficulties regarding inter-governmental collaboration, the scenario should be

feasible because it is adapted to the effective management potential of the Municipality in

terms of resources and capacities. It would focus available resources on a limited number

of selected sites which have the greatest capacity to catalyse further privately driven

development. This scenario may be characterised as "desirable, feasible and sustainable”.

1.5.2 Comparison of the scenario

These scenarios provide a useful basis for reflection on the capacity of local authorities to

manage urban development processes. In effect, if one or the other scenario is selected,

what actions would be required and what capacities are available for their implementa-

tion? In view of the challenges facing Tirana, and the aspirations of elected officials to

manage them effectively, it is crucial to establish a realistic balance between the manage-

ment t asks that the authorities set themselves and the available means.

For the evaluation of the scenario, following criteria are most relevant:

> Economic and institutional (institutional) feasibility,

> Costs of infrastructure and public service investments,

> Available means of development controls,

> Environmental impacts regarding transportation, energy and waste,

> Social impact (housing need, social integration, access to public services, quality of

life,

> Political feasibility: impact on governance processes and support of decentralisation

objectives.

Figure 9 provides an overview of the evaluation. It indicates the poly-centric scenario to

be the most reasonable choice – as opposed to the dispersed scenario with its unacceptable

qualities, and concentrated scenario with its unachievable costs.

Urbaplan-0687-19.5.2009 28

Figure 10 : Evaluation of the scenario

This exercise of comparing the scenario is not really a decision-making process; it is on ly

intended to illustrate the nature of the efforts, management capacities and resources that

would be required to realise one scenario or another, and to provide a general develop-

ment perspective that is capable of mobilising long-term public support as well as inter-

governmental collaboration. The poly-centric "Amsterdam" scenario appears to be feasi-

ble. At the same time, it corresponds to the form of urban structuring and modes of life

common to modern European cities. The poly-centric scenario will thus be taken as the

frame or reference for the work on the Tirana’s urban development strategy and the regu-

latory plan.

Urbaplan-0687-19.5.2009 29

2. TIRANA SPATIAL DEVELOPMENT CONCEPT

2.1 Objectives of spatial development concept

The following selection of development objectives is based on the diagnosis of Tirana’s

spatial development conditions and trends, and a spatial expression of the policy objec-

tives outlined in Tirana’s Development Policy document (2007).

> Support the development of Greater Tirana and its emerging growth

along the Tirana-Durrës urban corridor

The Tirana-Durrës urban corridor is an expanding metropolitan region, the result of a

strong growth trend that is likely to continue.

The question which now arises for Municipal authorities concerns the strategy that should

be followed in order to draw potential advantages from this dynamic development without

jeopardising the capital city functions of the traditional city of Tirana.

> Affirm the role of Tirana as the national capital, while generating new

opportunities that reinforce existing central functions and attract new

activi ties to the city

With the "French M asterplan" for central Tirana, the Municipality mounted a significant

initiative aimed at creating space for grand structures capable of receiving major activities

that are vital to the capitol city functions of Tirana. Nevertheless, in the short term, the

question arises regarding the available space to meet the expanding needs of major public

facilities, and the appropriate location of this space. The most important facilities include:

universities, hospitals, major schools, sport and recreational facilities and, of course,

administration and central government institutions. Should these facilities be accommo-

dated in the centre city area? If so, where can the needed space be found? On the other

hand, should the Municipality engage the cooperation of neighbouring local government

units in order to define solutions at the metropolitan scale which afford better expansion

potentials for these major facilities?

The same questions arise with regard to commercial, industrial and craft activities which

have development strongly in peripheral areas in recent years. Should this tendency be

encouraged or should space be provided within the Municipal area to promote a better

mix of residence and employment?

Urbaplan-0687-19.5.2009 30

The one thing that is certain is that there is not sufficient space within the Municipal

boundaries to accommodate all the alternatives. It is thus apparent that supra-local col-

laboration is an essential condition for the successful implementation of any policy deci-

sion regarding the structuring of activities in the metropolitan region.

> Reinforce the city’s capacity to absorb new residents and assure them job

opportunities

This corresponds to the aim of achieving a balanced mix of activities, which is a central

feature of the Municipality’s policy framework. It has major implications regarding the

spatial organisation and distribution of activities in the city.

First, the activity programmes of private developers would need to respond to this exi-

gency, moving beyond their present programme which is oriented entirely towards resi-

dential development. Would developers be capable of reorientation towards a diverse

spectrum of activities? Would the Municipality be able to orient the city’s economic

development strategy to promote an expanded market for office space, services and indus-

trial space? Finally, can the few available undeveloped sites and op en spaces in the city –

for the most part, abandoned industrial sites from the previous era – be employed in a way

that promotes the objective of a mix of activities and land-uses? In any case, the Regula-

tory Plan needs to incorporate adequate provisions and instruments for developing the

valuable sites so that they contribute effectively to a broader development strategy. > Integrate peri-urban informal settlements into the city and reduce the

spatial and social exclusion of their inhabitants.

The up-grading of peri-urban informal settlements is a major challenge for the Tirana. It is

urgently required for social reasons to improve the access to services of the inhabitants of

these areas. Beyond upgrading, the informal settlements need to be spatially, functionally

and socially integrated into the urban system. These settlements have been constructed,

for the most part by urban migrants; many of them are poor and are living under precari-

ous conditions with inadequate service access. They have become citizens of Tirana and

their assimilation into the city requires not only the improvement of services but also the

spatial integration of the informal settlements through public transport access and the

extension of road and pedestrian networks – measures which facilitate links of proximity

and exchange between new neighbourhoods and the established neighbourhoods of the

core city.

Urbaplan-0687-19.5.2009 31

2.2 Features of the spatial development concept

Figure 11 : Sketch of the spatial development concept for T irana: a polycentric city.

The schema illustrates the concept of the poly-centric city applied to the actual situation, development trends and constraints of the Tirana urban region

> Upgrade and preserve key features of Tirana’s natural setting

The main idea is to preserve and strengthen the existing natural features as structuring

elements of Tirana’s urban landscape.

The mountains that surround the city have in recent years become the target for residential

development. The proximity of hills to the city centre, to the south in particular, makes

them desirable and their elevated position provides attractive views over the city. How-

ever the impact of such construction is to gradually destroy the city’s natural profile

gradually to disappear. The intention is to limit construction on high ground in order to

preserve this natural profile and the olive tree orchards which are characteristic of the

image of Tirana.

The Tirana and Lana Rivers running through the city are natural corridors characteristic of

the geography in which the city of Tirana resides. In all cities of the world corridors of

this type are prized, because they are landmarks in the city and because they help to pre-

serve nature in the city. This reality is true also of Tirana, where the population reacted

favourably to the destruction of irregular constructions along the banks of the Lana River

in the city centre to make way for a green space which now enhances the heart of the

town.

Urbaplan-0687-19.5.2009 32

The intention is to extend and strengthen the Lana River corridor upstream and down-

stream of the city centre, preserving the natural wooded character of the river, and reserv-

ing land adjacent to the Tirana River to allow the future development of a large uninter-

rupted east-west green belt in the northern part of the city.

> Strengthen and extend the main North-S outh axis as historical spine of

the city

The North-South Axis is as an historical urban spine. It symbolises the dimension of

Tirana as a capital city, and offers a grand perspective which is reinforced by the French

"master plan".

Strengthening of the axis is a way to insure the integration of the northern part of the city.

Improved links between northern and southern portions of the city contributes to upgrad-

ing the image to the northern part and encouraging investors to start with new projects.

The development, in a first step, of the southern portion of railway station area – which is

the largest undeveloped area in the city – is one of the main issues for Tirana in the com-

ing years. It will significantly strengthen the northern pole of the main urban axis. The

“master plan’s” solution for the railway area will have determine whether this axis should

continue towards the North, or whether it should form a northern pole through intensive

development of activities in the railway station area.

The establishment of a major urban park at the northern end of the axis is an important

component of the concept. At a larger scale, the axis links the two parks one already

existing in the South, the second – Paskuqan park – to be established in the North.

The North-South axis has been the main structuring element of Tirana’s development for

nearly a century and it merits reinforcement through further urban highlights which en-

hance Tirana capital's dimension.

Urbaplan-0687-19.5.2009 33

> Structure and balance urban development around new sub-centres along

the outer Ring Road

As national capital, Tirana needs to find new spaces to accommodate the activities ac-

companying its growth and development. The centre of Tirana still has some capacity to

do this. However it is insufficient to cover all future requirements.

The City outskirts are endowed with former industrial sites inherited from communist

period. These “brown field” sites are still partially occupied by industrial buildings, but

industrial activities have been closed down at most of the sites. A few of the existing

buildings have been converted to new uses, for the most part informally. In most cases,

these sites are private properties. Based on the preceding regulatory plan, these industrial

sites were originally located along the projected outer Ring Road, which would insure

their accessibility.

Today, these brown field sites represent an extremely important, if spatially limited, po-

tential for new development. It is proposed to transform selected sites into sub-centres

with concentrated development of new activities and places of work in fields such as

commerce, services and leisure. These new sub-centres would at the same time play and

important role in structuring the existing informal areas and integrating them to the city.

Their situation along the Ring Road presents a valuable opportunity to re-balance the

urban structure with through future developments.

Implementation of this concept requires construction of remaining segments of the pro-

jected Ring Road. Improved accessibility through the Ring Road is a precondition for

realising the potential of the brown field sites. Access to new sub-centres cannot be pro-

vided through the existing road network due to its limited capacity and poor traffic man-

agement.

The importance of the Ring Road is particularly apparent in the northern part of the city,

where there are many areas along Tirana River that would have considerable potential for

development, but presently lack access or secured access to escape traffic congestion in

the centre.

Construction of the Ring Road is thus a major issue in relation to the accommodation of

new activities in the city, as well as its evident importance with regard to the inadequacy

of road network capacity. This strategic component, based on the ring road, would foster

development along the lines of the "Amsterdam" scenario sketched of the preceding

chapter, namely a poly-centric city.

Urbaplan-0687-19.5.2009 34

> Strengthen the Tirana-Durrës urban corridor in response to new

economical needs and potential

Growth of the metropolitan axis along the Tirana-Durrës urban corridor is predestined by

the dynamism of the port city as well as the limited potential for urban expansion to the

East because of the mountainous topography. It is further reinforced by the airport link

and will again be strengthened by the new European Highway 8 linking Southern Europe

to the Black Sea region through the Balkans. The availability of undeveloped land along

the corridor allows an immediate response to the needs and potentials for new economic

and industrial activities.

This dynamics cannot be modified; it should rather be accepted, channelled in an efficient

manner and integrated into Tirana’s spatial development concept.

> Improve public services and trans port access in informal areas

Access to public services and facilities is inadequate for most of Tirana’s inhabitants,

particularly those living in informal areas of the urban periphery. Informal settlements

account for about 70% of urban residential areas.

One of the central objectives of urban planning is to improve access to services and living

conditions through the development of infrastructure and service facilities throughout the

urban area, particularly in the informal settlements where service is poorest. While it is

difficult to express this objective in terms of spatial solutions, it will be a major item for

future investments. Planning is not only for new inhabitants; its first task is to improve

conditions for the existing population.

Urbaplan-0687-19.5.2009 35

2.3 Integrated deve lopment of the Tirana-Durrës urban corridor

Figure 12 : Concept of Tirana-Durrës Corridor development

The sketch shows the development of the Tirana-Durrës Corridor, enhanced by the back bone of the railway and the express-road which structure the corridor; it illustrates the importance of developing area of the airport within the corridor system.

The international opening of Albania at the economic and political levels is contributing

to the emergence of a metropolitan region stretching from Tirana to Durrës. Its major

components – the port of Durrës; Tirana International Airport; the belt of new economic

activities; road and railroad networks linking the two cities – are its major structuring

elements. The challenge now is to determine how the spatial development of Tirana

should be integrated into this emerging regional entity, and to draw appropriate lessons

for channelling and promoting its development.

An extensive study of the Tirana-Durrës region has recently been completed (“Sustainable

and Integrated development of the Tirana-Durrës Region”, European CARDS Pro-

gramme, 2008), which intends to assisting authorities to achieve “sustainable and inte-

grated” development of the urban region. The study aimed at short-term action plans

while establishing a framework for long-term sustainable solutions. It is too early to know

what concrete steps will be take on the basis of this study.

Urbaplan-0687-19.5.2009 36

For Tirana, it is important to consider the phenomenon of metropolitan as inevitable and

lasting, determined by natural constraints as well as economic and geo-political factors.

Tirana is implicated in a mechanism to which the Municipality is contributing and from

which it may draw important advantages.

In this context, Tirana needs to accentuate its role as political, administrative, economic,

financial and cultural centre in order to maintain its attractiveness. At the same time,

Tirana needs to actively promote the formation appropriate institutional structure(s) at the

regional level, to create the partnerships that it needs to imagine, construct, organise and

manage this new territorial entity.

The spatial concept for organising the Urban Corridor – similar to that proposed for the

Municipality – would focus on the creation of secondary centres located at existing and

emerging nodes: the airport, the harbour of Durrës, cross roads and exchanges of the

transportation systems. M obility in the urban corridor would be based on the railway and

express road networks. Structuring the Municipal area, the metropolitan region and the

Tirana-Durrës urban corridor would thus be based on the same principles and forces

which apply at each scale.

The regional perspective is also expressed in a coherent approach towards the major

features of natural environment, including the courses of the Lana and Tirana Rivers, the

major regional parks to the South and North of Tirana, and the ring of hills to the North-

East, East and South of the city.

Realisation of this concept places the Municipality before the imperatives of:

> Collaborating intensively with neighbouring local governments in the interest of

developing the Greater Tirana.

> Managing the implementation of key urban projects which are destined to

strengthen Tirana’s role as the national capital.

> Supporting the idea of an express railway between the two pole cities of the me-

tropolis, maintaining and doubling the existing railway line through the urban area

and preserving the location of the station of Tirana as close as possible to the city

centre.

Urbaplan-0687-19.5.2009 37

2.4 Implementation of the concept

The proposed concept of spatial development of Tirana addresses several major chal-

lenges facing the Municipality at the city and metropolitan levels.

> Regulation and coordination of urban development

The Outer Ring Road axis is proposed as strategic vector for developing new areas for the

city. Construction of the western section of the outer Ring Road – a logical step that re-

duces transit traffic in central Tirana – has already reinforced existing development poten-

tials in the western portion of the city, i.e. in the former airport area and – unfortunately in

an uncontrolled manner – in Kashar.

> The first step, construction of the southern segment of the Ring Road, is already de-

cided and programmed; it will assure the connection from the West to Farka while fos-

tering and structuring development of this area. Care must be taken to ensure that this

development does not encroach upon the natural amenities of the Lake Park.

> The second step, associated with construction of the northern segment of the Rin g

Road, comprises the opportunity to develop the potential of the northern part of the city

alon g the Tirana River, enhancing its image and integration into the urban structure,

while significantly expanding the supply of land that is suitable for development.

> The third step would promote up -grading of the eastern portion of the city, partially re-

balancing urban development and promoting a better mix of residential and other activi-

ties throughout the urban area.

> Balance of public and private interests

The opportunities represented by secondary centres include projects with a strong poten-

tial for public-private collaboration and re-establishing the balance of private and collec-

tive interests. The role of the authorities would be to identify and assess priority areas,

structures and activity programmes from the perspective of the collective public interest,

specifying these potential urban operations in the form of development briefs – or “local

area master plans” – and specialise development instruments. The role of the private

developer and other private sector participants would be to complete detailed project

design and manage implementation processes.

> Collaboration between the Municipality and other local governments of

the metropolitan region

Second ary centres are located at the intersections of major axes which structure the met-

ropolitan region; these sites generate opportunities for collaboration between the Munici-

pality and p eripheral communes, structuring "fields of action" in which it becomes possi-

Urbaplan-0687-19.5.2009 38

ble to identify and agree upon win-win solutions that advance the attractiveness and pro-

ductivity of the entire metropolitan region.

> Concentration of limited Municipal investment and management

capacities

The multiplicity of possible projects in the identified secondary centres would make it

possible to initiate several area development projects at the same time, introducing a

certain competition between them, while maintaining the option of deciding, base on the

quality of interest and offers and the effectiveness of project implementation, where the

Municipality should concentrate its limited resources and energies.

Urbaplan-0687-19.5.2009 39

Urbaplan-0687-19.5.2009 40

3. FROM THE CONCEPT TO AN URBAN DEVELOPMENT

STRATEGY

3.1 Initial development scheme

The urban development schemas presented in Figur e 14 translate the main intentions of

the spatial concept that was outlined in the previous section into general maps of the city.

While it is still only indicative, the maps:

> trace the main road infrastructure to be developed at the municipal scale,

> delimit the areas which need to be integrated into the perimeter of future secondary

centres,

> define the conditions of accessibility, or accessibility to be created for the new secon-

dary centres,

> indicate the informal areas where the Municipality’s scope of action is presently limited

by the Central Government regularisation authority. The superposition of this scheme with the typology of urban tissue provides a first test of

the feasibility of the concept and confirms the potential of a poly-centric development

scenario. The analysis of land use indicates that there are numerous sites in the urban

periphery that are presently in transition. These include: previous industrial sites; sites

occupied by warehousing that were established outside the urban perimeter but have in

the meantime been absorbed by urban growth; sites that are partially unoccupied or only

occupied opportunistically by temporary uses.

Careful analysis of these areas indicates that certain are poorly served by the existing road

network, which evidently discourages investment. However, there are also many sites that

are situated on the administrative boundaries of communes – a situation which may com-

plicate development decisions. These two factors partially explain the low level of devel-

opment of sites that are otherwise quite close to the urban centre.

�

Urbaplan-0687-19.5.2009 41

One finds this form of transitory occupation along an entire band of the urban periphery.

It is here that the transport axes which comprise the planned ring road are to be built.

Figure 13 : Strategic development challenges

3.2 Identification of development strategy and priorities

Analysis of urban development dynamics has revealed the following points:

> The west of the city still offers good potential for infilling and densification, particular-

ly in the area of the old airport. Accessibility to these potential development areas is

possible from the main network, but requires the creation of a secondary network struc-

ture.

> The south of the city offers little space for new development. However the south sec-

tion of the ring road will be developed in the first stage; it is understood that financing

for this section has been secured. The priority of this section is justified by the need to

divert through traffic to Elbasan around the city to the south so that it does not pass

through the city centre.

> The north of the city offers excellent development potential on the site of the station

and adjacent areas, along the Tirana River and on industrial wasteland. However, ac-

cessibility to these sites from the intermediary ring is insufficient. Development of the

north of the city is clearly impossible until new outlets onto the main network are

created. This can only be achieved by completing the north section of the outer Rin g

Road.

> The east of the city also contains undeveloped space. Here too, however, the lack of

access means that major development cannot be envisaged without a strengthening of

the road network by construction of the eastern Ring Road segment.

Completion of the outer Ring Road is an indispensable condition for exploiting potential

development sites, and thereby controlling urban sprawl. Development of the Ring Road

and the opening up of new areas to urban development are therefore closely bound up

with Tirana’s regional context. The URPT study is based on the assumption that the Ring

Road will be realised in several stages over the medium term.

For the Regulatory Plan, however, the determination of priorities or steps is not important.

The plan must cover the whole city, regardless of development priorities. The main dis-

tinction is that the Municipality would focus its pro-active development role and the

application of specialised development instruments in the west.

For the Regulatory Plan, this distinction in terms of priorities has no major relevance. The

plan will evidently cover the whole city, regardless of development priorities. The main

Urbaplan-0687-19.5.2009 42

distinction is that the Municipality would focus its pro-active development role and its

application of specialised development instruments in the west.

3.3 Policy implications for transportation and mobility

3.3.1 Constraints and assumptions

Basic policy principles, concepts and strategies regarding Tirana’s future transport system

comprise an essential basis for formulation of the Regulatory Plan. To date, however, the

Municipality of Tirana has not yet finalised or approved such a transport development

strategy and/or mobility plan. This task would greatly exceed the URPT assignment. In

fact, a planning study of Tirana’s public transport system is underway, parallel to the

URPT project. The results of this planning work are not yet available. An other study

should be engaged about traffic management.

In these circumstances, the URPT project proposes to base its development proposals on

strategic transport concepts that prevail in most western European cities. These are or i-

ented towards a multimodal approach to movement which is aims at limiting the growth

of motorised vehicular traffic, reducing the negative impact of traffic on the environment

and improving the environmental quality of central urban areas.

The argument for the concept has been developed in the Diagnosis report and Annex for

transportation. (Reference: )

3.3.2 Strategic aims

The proposed approach aims to:

> Reinforce public transport by bus while holding the existing rail right-of-way from

central Tirana to Durrës in reserve.

> Promote “soft” mobility, which is particularly appropriate for a city of Tirana’s size.

> Develop strategically placed public parking facilities and establish regulations that limit

the number of parking places to be provided by apartment or place of work in order to

control the growth of automobile traffic in the centre of the city.

> Manage traffic through the definition of a hierarchical road network with clearly de-

fined functions for each road link.

Even in the absence of an explicit policy decision, this general transport strategy appears

to be inevitable for Tirana, and this for two main reasons: 1) because the alternative of

considerably expanding the road network is simply not feasible due to the shortage of

space in the city, and second; and 2) because the international institutions with which

Albania is collaborating for the funding of essential investments will inevitably insist on

Urbaplan-0687-19.5.2009 43

broadly accepted standards of sustainable development – which, in turn, imply the kind of

transport policy outlined above.

Figure 14 : The figure illustrate schematically the multimodal transportation concept for T irana

transportation management

Urbaplan-0687-19.5.2009 44

PART II: REGULATORY SYSTEM

Urbaplan-0687-19.05.09 45

4. APPROACH OF THE REGULATORY SYSTEM FOR

TIRANA

4.1 The Regulatory Plan as element in a regulatory system

The Regulatory Plan is a statutory instrument which enables public authorities to regulate

the rights and duties associated wih the ownership of immoveable property, specify public

intentions regarding urban development and coordinate collective actions and those of

private land owners, in order to protect and, if necessary, impose the collective interest.

A closer look at this definition brings to light several principles which clarify the specific

challenges involved in the formulation of a regulatory plan:

> It is a legal instrument which defines rules regarding land use and construction which

are binding on public and private actors alike

> It is defined by public authorities who are legally responsible for organising and man-

aging the territory under their jurisdiction.

> It defines the rights and obligations associated with the ownership of land and its use.

> It translates a concept or vision of the development of the territory, expressing how the

authorities foresee the future of the city, its spatial organisation, system of transport,

future expansion, major facilities, protected areas, etc. and explains the major changes

or improvements which the authorities intend to achieve in the field of urban develop-

ment. (This concept, for Tirana, is discussed in Part 1 of this Report).

> It is an instrument for coordinating collective activities – i.e. interventions and invest-

ments by the municipality and the state for the development of infrastructure networks,

facilities, transportation, parks, etc. – and the activities of individual land owners – i.e.

private individuals, enterprises, and the public sector (in the role of a land owner).

> It introduces systems of decision making and responsibilities with regard to manage-

ment of the territory of the city which regulate the relationships between private sector

actors and authorities, establishing thereby a link to the judicial system to settle disputes

and guarantee that the legal provisions are respected.

> It presumes the existence of a “construction police” with the authority and means to

ensure that the established rules are respected – an enforcement capacity without which

the legal provisions of the plan could not be envisioned.

Urbaplan-0687-19.05.09 46

In light of this description, it is appropriate to speak of a “regulatory system” and not just

a regulatory plan. When designing the regulatory plan itself, it is crucial to consider the

implications and consequences of the plan for the other components of the regulatory

system: the role of the urban development department in implementing the plan, required

resources, decision making mechanisms, etc.

4.2 Le plan régulateur pour imposer l'intérêt collectif

The authorities impose a regulatory plan in the collective interest, that is: to organise the

city, beautify it, make it more functional and efficient, and ensure a harmonious and sus-

tainable development at the economic, social and environmental levels.

The new Regulatory Plan for Tirana provides a common frame of reference for acting on

and in the city. Through it, the Municipality will exercise its responsibility to define a

limited set of choices that are binding on public and private sector actors alike. Based on

the plan, urban development should express choices and priorities that are anchored in a

shared vision and common interests – an "idea of the city".

At the same time, local authorities are responsible for coordinating and supporting urban

development through the provision of services needed by the city’s inhabitants and enter-

prises, including road and transport systems, infrastructure networks and public facilities.

This responsibility calls for coherence between urban development planning and the

planning and programming of investments in infrastructure systems. The Regulatory Plan

also serves to manage this coherence. It therefore implies, necessarily, a strategic dimen-

sion.

These two aspects – guiding development and programming investment strategy – explain

why the urban territory cannot be treated in a uniform manner. The various areas of the

city do not have the same characteristics. Different areas have different potentials for

development and the Regulatory Plan needs to take these specific differences into ac-

count, from the perspective of the common public interest.

The choices defined by Municipal authorities will normally support the interests of certain

groups, but they will also, in the name of general interest, conflict with the interests of

other individuals or stakeholder groups. The common interest is not simply the sum of

private interests. This is why urban planning documents are always the subject of heated

and sometimes difficult debates. This is why the process for preparing an urban planning

document must carefully explain the reasoning behind each choice while at the same time,

being fully aware that this will not necessarily put an end to the debate or reconcile differ-

ing interests.

Urbaplan-0687-19.05.09 47

4.3 Purpose of the Regulatory Plan in Tirana

The city of Tirana has undergone spectacular growth in the context of the events which

have transformed Albania since the 1990’s. This growth has taken place in a largely spon-

taneous manner. Public authorities were literally overwhelmed by the force and speed of

urbanisation processes.

The new Regulatory System is thus being introduced after the major process of urban

transformation has already taken place. Of course, Tirana will continue to develop by

expansion at its periphery and by new construction in presently developed areas. Tirana

remains a lively and dynamic city. However, the city suffers from organisational and

functional deficiencies which render life difficult for its inhabitants and constrain the

activities of its enterprises – reducing the potentials of the city in all domains. The central

question in this regard is: what can the Regulatory Plan do to remedy the deficiencies of

past development?

The Regulatory Plan would fulfil its purpose if it would, on the one hand, manage the

heritage of past development, correcting deficiencies, improving problematic develop-

ments and preserving the natural and built patrimony and, on the other hand, manage the

future development and expansion of the city.

4.4 Potentials and limits of the Regulatory Plan

The context for introducing a new regulatory system is difficult, but it is the reality of

Tirana. This should be borne in mind when defining regulatory instruments and mecha-

nisms for applying the plan – to ensure that the proposal is not too ambitious. The instru-

ments do not have to be sophisticated or ideal; they have to work and define priorities in

the given context of the city.

Urbaplan-0687-19.05.09 48

The introduction of a new Regulatory Plan in Tirana implies passing from a regime of

spontaneous urbanisation, which has prevailed for over fifteen years to a system in which

a crucial stakeholder, the Municipal Authority, assumes a new role, imposing regulations

in the name of the common public interest. To do this, the Municipality will need to in-

volve a number of stakeholders in the urban development process, each of whom has his

own set of interests and resources. National authorities, private developers, landowners,

inhabitants of informal districts, retailers, car drivers, pedestrians, families, youth, etc. –

these stakeholders all differ with regard to their activities, visions and aspirations’ con-

cerning what is best for Tirana.

Tirana’s new Regulatory Plan is subject to the vivid attention of many who hope for

improved conditions and more effective urban management. It will provide some urgently

needed solutions and instruments. However, it will not solve all of the urban management

problems that presently plague the city. In particular, the Regulatory Plan will not help to

solve issues of land registration, disputed land ownership and the regularisation of infor-

mal settlements. On the contrary, it will make it even more urgent that solutions to these

issues be found. As an instrument for controlling land use – a central function of the

Regulatory Plan – the Plan will not be able to process building permission applications in

situations where property ownership is disputed. The new RP will thus bring to the sur-

face land ownership issues which are presently being sidestepped due to the absence of a

clear regulatory system.

The following chapter discusses the main features and instruments of the Regulatory

System, which is designed and introduced as a tool for implementing the selected devel-

opment strategy.

Urbaplan-0687-19.05.09 49

5. METHODOLOGY FOR THE ELABORATION OF THE

REGULATORY SYSTEM

5.1 The challenge of regulation

The methodology for formulation of the Regulatory Plan has been determined by three

main challenges to which the Plan needs to provide appropriate responses:

> Recognise and protect the city’s natural and built heritage The city of Tirana is shaped by the natural context which imposes specific constraints on

its development and which, at the same time, represents a formative component of its

identity. And, as in the case of every city, Tirana is the product of its history; the build

legacy of history comprise a heritage to be protected and managed.

> Intervene in the existing urban tissue to correct deficiencies and permanently improve functional conditions

The city of Tirana suffers certain major deficiencies which need to be corrected in order

to improve the quality of life of its citizens and the productivity of its enterprises. In fact,

every city must regularly adjust its functional conditions to adapt to changing exigencies

of the population.

> Propose a “vision” of the city which orients its future development Discussion of the Regulatory Plan and Zoning Code tends obscure the fact that, behind

the plan, there is a vision of the city’s future development – normally elabor ated in the

form of a long-term master plan – and a set of policy instruments for realising this vision.

The concept presented in the Part I represents a general spatial solution to Tirana’s main

policy objectives, needs and potentials. It is a sketch map defining the main structure of

Tirana’s long-term development which will serve the function of the master plan, which is

still lacking for Tirana.

5.2 Regulatory Plan formulation: an iterative process

The Regulatory Plan is the result of a process. Plan formulation begins with what appears

to be a best possible response to crucial development challenges. In the following steps,

aspects of the plan need to be adjusted to emerging priorities, capacities and available

resources. The elaboration of the Regulatory Plan is thus an iterative process of elabora-

tion and adjustment which aims to achieve a balance between various diverse and often

contradictory challenges and needs.

Urbaplan-0687-19.05.09 50

The methodology that has been used to bridge the gap between diagnosis, concept devel-

opment and the required Regulatory Plan involves three steps, which are illustrated below.

At each of these steps, the central question concerns the modes of intervention in territo-

rial development that will be effective in promoting set objectives.

Figure 15 : Components of the regulatory system

The schema illustrates the main components of the regulatory system illustrating the methodological pathway for advancing from general concept of spatial development to specific features of the Regu-latory Plan.

1. Elaboration of Land Use 2020,

> “Land Use 2020” establishes essential features and spatial patterns of Tirana’s de-

velopment in the medium-term unt il 2020.

> It responds to the main constraints and natural features identified during the diagno-

sis

> It defines the location of the main networks and public facilities, both existing and

anticipated.

> The result is an initial elaboration of the spatial development concept proposed for

Tirana.

2. Elaboration of a General Zoning Plan (GZP)

> Based on the overall development structure established in “Land Use 2020”, the

GZP defines development objectives, while assigning general categories of land use

and settlement density throughout the city.

> The GZP focuses on the plan’s “intentions”, i.e. the kinds of intervention required to

achieve development objectives – improved conditions, structure and network func-

tioning – in each zone of the city.

Urbaplan-0687-19.05.09 51

> The GZP is an intermediary document that provides a framework for the final De-

tailed Zoning Plan and Zoning Code.

3. Formulation of the detailed Regulatory Plan (RP)

> As indicated in Figure 14, the RP comprises two parts:

a) Detailed Zoning Plan, which defines categories and sub-categories of urban de-

velopment with an associated Zoning Code, which specifies the development

conditions, parameters and requirements for each category and sub-category.

b) Planning instruments, which specify procedures responsibilities and for devel-

oping specific areas of the city, for which a permissions process assuring con-

formity to set development rules would not be sufficient. In these areas, it is

necessary to first elaborate more detailed development guidelines in collabor a-

tion with the land owners, developers, the local community and/or other authori-

ties.

The products of these three steps – “Land Use 2020”, GZP and RP – are described in

detail in the following chapters.

Urbaplan-0687-19.05.09 52

6. LAND USE 2020

6.1 Purpose of the land use 2020

The goal of “Land Use 2020” is to demonstrate how the Municipality envisions Tirana’s

development in the larger context, to establish a common reference for all actors whose

decisions will have an impact on the city’s development. In the great venture of urban

development, municipal authorities must take some critical decisions – but only some. In

fact, many important decisions will also be made other actors, including: central govern-

ment authorities; private enterprises; real estate developers; and the authorities of

neighbouring local governments in the expanding metropolitan region. In the absence of a

master plan for the Metropolitan Region, which is still pending, “Land Use 2020” com-

prises an important reference document for the Regulatory Plan.

Specific objectives of Land Use 2020 are to:

> Identify the key elements which orient, structure and constrain the development of

Tirana, including:

- features of the natural morphology: rivers, lakes, hills, forests

- built structure, major public facilities, transport network, etc.

> Translate intentions and projects drawn from the spatial development concept into a

specific development structure, including:

- major networks

- centres and sub-centres

- general categories of land use.

> Situate Tirana’s development in the context of the metropolitan region, by identifying

transportation nodes and crossroads (“hubs”), centres and sub-centres, major public fa-

cilities, etc., with particular attention to:

- major regional improvements and developments that will have an impact on Tirana’s

development

- developments at the Municipal level that will have a significant impact on the struc-

turing of the metropolitan region.

The purpose of “Land Use 2020” is to provide a global development framework for for-

mulation of the Regulatory Plan. It must be stressed, however, that “Land Use 2020” does

not remove the need for a fully elaborated master plan regional for the urban region.

Urbaplan-0687-19.05.09 53

6.2 Land Use 2020 features

6.2.1 Natural boundary

Natural boundaries are both "visual" and "physical" limits of Tirana City given by natural

morphological features.

Figure 16 : Main features forming the natural boundaries of Tirana

Visual boundaries of the city

The hills of Dajti, Farka and Kashar define the visual boundaries of Tirana city. In the

East, Dajti Mountain forms a pronounced front of slopes encompassing the forests of

Dajti National Protected Area are located. Kashar and Farka hills in the West and South

present softer fronts where terraced orchards embellish the slopes.

The visual identity of the city – as well as environmental concerns – required that these

boundaries be kept free of settlements.

Urbaplan-0687-19.05.09 54

Physical boundaries

The sloping hills surrounding Tirana present a natural constraint to human settlement.

Apart from the risk of unstable ground, high costs would be associated with infrastructure

provision and construction in these areas.

Regulatory response

In order to protect natural boundaries, constrain development on the ecologically fragile

hills and promote the policy principle of “densification before expansion”, it is important

to limit construction and set maximum construction heights in the areas concerned.

Height limitations are given according to various criteria; hills height, slopes types, exist-

ing settlements, roads and paths, expansion proposals, etc. For example:

> Along Kashar Hill, average height of 100m

> Along Farka Hill, average height of 150m - 200m

> Along Dajti Hill, average height of 200m

> Along Dajti Hill at Paskuqan, average height of 150m.

Height limits partly define Tirana City “Green Belt” which is also supported by “Pano-

ramic pass-ways” above settled areas, based on existing paths but also new ones to be

created.

6.2.2 Natural features Tirana’s setting is endowed with several natural features which structure the urban land-

scape. They deserve to be protected and given a prominent place in the development

concept.

Tirana River Green Incentive Corridor

Tirana River Green Corridor extends from Tufine New University to Kamza University.

The intension is to protect Tirana River, implement general improvements and encourage

a new trend of economic development on former industrial areas, in parallel to new resi-

dential settlements.

Lana river corridor 1

The Lana Green Corridor extends from Traktori Kombinat in the East to Kashar in the

West.

The intention here is to protect Lana River, implement general improvements in relation

to city centre development activities and to enhance the role of the corridor within a green

network that connects new residential settlements.

Urbaplan-0687-19.05.09 55

Hills and slopes

Hills and slopes are to be protected, along with the green belt of orchards around the city.

Unstable ground on the slopes will, among other factors, limit development of the hills.

Seismic risk

Seismic risk areas are described in the Diagnostic Report. Albanian regul ations define

maximum risk in construction areas. Seismic mapping of Tirana indicate that extensive

areas reaching over 7.0 (“very strong”) to 8.0 (“damaging”) on the 12 degree MDV-64

scale. Appropriate risk mitigation measures are required.

National Dajti Park

The National Dajti Protected Area is recognised by IUPN. The aim is to support protec-

tion of the Park area while improving public access through additional connections (cable,

bus lines, etc.)

Regional Farka Park

The boundary is defined by the topography of the hills and existing roads. The idea here is

to implement a regional park oriented towards sustainable agriculture, which would be

self-financing.

City Paskuqan Park

The boundary of the Paskuqan Park is defined by the Lake Protection Buffer and sur-

rounding roads. The idea would be to link the park area to the North-South axis with

public transportation and a soft mobility spine.

Tirana City Park

The city park is defined by the new Outer Ring Road along its southern section and El-

basan Road in the East. Copa-Tirana Belvedere and Nene Teresa Front form the northern

definition. The idea would be to conduct general improvements and establish clear

boundaries for protection of the park area.

6.2.3 Trans portation network and hubs Transportation network include major air, rail and road connections at international, re-

gional and local scales. Hubs comprise their main crossing points.

Road network

> Highway from Montenegro to Greece

> Major roads to connect Tirana to Shkodra, Elbasan, Durres, etc

> Ring roads to by-pass Tirana (Outer, Inner and Central Ring).

Urbaplan-0687-19.05.09 56

Rai lway

> Railway line from Durrës to Tirana City Station

> Railway line from Berxhulle HUB to Kombinat HUB

> Railway line from Berxhulle HUB to Rinas Airport

> Public transport line from ""Nene Teresa Square University" to "Paskuqan City Park"

> Tramway line from "Kamza University" to "Tufine University".

Major transportation hubs

A hub may be defined as an inter-modal node which, on one hand, is a strategic point for

transport organisation and, on the other hand, comprises favourable conditions for high

density urban development with a high level of centrality. Land Use 2020 locates several

major transportation hubs which structure the Tirana-Durrës urban region.

Figure 17 : Location of main transportation Hubs and netwoks

Urbaplan-0687-19.05.09 57

> Major hubs

A. Tirana International Airport Hub, encompassing important air, rail and road net-

works.

B. Berxhulle Crossroads Hub: encompassing rail and road networks

C. Kombinat Crossroad Hub: encompassing rail and road networks

D. Tirana Railway Station Hub: a major inner-city rail and road crossroads.

(Note: Rail networks are understood to include railroad, tram and regional rapid transit - or “open-air metro” - links. Road networks refer to major highways and main roads as well as public and private bus services, min-bus services and private automobile traffic.)

> Minor hubs

Minor hubs comprise all important metropolitan and municipal level rail and road cross-

roads and terminal. They would include public transport facilities of Municipal and na-

tional level services.

6.2.4 Centres and main facilities “Centrality” is an urban quality characterised by relatively high density settlement, mix of

uses, very good accessibility and a particular attractiveness that regularly draws visitors

from outside of the centre.

Centres and sub-centres – i.e. areas with high centrality – represent the focal point of

future public sector interventions in Tirana. As mentioned in Chapter 2, "Tirana spatial

development concept", they form the pole of development processes that will be driven

for the most part by private sector initiatives. The main centres which structure Land Use

2020 plan are described below.

Urbaplan-0687-19.05.09 58

Figure 18 : Areas of high centrality and main facilit ies

City centre area

The City centre encompasses various areas and sites within the Inner Ring Road: the

"French M aster Plan" area along central South-North spine; the "Block" area south of the

Lana River; the "Historical Ottoman Market" area east of Skanderbeg Square and the

"Kavajes Road" area of mixed commercial activities.

The city skyline is shaped by the spine of the North-South axis where high-rise building

and towers are concentrated.

Mixed use sub-centres

The category of “mixed use sub-centres” designates local area developments that are

intended to structure specific high priority sites.

The general approach would be to introduce economic attractors that would catalyse local

improvements through further new investments (residential versus new economic devel-

opment). The sub-centres are intended to generate a concentration of new employment

opportunities and to support urban improvements to services and facilities. Important sub-

centres include:

Urbaplan-0687-19.05.09 59

a. Kombinat: former industrial area to be renewed.

b. Traktor Factory: former industrial area to be renewed.

c. Railway Station: a major “special development area” on the main North-South axis.

d. Kino Studio: existing Kino Studio and former industrial areas to be renewed.

e. Tirana Beer Factory: existing, still active factories and defunct industrial sites to be

renewed.

f. Copa-Tirana and the Botanical Garden: special recreation-oriented development

area in the southern portion of the city.

Centre city north-south axis: institutional urban corridor

The corridor begins at Tirana City Park in the south and ends at Paskuqan City Park in the

north.

Idea is to strengthen the existing institutional corridor and to enhance the specific quality

of each section: Deshmoret e Kombit Bvd; Zogu 1st Bvd; New Station Bvd; Promenade to

Paskuqan City Park.

Linear economic development: the Tirana-Durrës Urban Corridor

The Corridor, starting at Tirana "Kthesa e Kamzes Roundabout" and ending in Durrës,

contains a variety of economic activities, for the most part industrial, warehousing and

commercial.

The idea is to structure and strengthen the eastern pole at the Tirana Municipal boundary,

focus development at specific nodes along the corridor (see Figure 13) and place the zone

under a special form of supra-local regulation. Elaboration of the concept can draw upon

several studies, including the Regional Development Framework (RDF) produced by the

Study on Sustainable and Integrated Development of the Tirana-Durrës Region and the

Strategic Plan of 2002.

Major public facilities

Existing major public facilities have an important role in structuring the city.

The objective is to promote development and attractiveness of the sites of major facilities,

encouraging them not to relocate outside of the city.

6.2.5 Residential land use Residential development

Residential category of land use includes every form of residential settlement in Tirana.

At this scale, the differences between the residential categories are not relevant.

Urbaplan-0687-19.05.09 60

Villages core

The village core category refers to sites that display the original rural settlement structure

which existed before the area was absorbed by urban expansion.

6.2.6 Administrative and expansion boundaries

Figure 19 : Administrative boundaries

Administrative boundaries

Administrative boundaries refer to Tirana and neighbouring local government units:

Kashar, Farka, Dajti, Kamza.

Yellow Line

Yellow Line refers to Tirana City boundaries of the urban areas under the jurisdiction of

Tirana Municipality.

Line of Con cern

The “Line of Concern” designates an area which lies largely outside of the Municipal

boundary but is nonetheless within the Municipality’s sphere of interest, because inappro-

priate development in this area would have negative consequences – environmental,

functional or aesthetic – for the Municipality. The watershed of the municipal water

Urbaplan-0687-19.05.09 61

supply system is within the line of concern, for example, as are the hill sides which form

the visual setting of the city.

Figure 20 : Land Use 2020

Urbaplan-0687-19.05.09 62

7. GENERAL ZONING PLAN

7.1 Purpose and methodology

The General Zoning Plan (GZP) is a transitional document between the general spatial

development concept and the Regulatory Plan. Its purpose is to provide an initial indica-

tion of the kinds of interventions needed to promote realisation of the Spatial Develop-

ment Concept.

The GZP defines general zoning categories. Beginning with the Land Use 2020, the GZP

defines general zoning categories through a process of adjustment and accommodation

between three types of consideration:

> Desired features and qualities to be achieved in each area

> Needed improvements in the urban structure

> Available modes of intervention through urban planning instruments and Municipal

activities.

To facilitate the work, the city has been divided into sectors. Each sector was analysed

separately, employing the same method and procedure.

The GZP formulation process also serves to make a first estimation of the potential for

absorbing additional inhabitants, based on the definition of floor area ratio in connection

with designation of the anticipated type of development in each sector.

7.1.1 Local development guidelines

The city is an heritage out of which the city plan is composed. It is also a territory, an

urban project. In each sector of the city an analysis of conditions and development poten-

tials has been conducted. The output of this analysis is a list of “guidelines” that will play

a role significant role in shaping local development, i.e.:

> Major projects planned in the area and their expected impact on local development

> Potential and proposed location for new public facilities

> Accessibility and relevant principles for structuring the secondary road network

> Potential for residential development

> Possibility of creating and/or preservation of green spaces

> Undeveloped land suitable for development.

These factors have an indicative character. In fact, the actual condition of each sector and

area, future development processes, the lack of Municipally owned land that would enable

authorities play an active role in the local development processes – all these conditions

Urbaplan-0687-19.05.09 63

make it unrealistic for authorities to attempt to impose the main lines of desired future

development. The situation calls, rather, for a process of gradual adjustment.

The local development guidelines can be found in annex to this report. They propose an

organisational schema for each sector and indications regarding key factors in each sector.

7.1.2 Modes of intervention in the urban territory

The question of modes of intervention arises at each stage of the process of elaborating

the Regulatory Plan. It is related to the fact that the Plan applies not only to the manage-

ment of urban growth, but also to the improvements and adjustments that are needed in

the existing urban tissue. The latter aspect is increasingly important in light of the policy

objective of absorbing growth by densifying existing urbanised areas before expanding

into new areas.

In the existing built-up areas of Tirana, the main question in each sector concerns: the

type of transformation that the regulatory system would be able to promote in each:

> Should existing structures be preserved?

> Would demolition and reconstruction be more advantageous?

> Should the rehabilitation of certain types of housing and residential areas be promoted?

> Should new construction be prevented?

These questions do not arise in new extension areas of the city where the challenge relates

rather to the desired form of development and processes.

Several different intentions may underlie interventions in existing urban tissue; the fol-

lowing listing indicates the nature and objectives of each:

> Consolidation

In certain well organised areas, the existing pattern of development needs only to be

consolidated. The intention is to improve these areas where needed through infrastructure

up-grading (roads, utilities, public facilities, etc) and strengthening of existing characteris-

tics. Two types of areas might require consolidation:

Urbaplan-0687-19.05.09 64

Informal settlements

The intention is to consolidate the land use patterns of relatively well organised settle-

ments and to prevent the introduction of new construction that differs greatly from the

existing structures in each area.

Pilot projects are envisioned aimed at improving living conditions in selected informal

settlements.

Former state sector housing from the communist period

Extensive areas of state sector housing blocks form a ring around the historic centre of

Tirana and extend along some of the radial axis. These structures represent an interesting

and homogeneous urban typology, built to human scale with well articulated patterns that

respect the distance between structures and create adequate open space in relation to the

built volume. They are the result of a coherent urban concept.

The intention is to consolidate these settlements, preventing infilling of the available open

spaces by new residential structures of a quite different typology that is difficult to inte-

grate into the existing structure – a process that is well advanced in many areas.

The design and implementation of pilot projects is foreseen to rehabilitate selected areas

of state sector housing.

> Conservation

The conservation of valuable structures and historical urban tissue is an important inten-

tion in selected areas of the city centre. These areas would be assessed through special

studies and conservation or restoration projects would be implemented through the appli-

cation of specialised instruments.

The main intention is to highlight the aesthetic and historic value of certain areas which

may have a positive impact on future developments in the area.

> Renewal

Certain defunct indus trial areas, some poorly organised informal residential areas, etc.

need to be renewed and opened to new uses. The intention would be to promote private

development of the area through a mix of private incentives and public sector interven-

tions. The process would have to be individually designed in each case in relationship to

the available potentials, development trends and private sector interests.

> Readjustment

Readjustment applies mainly to central areas of the city which have been transformed in

recent years by an incoherent process of infilling of the traditional urban structure to

Urbaplan-0687-19.05.09 65

produce a patchwork of diverse and disorderly forms: old and new, small scale and hi gh-

rise, etc. and which has filled most available open space and even blocked some streets.

The intention in these areas is to assist the local actors to manage the situation – introduc-

ing improvements over time where possible – with a minimum of public sector interven-

tion. In general, new construction is to be prevented.

> Creation

New residential areas may be created on presently undeveloped lands and former agricul-

tural areas. The intention is to promote new mixed residential developments in presently

undeveloped sites through a coherent planning process. To facilitate this kind of opera-

tion, the regulatory system will introduce new planning instruments and “rules of the

game” for managing large-scale projects in partnership with private sector actors.

> Freeze / protection

Freeze and protection zones would forbid development for a set period or permanently.

The intention would be to limit settlement on certain “fragile” sites in order to protect

natural or cultural values: parks and green areas, etc. Existing structures would be as-

sessed and re-located if necessary and new construction prohibited.

7.2 Definition of zoning categories

Definition of the main zoning categories, the central output of the GZP, has been estab-

lished in close coordination with the process of designing the Zoning Plan.

Due to the fact that the elaboration of homogeneous zones in the diverse urban tissue must

be done at a detailed scale before bring reintroduced into the GZP as a given, work must

continue, in the mean time, on the basis of a provisional GZP in which the zoning catego-

ries are considered to be hypotheses.

The detailed analysis has been achieved through meticulous field examinations through-

out the city. In fact, the urban tissue of Tirana is so varied and intricate that the designa-

tion of interventions, and the subsequent definition of categories of zones, can only be

achieved on the basis of detailed field investigations. This has been accomplished as a

necessary condition for producing a Regulatory Plan that is realistic and applicable.

The definition of the definitive list of zoning categories can only be completed at the end

of the analytical work at the level of the detailed zoning plan. A process of adjustment and

adaptation has been necessary in order to produce a reduced listing of coherent and perti-

nent zoning categories.

Urbaplan-0687-19.05.09 66

The zoning categories of the finalised GZP are listed in Table 3.

Table 3: Tabel of categories

GENERAL ZONING CATEGORIES ACTIVITY AREA A1

ECONOMICAL AND INDUSTRIAL ACTIVI-TIES

A2 PUBLIC FACILITIES AND SERVICES ACTI-VITIES

A3 MIXED URBAN ACTIVITIES

URBAN RESIDENTIAL UR1 LOW RISE RESIDENTIAL UR2 MID RISE RESIDENTIAL

UR3 HIGH RISE RESIDENTIAL

TO BE URBANIZED D TO BE URBANIZED

PROTECTED P11 RECREATIONAL AREA P12 PROTECTED NATURAL FEATURES

Urbaplan-0687-19.05.09 67

8. THE REGULATORY PLAN

8.1 Purpose of the Regulatory Plan and Code

> The purpose of the Regulatory Plan is to support the realisation of the urban development policy objectives and the concept of spatial development for Tirana

These two aspects constitute the basis for the regulation and the sense to be realised

through its application.

> The Regulatory Plan also facilitates improvement of the existing urban structure

The analysis of the city – presented in the Diagnostic Report – has shown that existing

city embodies certain major deficiencies and inadequacies which constrain the functional

dynamics and quality of the city: insufficient mobility systems, poor access to infrastruc-

ture services for a significant portion of the population, lack of coherence in the organisa-

tion of certain parts of the city which hinder to efficient provision of services and facili-

ties. The Regulatory Plan should make it possible to effectively address these challenges

and resolve priority problems and shortcomings.

The introduction of rules of development density into the zoning code may, for example,

increase value of certain sites and thus pressure their owners to develop them through

new projects. This mechanism is pertinent for restructuring existing areas and for the

creation of urban roads in informal settlements.

> The Regulatory Plan is supported by planning instruments and mechanisms for public action

Considering the recent evolution of the city of Tirana, it is evident that many important

improvements and transformations are urgently required to increase the capacity of the

road network, restructure dilapidated zones, preserve the quality of historic areas, etc.

These actions can hardly be accomplished on the basis of the Regulatory Plan and build-

ing permit alone by a local authority whose only power is that of granting of permissions.

For this reason, in order to facilitate necessary improvements, the regulatory system will

include :

> action programmes and investments by public authorities.

> incentives and other measures to motivate the preparation and implementation of de-

velopment projects by private sector actors; (these measures may be part of the regula-

tory system, but they might also come from other domains such as the fiscal system).

> Instruments and pro-active planning procedures to initiate and prepare urban develop-

ment projects.

Urbaplan-0687-19.05.09 68

> The new Regulatory plan presumes pro-active planning and urban management

A pro-active urban planning and management approach is absolutely necessary in order to

mobilise the actors concerned, initiate and coordinate an integrated urban development

project or operation. The is the “leading function” which local authorities need to exercise

in order to effectively implement the Regulator Plan which, in itself, is only a “dead”

piece of paper. Only the Municipal team in charged of urban policy, planning and devel-

opment – the political and the technical dimensions – is able to undertake and pilot

needed change processes. The Regulatory System provides them with the necessary legal

and technical tools.

Thus, the procedures and practices implied in the new Regulatory Plan will also require a

renewal of the resources and capacities within the Municipal administration. (See Part III,

“Capacity Development”.)

8.2 Interventions to be organised

> Densification before extension

This central principle of Tirana’s Urban Development Policy Document calls for an opti-

mal use un-developed space in the city, but also for the demolition of certain existing built

up areas to facilitate reconstruction at a higher level of density.

This intention seems evident. However, difficulties that would have to be overcome to

realise this kind of operation present a daunting prospect. Demolition and reconstruction

implies that coordination and agreement would have to be achieved between a large num-

ber of stakeholders, including multiple contracts between the different land owners, de-

velopers and authorities regarding the project design and the distribution of costs and

benefits. Coordination of the implementation process is also a complex task. For these

reasons, although densification is a valid principle, it will only be realised gradually, over

the medium- to long-term.

At the same time, the city will need to gradually extend its territory in order to absorb the

anticipated growth of population and activities. This extension will also take place pro-

gressively over time. It will proceed so some extent through large operation of developers

who manage to obtain control of a territory and are in a position to mobilise adequate

financing for the expensive, complex and long-term development processes. The success

of this new form of urban development in achieving policy objectives will depend upon

new forms of project planning and management, and new capacities on the part of the

Municipality to guide and participate actively in such operations. These mechanisms and

capacities must be established through the Regulatory System.

Urbaplan-0687-19.05.09 69

> Structure and restructure coherent development of urban blocks

This type of operation applies mainly to the informal settlements which are the only areas

where it may be economically viable to conduct restructuring and densification opera-

tions. Restructuring interventions will call for a rigorous block by block approach in the

city. This rigor of organisation presumes a better use of space to enable higher density,

improved accessibility and a more efficient distribution of infrastructure services. It is a

direct consequence of the will to densify.

The Regulatory System must have the capacity to foster restructuring in the interest of

densification, improved living quality and higher efficiency.

> Create new roads within existing urban tissue

The development of higher density blocks in the city presumes adequate service by the

urban road network to assure the accessibility of these areas and respond to the resulting

increase in the demand for mobility. In fact, the city is already threatened by a fast grow-

ing stock of private automobiles and the density and capacity of the road network is insuf-

ficient. Therefore, as a precondition for densification, it will be necessary to develop more

urban roads. This implies that the Regulatory Plan must enable reconstruction along the

right-of-way of roads that need to be built or enlarged.

> Rehabilitation of existing neighbourhoods

The urban tissue comprises extensive areas of state sector housing, the product of the

modernistic urban development approach of the 1960s, ‘70s and ‘80s. As discussed above

(Section 7.1.2), these housing areas possess certain qualities of human scale and well-

dimensioned open space. They have, in the meantime been privatised and transferred to

the inhabitants as condominiums. Most of the buildings are in poor physical condition; the

issue of maintenance of the façade, roof and open space has yet to be resolved.

Nevertheless, this prevalent form of housing stock constitutes an important model. It is

proposed to promote the rehabilitation of these housing blocks, first, because of their

quality and improvement potential and second, because demolition and reconstruction of

the blocks implies very complex and long-term operations which would only gradually

yield the needed increase in settlement density.

The Regulatory System must therefore have the capacity to: limit the construction of non-

conforming new buildings in the area of state sector housing; protect the remaining open

space, and; enable the provision of new community facilities.

Urbaplan-0687-19.05.09 70

> Preservation of the historic patrimony of the city

The historic heritage of the city is modest. It comprises a collection of buildings and

monuments and residential neighbourhoods from every epoch. It is proposed to preserve

the historic “villa” quarter in the centre of the city.

Realisation of this objective requires, among other things, that the Regulatory Plan pro-

vide mechanism whereby the owners of protected buildings and sites may be compensated

for the loss of their right to construct larger structures on their land in consequence due to

preservation regulations.

> Preservation of the rich mix of urban activities and uses in the city

The rapid and spontaneous development of Tirana has produced a very dynamic and v ital

mix of activities and uses in central areas of the city, which is often surprising but which

constitutes in important aspect of the character and quality of the city today. The Regula-

tory Plan should recognise the positive aspects of this mix and encourage their survival.

> Facilitate the emergence of new poles of mixed uses at the sites of abandoned industrial facilities

Several defunct industrial sites represent valuable land resources which are to be devel-

oped as mixed use concentrations of activity. They are expected to play an important role

in the future structuring of the city.

The Regulatory System should contain provisions and instruments which facilitate large-

scale projects for the development of these sites through appropriate forms of private

initiative and/or public-private partnership.

> Extend the urbanised area where conditions are favourable

The development of new urbanised territories is inevitable. The Regulatory System should

provide mechanisms and conditions which facilitate new land development and its inte-

gration into the existing urban structure.

8.3 Boundaries

The Regulatory Plan refers to a URPT study area of about 60 km2. In addition to the

“Yellow Line” areas of about 43km2, it includes portions of neighbouring municipalities

and communes as defined by specifications provided by the Municipality. This overlap

will obviously oblige close collaboration and supra-local mechanisms of management

between the local government authorities concerned.

Urbaplan-0687-19.05.09 71

The “Line of Concern”, which extends beyond the study area (see Section 6.2.6) will also

require specific forms of supra-local collaboration and management.

Map of the boundaries

Urbaplan-0687-19.05.09 72

8.4 Zoning categories

GZP categories RP categories

A Activities and services

A1 Major public facilities A1 Public facilities and services

A2 Economical activities A2 Economic activities

A3 Mixed central urban area A3 Mixed use (residential and activities)

U Urban residential

U1 Low rise residential development U11 Detached semi-detached residential

individual units

U12 Compact low rise units

U13 Historic conservation

U2 Medium rise residential develop-

ment

U21 Consolidated former state sector

housing

U22 Consolidate mixed form units

U23 Evolving mixed form by block devel-

opment

U24 Evolving mixed form by restructuring

U3 High rise residential development U31 Consolidate high rise

U32 Evolving high rise

D To be urbanized

D11 New low rise development

D12 Large scale development (me-

dium/high density)

P Protected

P11 Recreation and op en space

P12 Environmental conservation

P13 Road easement protection

8.5 Structure of the Zoning Code

General provisions

General provisions apply to every zoning category.

Urbaplan-0687-19.05.09 73

1. Authorized types of occupancy or use

All authorized types of occupancy or use shall be conform with relevant laws and regula-

tions with regard to: the organization and distribution of public services, hygiene and

public health, protection from nuisances, preservation of natural resources and features,

natural risks, technological risks.

2. Condition for Access

Adequate access to the parcel is a necessary condition for eligibility for a building permit.

Access roads must insure access for trucks during the construction and for fire brigades,

which means a passage clearance that is adequate for heavy trucks.

3. Networks and infrastructures

All construction shall be connected to infrastructure networks for drinking water, waste

water and drainage, as well as electricity and household solid waste service. The connec-

tions shall conform to current legal and technical provisions.

4. Measurement definition

The general conditions define how distances and height are to be measured.

8. Parking definition

Each development shall provide parking for the inhabitants. The availability of on- street

parking is not a responsibility of the public hand.

The number of parking places to be provided for each building is closely linked to mobil-

ity and traffic management. The requirement must be cleared on the basis of the current

transportation study (presently underway).

The proposal foresees one parking space for each housing unit. In principle, a lower rate

of parking areas would be required in downtown areas which are better served by public

transportation facilities, and to increase the rate in outlying areas. These provisions sup-

pose that each dwelling unit is linked with the ownership of a parking area.

Activities and services, commercial areas, etc. shall provide adequate parking space for

the expected number of visitors, as defined by common standards, which may, neverthe-

less, be adapted to the particular location in the urban area.

9. Seismic standards

Due to seismic risks in the urban area, construction within the city area shall respect risk

level 8 on the 12 level MDV-64 scale of seismic risk.

Urbaplan-0687-19.05.09 74

Part I: Specific provisions to categories

1. Plot size

Minimum plots size must be respected in the zones where planning process are required.

(The intention behind this is to oblige developers to undertake larger urban project

through coordinated processes.)

2. Floor Area Ratio

The Floor Area Ratio is the total building floor area divided by the plot area. The FAR

defines the maximum built surface allowed on each plot.

3. Lot coverage

Lot coverage is the percentage of total lot area covered by structures.

Local practice defines what is considered to be a structure. It is proposed to consider that

small temporary buildings, eaves, parking areas, playing ground, not considered “struc-

tures” in the lot coverage calculation.

4. Open space, green areas and plantation

The definition of the use of the uncovered area is to introduce green areas and free areas

into urban developments.

5. Building height

The height of the building is defined related to the zoning categories low-, mid- and high-

rise development areas. The idea is to link low- /mid-/hi gh-rise development definition

with a general rule of 3/6/9 floor buildings as reference.

It is proposed to adjust the number of floors within a margin of 2 floors in the mid- rise

development zone and 3 floors in the high-rise development zone, as a potential bonus to

provide incentive for contributions to the public interest, i.e. through the construction of

public facilities, ceding land for green areas, transfer of building rights, etc.

The height maximum is defined on the basis of a maximum floor height, a building height

and a maximum number of floors.

6. Setback

Setback is specified in order to improve the functionality and aesthetics of adjoining

public spaces. The setback is defined as the distance from the limit of the road section to

the building line. It applies to particularly in the city centre and along main commercial

streets.

The setback can be adjusted where specific studies for streets are undertaken.

Urbaplan-0687-19.05.09 75

7. Attic level

Attic construction should be facilitated to improve skyline of the buildings. The definition

of the attic is within the specified maximum height.

The local area development documents and master plan can adjust these definitions within

the general frame of the FAR and the maximum building height.

Part II: Special conditions

1. Building layout

> Façade line: percent occupied by the façade line on the block (by type of road)

> Minimal distance between buildings within a block (primary and secondary views)

> Minimal distance between buildings on the same plot

> Maximum length of the building on the street

2. Commercial activities

The height of the first two floors along secondary roads and main streets can be increased

to 4.0m for commercial activities.

3. Parking

Due to transportation management the parking ratio can be adapted to specific conditions

of the area.

4. Environmental parameters

Due to environmental conditions specific provisions might be introduced.

Part III: Standards

The usual standards of the building code shall be respected.

Part IV: Glossary and schemes

The definition of specific references and measurement practice will be clarified in this

paragraph.

8.6 Applicability of the Regulatory Plan

The Regulatory Plan applies within the administrative boundaries of Tirana.

However, the city must be involved in all decisions related to the development and occu-

pancy within the Line of Concern. This line covers the area which development and occu-

Urbaplan-0687-19.05.09 76

pancy might have an impact on the organization, the development and/or the image of

Tirana.

Urbaplan-0687-19.05.09 77

9. ZONING CODE

Urbaplan-0687-19.05.09 78

Urbaplan-0687-19.05.09 79

GZP Zoning category Major public facilities

RP Zoning category Major public facilities

Legend A1

Reference urban form

> Area for main public facilities

Pursued Objectives

> Masterplan and LaDD(AR) process and planning for mixed activities and residential

within the area

> Issues for green areas, and open spaces

> Connection to public transportation

Provisions principles

> Minimum constraints

> Green areas and op en space criteria

> Standarts regulation

A1

Descriptions

Urbaplan-0687-19.05.09 80

GZP Zoning category Major public facilities

RP Zoning category Major public facilities

Legend A1

General provisions

Land uses Major public facilities as priority and mixed activity

and residential

accessibility Connection to public transportation

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 1ha for LaDD(AR)

FAR 2.3

Lot coverage 60%

Open space green areas and

plantation

40%, minimum 20 % of green area in one plot

without parking area for cars

Height 9k

Setback to street footprint 6m

Attic level Within height with 1.5 m backstop

Special conditions

Building layout >Minimum distance between public pedestrian pass

ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 2 rst floor with max 4 m height for commercial use

along streets

Environmental constraints -

A1

Provisions

Urbaplan-0687-19.05.09 81

Standarts Usual building standarts

Urbaplan-0687-19.05.09 82

GZP Zoning category Economic activities

RP Zoning category Economic activities

Legend A2

Reference urban form

> Area for economical, industrial, commercial activities, services, and residential

Pursued Objectives

> Master planning process on area defined on RP and definition of LaDD(AR) areas

> Issues for green areas, and open spaces

> Connection to public transportation

Provisions principles

> Plot size minimum for LaDD (AR) 1ha

> Building height up to 9 k for residential

> Minimum constraints

> Criteria for green areas and open space

> Standarts regulation

A2

Descriptions

Urbaplan-0687-19.05.09 83

GZP Zoning category Economic activities

RP Zoning category Economic activities

Legend A2

General provisions

Land uses Economic activities as priority and mixed

activity

accessibility Connection to public transportation

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 1ha for LaDD(AR)

FAR 2.3

Lot coverage 60%

Open space green areas and

plantation

40%, minimum 20 % of green area in one plot

without parking area for cars

Height 9k

Setback to street foot print 6m

Attic level Within height with 1.5 m backstop

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities -

Environmental constraints -

Standarts Usual building standarts

A2

Provisions

Urbaplan-0687-19.05.09 84

GZP Zoning category Mixed use (residential and activities)

RP Zoning category Mixed use (residential and activities)

Legend A3

Reference urban form

> Area for mixed urban activities and residential building

Pursued Objectives

> Master planning process and definition of LaDD(AR) areas

> Issues for green areas, and open spaces

> Connection to public transportation

Provisions principles

> Plot size minimum 1 ha for LaDD(AR)

> Minimum constraints

> Building height up to 9 k for residential

> Criteria for green areas and op en space

> Standarts regulation

A3

Descriptions

Urbaplan-0687-19.05.09 85

GZP Zoning category Mixed Uses

RP Zoning category Mixed Usess

Legend A3

General provisions

Land uses mixed activity

accessibility Connection to public transportation

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 1ha for LaDD(AR)

FAR 2.3

Lot coverage 60%

Open space green areas and p lantation 40%, minimum 20 % of green area in one plot

without parking area for cars

Height 9k

Setback to street foot print 6m

Attic level Within height with 1.5 m backstop

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities -

Environmental constraints -

Standarts Usual building standarts

A3

Provisions

Urbaplan-0687-19.05.09 86

Urbaplan-0687-19.05.09 87

ID AREA USES FAR LOT_COVERA PUBLIC_SPA MAX_HEIGHT COMMENTMOT SPECIALCON

MS. 1 7.07 30% Economic / 60% Residential / 10% Public facilities To be checked To be checked 30% of the total area

as a green area/public y changes from large scale to mixed zones

MS. 2 4.86 20% Economic / 50% Residentiel / 30% Community 1,8 hors park 40% 20 % 7K y changes from large

scale to mixed zones

MS. 3 5.04 30% Economic / 70% Residentiel maintain the existing footprint and green 7K

MS. 4 1.15 DEPOT

MS. 5 2.75 LIGHT INDUSTRY-INUSE y change from economic activities to mixed zone

MS. 6 0.00 80% Economic Activities / 20% Residentiel 7K ONLY 20%

MS. 7 37.50 50% Economic / 30% Residentiel / 20% Community Facility INDUSTRY 7K MAINTAIN AND

REHABILITATED AS

MS. 8 8.76 50% Economic / 30% Residentiel / 20% Community Facility A TROUVER ???? 7K

MS. 9 2.88 50% Economic / 30% Residentiel / 20% Community Facility

MS. 10 20.52 INDUSTRIAL / MANUFACTURING

MS. 11 7.64 50% Economic / 30% Residentiel / 20% Community Facility 1,4 7K

MS. 12 5.67 50% Economic / 30% Residentiel / 20% Community Facility MIXED USES attention zone NORD:

rehabilitation/ SUD:

MS. 13 1.74 Residentiel max 30% / Community Facility 70%

2, 4 WITHTOUT HIGH SCHOOL 7K SP: construction of a

new High school

MS. 14 40.30 Maintain exsting mixity- conversion of 30% of economic act to residential MIXED USES 7K

MS. 15 16.77 Orentation diff zone Nord et Sud

MS. 16 15.16 Redessiner par bloc + SP for mixed uses + K

Urbaplan-0687-19.05.09 88

MS. 17 2.68 LIGHT INDUSTRY-INUSE

MS. 18 3.19 50% Economic / 30% Residentiel / 20% Community Facility conserver foot print existant 7K

MS. 19 1.64 DEPOT/COMMERCIAL

MS. 20 5.86 50% Economic / 30% Residentiel / 20% Community Facility A TROUVER 7K

MS. 21 13.22

MS. 22 3.54 Economic 20% / Residentiel 60% / 20% Public facitlities ???? ???? EP: 30% EP y changes from large

scale to mixed zones

MS. 23 24.20 20% Economic / 50% Community facility / 30% Residentiel LIGHT INDUSTRY-INUSE 7K

MS. 24 26.47 y change of ZC (public facilities to mixed uses)

MS. 25 1.46 30% Economic / 60% Residentiel / 10% Community facility ??? 7K Y mixed zones created

(with Mot limits)

MS. 26 16.47 FAR exitistin: total: 1,5 (residential, public

MS. 27 6.64 20% Economic / 30% Residentiel / 50% Community facility 1 30 % green area 7K y mosque, small vaccant

plot and bloc

MS. 28 1.35 30% ECONOMIC 70% RESIDENTIEL 1 7K

MS. 29 16.05 MIXED PUBLIC SERVICES

y zones of mixed uses enlarged

MS. 30 5.30 50% Economic / 30% Residentiel / 20% Community Facility COMERCIAL/DEPOT 9K

MS. 31 28.10

MS. 32 28.10 50% Economic / 30% Residentiel / 20% Community Facility / FA exitant total 7K

MS. 33 28.10 Commercial 9K Y changed from Mixed uses zone to economic

MS. 34 8.48 20% Economic / 30% Residentiel / 50% Community Facility

FAR exitistin: total: 1,5 Poss de rehabilitation

MS. 35 1.79 50% Economic / 30% Residentiel / 20% Community Facility 2 7K

Urbaplan-0687-19.05.09 89

GZP Zoning category To be urbanized

RP Zoning category New low rise development

Legend D11

Reference urban form

> Planning for development of upper class low residential area

Pursued Objectives

> Favor larger plots planning process and development

> LaDD (AR)

Provisions principles

> Parcel minimum of 600 m2 and plot size for LaDD of minimum 4ha

> Greening and plantations obligations

> Building height up to 3 levels

> Standarts regulation

D11

Descriptions

Urbaplan-0687-19.05.09 90

GZP Zoning category To be urbanized

RP Zoning category New low rise development

Legend D11

General provisions

Land uses Residential development with mixed activities

in accordance with residential areas

Accessibility

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 4ha for LaDD(AR)

FAR Max 400m2

Lot coverage Max 30%

Open space green areas and p lantation Open space and green area 50%

Height 3k

Setback to street footprint 6m

Attic level -

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 120m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities -

Environmental constraints -

Standarts Usual building standarts

D11

Provisions

Urbaplan-0687-19.05.09 91

GZP Zoning category To be urbanized

RP Zoning category Large scale development

Legend D12

Reference urban form

> Planning for development of high residential area

Pursued Objectives

> Master planning and LaDD (AR) process min plot 1ha

> Issues for green areas, public facilities

> Areas to introduce transfer possibility of building rights (TDR)

Provisions principles

> High rise mixed development

> Building height up to 6/9 levels

> Mid /High density

> Standarts regulation

D12

Descriptions

Urbaplan-0687-19.05.09 92

GZP Zoning category To be urbanized

RP Zoning category Large scale development

Legend D12

General provisions

Land uses Residential development with mixed activities

in accordance with residential areas

Accessibility Connection to public transportation

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 1ha for LaDD(AR)

FAR 1,8/2.3

Lot coverage Max 50 %

Open space green areas and p lantation Open space and green area 30%

Height 6K/9K

Setback to street footprint 6m

Attic level With 1.5 m setback

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 2 rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

Standarts Usual building standarts

D12

Provisions

Urbaplan-0687-19.05.09 93

Urbaplan-0687-19.05.09 94

ID AREA FAR LOT_COVERA PUBLIC_SPA MAX_HEIGHT

COMMENTMOT SPECIALCON

LS. 1 13.80 1,5 for the whole area (that could be distributed (the max on a 2,5 ha will be limited to 3)

12K

LS. 2 2.75

LS. 3 8.74 50%Parks along the river 60% of the total area, on the remaining area FAR: 1,6

LS. 4 7.46 EXISTING PUS y as the aproved study

LS. 5 1.34 2.0 60 % 9K commercial

LS. 6 2.64 MAX 50% MIN 25% 9K social housing

LS. 7 1.87 2 50% 2O% EP d'un seul tenant 9K

LS. 8 0.61 1,8 60% 9K

LS. 9 2.44 2.0 (sur tout le site (y compris zone occupÚe) 50% 20% 9K

LS. 10 2.04 2 50% 2O% EP d'un seul tenant 9K

LS. 11 7.98

2.0 FAR RESIDENTIEL CALCULE HORS CONSTRUCTION EXISTANTE REALISEE FORMELLE ET HORS EP

20 % de la surface totale du terrain en espace public/vert Soit 1ha 9K

LS. 12 4.99 FAR residential (on 70% of the remaining parcels): 1, 8

50 % on the remaining plot

40% of total area in one block, green area along the river 9K

Urbaplan-0687-19.05.09 95

LS. 13 110.14 inserer la limite du french master plan

AU MOINS 20% DE LA SURFACE TOTALE EN ESPACE VERT d'un seul tenant

part hors french master plan

condtionÚe Ó la construction de la

ring road

inserer la limite du french master plan, definir les orientation generale

LS. 14 2.40 30% Special condition: dvt if the road if build 6K

Special condition: dvt if the MAIN CITY ACCESS road if build

LS. 15 0.70 already dvt with lot coverage 45%, height: 6K (2,4)

LS. 16 12.89

LS. 17 4.96 1,8 (surface totale) 50% 25% of the open space- in one block

9K-11K WITH TDR

TDR

LS. 18 6.62 FAR residential (on 40% of the remaining lot) 1,8 bonus for activities or public facilities

60% green area (in one block) preserve the futboll fields 6K

y SP: 60% green area (in one block) preserve the futboll

fields

include communicity facilities

LS. 19 2.19 30% 6K

LS. 20 8.84 FAR residential (on 70% of the remaining parcels): 1, 8

50% on the remaining area (without park )

30% of total area in one block, green area along the river 6K

Planning obligation: financement of the two main structuring acces

Urbaplan-0687-19.05.09 96

GZP Zoning category Protected zone

RP Zoning category Recreationna l and op en space,

Environmental conservation

Road easement protection

Legend P11, P12, P13

Reference urban form

> Protected area for recreation and open space, environmental conservation, and road

easement

Pursued Objectives

> Protected area for public interest and environmental conservation

Provisions principles

> Forbidd construction

P

Descriptions

Urbaplan-0687-19.05.09 97

GZP Zoning category Protected zone

RP Zoning category Recreationna l and op en space,

Environmental conservation

Road easement protection

Legend P11, P12, P13

General provisions

Land uses Recreation and open space, Natural area,

road easement area

Possibility for little buildings which can

be removed in accordance with use and

activities

Possibility to build a restaurant or café

within the recreational areas of a park or

an op en space

accessibility -

Parking Specific requirements for public parking

for recreational areas only

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size -

FAR -

Lot coverage -

Open space green areas and p lantation -

Height -

Setback -

Attic level -

Special conditions

Building layout >Distance to limits 4 m

>Distance to other buildings 6 m

P

Provisions

Urbaplan-0687-19.05.09 98

Commercial activities 4.5m height for the 2 rst commercial

level

Environmental constraints Respect to environmental conditons

Standarts Usual building standarts

Urbaplan-0687-19.05.09 99

GZP Zoning category Low Rise Residential Development

RP Zoning category Detached semi/detached individual units

Legend U11

Reference urban form

> Urban small houses built in informal areas for larger families partially

Pursued Objectives

> Favor development of small urban houses for families

> Preserve the density in areas with lack of accessibility

> Avoid higher development than the size in the surrounding

> Develop a minimum road network to insure access for security vehicules

Provisions principles

> Restrictions of plots pooling, max plot size of 600m2

> Building up to max 3 k villas

> Preservation of green areas and trees

U11

Descriptions

Urbaplan-0687-19.05.09 100

GZP Zoning category Low Rise Residential Development

RP Zoning category Detached semi/detached individual units

Legend U11

General provisions

Land uses Low Residential development with mixed

activities in accordance with residential areas

Accessibility

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size Max 600m2

FAR -

Lot coverage Max 40 %

Open space green areas and p lantation Green area 40%

Height 3K

Setback to street footprint 6m

Attic level -

Special conditions

Building layout Distance to limits 2m

Distance to building 4ms

Commercial activities -

Environmental constraints -

Standarts Usual building standarts

U11

Provisions

Urbaplan-0687-19.05.09 101

GZP Zoning category Low Rise Residential Development

RP Zoning category Compact low rise units

Legend U12

Reference rban form

> Urban small villas located in the city surrounding areas

Pursued Objectives

> Avoid new building of higher size

> Preserve the density and in an area with lack of accessibility

> Facilitate the construction of other similar houses

> Develop a minimum road network to insure access for security vehicules

Provisions principles

> Restrictions of plots pooling, max plot size of 600m2

> Building up to max 2 k villas

> Preservation of green areas and trees

U12

Descriptions

Urbaplan-0687-19.05.09 102

GZP Zoning category Low Rise Residential Development

RP Zoning category Compact low rise units�

Legend U12

General provisions

Land uses Compact Low rise residential development with

mixed activities in accordance with residential

areas

accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size Max 600m2

FAR -

Lot coverage Max 60 %

Open space green areas and p lantation Green area 20%

Height 7m

Nbr floor 2K

Setback to street footprint 6m

Attic level -

Special conditions

Building layout Distance to limits 2m

Distance to building 4m

Commercial activities

Environmental constraints -

Standarts Usual building standarts

U12

Provisions

Urbaplan-0687-19.05.09 103

GZP Zoning category Low Rise Residential Development

RP Zoning category Historical conservation

Legend U13

Reference urban form

> Urban historic villas located in the city center the oldest one dating from the Ottoman

period

Pursued Objectives

> Preserve the "pattern" of the area

> Preserve specific construction registered as historical patrimony

> Favor the adjustment to modern conditions of the houses and the extension in accor-

dance with the general profile of the houses of the area

> Introduce some mixed activities in accordance with the size of the houses.

Provisions principles

> Restrictions to plots pooling, max plot size in accordance with the surrounding p lots to

<300m2

> Building up to max 2 k houses

> Management of the height of the houses

> Preservation of green areas and trees

> Conservation of registered objects

U13

Descriptions

Urbaplan-0687-19.05.09 104

GZP Zoning category Low Rise Residential Development

RP Zoning category Historical conservation

Legend U13

General provisions

Land uses Historical houses and villas in the city center

area

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size Max300m2

FAR -

Lot coverage Max 60 %

Open space green areas and p lantation Open space and green area 20%

Height

Nbr floor 2K

Setback to street footprint -

Attic level -

Special conditions

Building layout Distance to limits -

Distance to building-

Commercial activities -

Environmental constraints -

Standarts -

U13

Provisions

Urbaplan-0687-19.05.09 105

GZP Zoning category Mid Rise Residential Development

RP Zoning category Consolidated former state sector housing

Legend U21

Reference urban form

> Urban residential blocks typical from the "modern period" of architecture of the fifties

and early sixties built as former state building

Pursued Objectives

> Favor rehabilitation of a dwelling typology which provides good urban conditions

> Favor mixed use

> Possibility to built for each rehabilitation operation a higher building in accordance

with formal and architectural typology to insure economical feasibility of the rehabilita-

tion process

> Preserve from construction within the open space, and from higher construction as the

mid rate size building of the area

> Expropriate the informal houses built within the open spaces

> Provide solutions for collective parking areas

> Insure accessibility for security vehicles

> LaDD (AR) planning process and development for larger areas min 1 ha in case of

rehabilitation including new constructions within the area

Provisions principles

> Rehabilitation project through LaDD if included new building

> Building up to max 6k

> Preservation of open spaces, green areas and trees

U21

Descriptions

Urbaplan-0687-19.05.09 106

GZP Zoning category Mid Rise Residential Development

RP Zoning category Consolidated former state sector housing

Legend U21

General provisions

Land uses Residential housing with mixed sactivities in

accordance with residential area

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size Minimum 1ha for LaDD rehabilitation with

new buildings

FAR 1.8

Lot coverage 50%

Open space green areas and p lantation 20 % of green area in one plot

Height

Nbr floor 6K

Setback to street footprint 6m

Attic level Within max 6 floor 1.5m setback

Special conditions

Building layout Max length 80 m

Distance to limits 3m

Distance to building 6m

Commercial activities 1 rst floor with max 4 m height for commercial

use along streets

U21

Provisions

Urbaplan-0687-19.05.09 107

Environmental constraints -

Standarts Usual building standarts

Urbaplan-0687-19.05.09 108

GZP Zoning category Medium Rise Residential Development

RP Zoning category Consolidated mixed form units

Legend U22

Reference urban form

> Urban areas within the city characterized by a diversity of strictly imbricated types of

buildings.

Pursued Objectives

as a priority :

> Stop new construction because of density and close imbrication making new construc-

tion impossible without nuisances for neighbours,

on long term

> Favor a one to one scale rehabilitation for open space by expropriation of owners or

demolition of informal housing,

> Introduce possible compensation with introducing transfer of building rights

> Provide solutions for collective parking areas

Insure accessibility for security vehicles

Provisions principles

> Building standards for distances to limits of plots and distances buildings

> Max height of 6 levels

U22

Descriptions

Urbaplan-0687-19.05.09 109

GZP Zoning category Medium Rise Residential Development

RP Zoning category Consolidated mixed form units

Legend U22

General provisions

Land uses Mixed residential and activity

accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size -

FAR 1.8

Lot coverage 70%

Open space green areas and p lantation 15 % of green area in one plot

without parking area for cars

Height Max 6 k

Setback to street footprint 6m

Attic level Within height and nbr of floor with 1.5 m

backstop

Special conditions

Building layout >Max length of building 80 m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 1rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

U22

Provisions

Urbaplan-0687-19.05.09 110

Standarts Usual building standarts

Urbaplan-0687-19.05.09 111

GZP Zoning category Medium Rise Residential Development

RP Zoning category Evolving mixed from by block

Legend U23

Reference urban form

> Development of urban medium rise housing to create new ilots

Pursued Objectives

> Favor block development along new streets by densification of informal hous ing

> Favor mixed use

> Insure accessibility for security vehicles in all areas

> LaDD (A) planning process and development 0.25ha including agreement with all

owners

> Coordination with ALUIZNI before registration of informal houses

Provisions principles

> Lot coverage to insure open space and green areas

> Mid density

> Max height of 6 K

U23

Descriptions

Urbaplan-0687-19.05.09 112

GZP Zoning category Medium Rise Residential Development

RP Zoning category Evolving mixed form by block development

Legend U23

General provisions

Land uses Residential mixed form building with mixity

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size -

FAR 1.8

Lot coverage 50%

Open space green areas and p lantation 20 % of green area in one plot

Height Max 6 k

Setback to street footprint 6m

Attic level Within height and nbr of floor with 1.5 m

backstop

Special conditions

Building layout >Max length of buildings 80 m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 1 rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

Standarts Usual building standarts

U23

Provisions

Urbaplan-0687-19.05.09 113

GZP Zoning category Medium Rise Residential Development

RP Zoning category Evolving mixed form by restructuring

Legend U24

Reference urban form

> Development of urban medium rise housing to create new ilots.

Pursued Objectives

> Favor restructuration of ilots through densification

> Favor mixed use

> Insure accessibility for security vehicles in all areas

> LaDD (A) planning process and development 0.25ha including agreement with all

owners

> Coordination with ALUIZNI before registration of informal houses

Provisions principles

> Lot coverage to insure open space and green areas

> Mid density

> Max height of 6 K

U24

Descriptions

Urbaplan-0687-19.05.09 114

GZP Zoning category Medium Rise Residential Development

RP Zoning category Evolving mixed form by restructuring

Legend U24

General provisions

Land uses Residential mixed form building with mixed

activities

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size Minimum plot 0.25ha

FAR 1.8

Lot coverage 50%

Open space green areas and p lantation 20 % of green area in one plot

Height Max 6 k

Setback to street footprint 6m

Attic level Within height and nbr of floor with 1.5 m

backstop

Special conditions

Building layout >Max length of buildings 80 m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 1 rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

U24

Provisions

Urbaplan-0687-19.05.09 115

Standarts Usual building standarts

Urbaplan-0687-19.05.09 116

GZP Zoning category High Rise Residential Development

RP Zoning category Consolidate high rise

Legend U31

Reference urban form

> Existing high rise residential buildings

Pursued Objectives

> Consolidate status of the land use

> Favor mixed use

> Increase where ever possible green areas and play ground

> Constraints for parking availability where needed

> Insure accessibility for security vehicles in all areas

Provisions principles

> Consolidation of status through regulation

> Standarts regulation

U31

Descriptions

Urbaplan-0687-19.05.09 117

GZP Zoning category High Rise Residential Development

RP Zoning category Consolidate high rise

Legend U31

General provisions

Land uses High rise residential with mixed activities

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size -

FAR 2.3

Lot coverage 50%

Open space green areas and p lantation 20 % of green area in one plot

without parking area for cars

Height 9k

Setback to street footprint 6m

Attic level Within height and nbr of floor with 1.5 m

backstop

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 2 rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

U31

Provisions

Urbaplan-0687-19.05.09 118

Standarts Usual building standarts

Urbaplan-0687-19.05.09 119

GZP Zoning category High Rise Residential Development

RP Zoning category Evolving high rise

Legend U32

Reference urban form

> Development of high rise residential building

Pursued Objectives

> Development for high rise building

> Favor mixed use of the zone

> Issue for greening and op en space

> Insure accessibility for security vehicles in all areas

> Favor possible transfer of bilding rights

> Development by LaDD (AR) (see regulation and instruments) minimum plot size 1 ha

Provisions principles

> Lot coverage specifications to favor green areas and open space

> Development of residential building up to 9k

> High density

> Standarts regulation

U32

Descriptions

Urbaplan-0687-19.05.09 120

GZP Zoning category High Rise Residential Development

RP Zoning category Evolving high rise

Legend U32

General provisions

Land uses High rise residential with mixed activities

Accessibility Required for each building

Parking Specific requirements

Seismic standarts Risk 8 on Scale

Specific parameters

Plot size 1ha for LaDD(AR)

FAR 2.3

Lot coverage 50%

Open space green areas and p lantation 30 % of green area

Height 9k

Setback to street footprint 6m

Attic level Within height and nbr of floor with 1.5 m

backstop

Special conditions

Building layout >Minimum distance between public pedestrian

pass ways 80m

>Distance to limits 3 m

>Distance to other buildings 6 m

Commercial activities 2 rst floor with max 4 m height for commercial

use along streets

Environmental constraints -

U32

Provisions

Urbaplan-0687-19.05.09 121

Standarts Usual building standarts

Urbaplan-0687-19.05.09 122

10. ROAD NETWORK HIERARCHY AND PARKING

PROVISIONS

10.1 Conception du réseau

La configuration du réseau routier est basée sur

- des éléments de réseau existants

- des éléments à construire dans la ville existante et dans les extensions prévues

Etant donné le faible développement du réseau actuel de la ville existante à la fois en

kilométrage et en densité, la partie nouvelle du réseau à constituer prend pour Tirana une

ampleur considérable. C'est le prix à payer dans la ville pour densifier. Plus de population

dans la ville signifie plus de mobilité et par conséquent plus de réseau pour assurer cette

demande croissante de mobilité. Cet enjeu simple explique la configuration du réseau

proposée en même temps que l'introduction d'une catégorie de zonage pour permettre la

réalisation des éléments de réseau nouveaux.

Figure 21 : Hierarchie du réseau routier

Urbaplan-0687-19.05.09 123

Figure 22 : Classification des routes et phasage de la réalisation de la ring road

Le réseau s'intègre dans le concept de mobilité durable développé au chap 3 ci-dessus et

explcité par lées figures 21 et 22. Il vise

- A startegy oriented towards a multimodal approach to movement which is

aims at limiting the growth of motorised vehicular traffic, reducing the negative

impact of traffic on the environment and improving the environmental quality of

central urban areas.

- Une réalisation de la Ring road comme un élément utile à la fois pour le déve-

loppement urbain mais aussi comme une donnée fondamentale de la configuration pour

modérer le trafic dans la ville.

10.2 Configuration du réseau routier

Les principes suivants sont à la base de la configuration proposée;

1.La ville est découpée en secteur ou en ilôt à l'intérieur desquels le trafic de transit doit

être limité et rendu peu favorable par la configuration du réseau

2.Chaque secteur doit avoir au moins 4 ou 5 connections sur le réseau routier principal,

cad Outer Riing Road, Inner ring Road ou principales radiales

3.La structure du réseau à l'intérieur des secteurs doit privilégier la connection avec la

Outer Ring road.

La proposition ci-dessous donne la hiérarchie du réseau selon les besoins de la régulation.

Il appartiendra à une étude de management du trafic et aux études en cours sur le transport

public de confirmer ce réseau ou de lui apporter des modifications, si nécessaire.

Urbaplan-0687-19.05.09 124

Figure 23 : Configuration du réseau routier

Urbaplan-0687-19.05.09 125

QuickTime™ et undécompresseur TIFF (non compressé)

sont requis pour visionner cette image.

Urbaplan-0687-19.05.09 126

10.3 Les sections des voies

Les dimensionnements des emprises à réserver dans le cadre de la régulation sont définis

par le tableau ci-dessous. Les sections qui sont proposées apportent suffisamment de

souplesse par la gestion de la section de la voie pour s'adapter à des usages dictés par la

régulation du trafic et l'organisation des transports publics.

Figure 24 : Classification of road network in T irana

10.4 Road intersections descriptions

La figure ci-dessous fournit une vue synthétique de la définition des carrefours du réseau

routier et permet d'anticiper le mode de régulation dans le cadre du management de trafic

à mettre en place. Dans le cadre du plan de régulation il a été admis que certains carre-

fours de la ring road devait faire l'ob jet de réservation permettant de réaliser ultérieure-

ment des carrefours dénivellés. Mais il appartiendra aux responsables de la gestion du

trafic de déterminer la manière d'aménager ces carrefours.

Urbaplan-0687-19.05.09 127

Urbaplan-0687-19.05.09 128

10.5 Parking requirements

The number of required areas for cars for each type of activities are defined as following :

Figure 25 : requirements for parking areas

Residential >1/100m2 residential area, at minimum one area per flat

Hotels >1 place for 5 rooms Commercial activities >within the city center: 1 place for 100m2

>outskirts commercial area 2 places for 100m2

Services and facilit ies >1 place for 100 m2 of floor area Schools and education: >1 place for each classroom

> the area required is 25m2 for a private car.

> In case of mixed uses the requirements are related proportionally to each type of uses.

> These requirements has to be revised base on the transportation policy to decrease the

requirements within the city center because of good access to public transportation, and

to increase requirements in the outskirts of the city area.

Urbaplan-0687-19.05.09 129

11. IMPLEMENTATION OF THE REGULATORY PLAN

11.1 Capacities and resources

The Regulatory System encompasses two complementary functions by which Municipal

authorities manage urban development: “steering” and “ leading”.

> Steering functions

Steering urban development through the Zoning Plan and Zoning Code implies formulat-

ing, making known and imposing legally binding rules or guidelines that must be re-

spected in the development of each site according to the zoning category in which it is

located. These rules have the purpose of ensuring that the development actions of individ-

ual landowners are compatible with collective interests while, at the same time, respecting

the owners’ property rights.

Steering instruments coordinate the actions of numerous stakeholders active in the city to

ensure the emergence of a coherent image and make the city manageable. By designating

legally binding conditions for development in each zone, the Zoning Plan and Zoning

Code greatly facilitate the approvals process in the case of construction projects which

conform to the code.

> Leading functions

Leading urban development means that Municipal authorities may play a pro-active role

in promoting the development of specific areas of the city in accordance with policy

objectives, improving living and functional conditions for the citizens, communities and

private enterprises.

For the authorities, leading may involve establishment of special conditions or incentives

for the activity of land-owners and other private sector actors as well as actions that the

Municipality or other public sector actors may undertake – such as the development of

infrastructure networks, preparation of development projects, establishment of public-

private partnerships, etc. to promote particular policy objectives and address particular

needs or potentials.

Steering and leading functions are inseparable components of the urban management

“arsenal” that are coordinated by the Regulatory Plan.

Of course, the system described above does yet cover all of the actions that the Municipal-

ity must take in order to develop the city direction specified by Municipal policies and

strategic objectives. The RP defines the actions that are linked to and which legally affect

Urbaplan-0687-19.05.09 130

land use. There are, besides these, actions that are essential for the city’s development but

which dependant on other systems or obligations of the public authorities. For example;

creation of the ring road and regional traffic axes, development of public transport, crea-

tion of schools and major public facilities such as hospitals and university, registration of

land ownership and retribution for expropriated land, etc. All of these processes, which

have a major impact on the city’s development, are to some extent dependent national

level policies and actions. They are not linked territorial rights and may therefore not

come under the jurisdiction of the RP. The Municipality must nevertheless become in-

volved with Central Government – either individually, as a major stakeholder, or jointly

with other municipalities and communes in the metropolitan region – with regard these

processes and development activities, to ensure that central and local policies and pro-

grammes are working towards common objectives.

11.2 The new urban planning law

Formulation of the Regulatory Plan has been undertaken under the assumption that a new

law on urban planning would replace the current law of 1998 by the time that the Regula-

tory Plan became effective. The process of elaborating the new planning law is underway

since the late 2006. Two versions have been assessed and commented in the course of

work on the Regulatory Plan. The latest version of June 2008 is the object of following

comments:

> Municipal-central government relationships regarding urban management

The draft planning law underlines the political dimension of planning in its definition of

the respective authority and responsibility of natural and local government authorities

with regard to planning. In the actual political circumstances in Albania, the delineation of

responsibilities is a delicate issue. With regard to urban management, international prac-

tice clearly holds local government to be the responsible actor. Central government is an

important actor – as land owner, f iscal actor and investor in major infrastructure projects,

and as legislator and guardian of the law in matters of urban management. But this does

not place national government above local government in matters of urban management;

it is, rather, a privileged partner.

> Compatibility of local plans with the national legal framework

The preparation of the national law on urban planning appears to be taking place in an

inverted manner, in the sense that the law-making process is taking place in the absence of

a national policy-making process which should, in fact, have preceded it. Even if the

national planning law is approved tomorrow, there will not be an adequate national plan-

ning framework in place that is capable of putting it into force.

Urbaplan-0687-19.05.09 131

The problem, from the viewpoint of local authorities, is that future definition of national

level of "planning regulations", comprising: land use and building categories, types of

development, binding and guiding conditions, standards for merger and sub-division,

parcel regulation, regulations enforcing infrastructure, etc. (Art. 21), may be at odds with

approved local laws and regulations. The same applies to the "binding conditions and

norms of building as per types of buildings" to be defined by the Council of Ministers

(Art. 28, 3) for areas and situations of national interest.

In other words, only when the national plans, definitions and regulations are revealed will

MoT and other municipalities know for certain whether or not their local plans and laws

are compatible with the national law. In the case of incompatibility, modification will be

required, or conflict resolution mechanisms will have to be applied.

Regarding the tools for land management, Chapter V and other scattered provisions deal

with regulatory controls and special development controls.

According to the draft planning law, local authorities would be responsible for the local

enforcement of binding national planning instruments and national control regulations

(Art. 48, 2), while the national Council of Ministers would be responsible for adopting

"uniform development control regulations that the local planning authorities shall apply

within their jurisdiction" (Art. 49,1). According to Article 50 of the draft law, "local

development control regulations shall be drafted in compliance with the uniform devel-

opment control regulations. Local planning authorities may add to or expand on the uni-

form development control rules in their regulations, but they cannot change their key

content".

Again, until the uniform development control regulations are defined by the national

authorities and approved by the Council of Ministers, local authorities will not know to

what extent their own regulations are compatible with the national ones.

> New instruments

The draft planning law cites a number of “special instruments of development control”

(Art. 52), including: development freeze, public easement, public land reservation, right

of preference and waiver right.

This list could usefully be extended to introduce additional instruments that would en-

hance the urban management and regulatory potential of local authorities.

> Proposed list of land management tools

Urbaplan-0687-19.05.09 132

To effectively manage of the city of Tirana, as in the case of every city, local authorities

must have adequate capacity to act in the field of development and territorial control. The

following list, though incomplete, indicates the extent of instruments and tools that are

commonly placed at the disposition of local governments to facilitate their intervention in

urban development processes:

1. Regulation:

Zoning

- Use and building criteria,

- Land subdivision, Land readjustment, Land pooling,

2. Instruments

- Compulsory orders

- Conservation order

- Listing of properties

- Regularisation of informal settlements, surface rights

3. Management mechanism

a. Development rights

- Transfer of development rights

- Sale of building rights

b. Land policy

- Land readjustment

- Land banks

- Land pooling

- Preference rights

- Surface rights

- Land consortium

- Public land

- Expropriation

c. Urban operations

- Public-Private Partnerships

- Use of public land

- Power to establish special authorities for land development

4. Financing of urban development

- Taxation system

- Betterment levies

- Surplus value capture value

- Concessions of public spaces (i.e. parking and optical fibres, etc.)

Urbaplan-0687-19.05.09 133

Instruments cited in the latest draft law are for more restrictive; the process of elaboration

of the new law is still underway.

11.3 Planning instruments

11.3.1 Le context of intervention in urban development The Regulatory Plan is a necessary but not a sufficient instrument for regulating interven-

tions in the city. As has been stressed, the development of Tirana cannot be effectively

regulated through the Regulatory Plan and building permissions mechanisms alone. In

addition, local authorities require intermediary planning instruments which would enable

them to actively promote the development of selected areas through the elaboration of

development objectives, uses, spatial organisation and the organisation of development

processes, and the negotiation of agreements between land owners, developers and au-

thorities regarding participation and cost sharing for the provision of local infrastructure

and public facilities.

Presently, the Municipality employs Partial Urban Studies for the development of local

areas. The shortcomings of this instrument in the present context have been amply de-

scribed in the Diagnostic Report.

11.3.2 New planning and management instruments

The introduction of two types of instruments is proposed within the new Regulatory

System. They may be confirmed by the new national law on urban planning or introduced

through local legislation or regulations.

> Local area master plan (LaMP)

The LaMP is a planning instrument which aims at coordinating the main zones of the city

designated in the Regulatory Plan. A prime example would be the zone in northern Tirana

in the area of the train station.

The objective of the LaMP is to define the mechanisms, participants and their responsi-

bilities and financial obligations to ensure the feasibility of development within the desig-

nated area.

The LaMP is elaborated in two stages:

Planning brief

> Fix the planning perimeter

> Identify participating land owners

Urbaplan-0687-19.05.09 134

> Define development guidelines (based on the analysis of local conditions and poten-

tials, policy objectives and strategic intentions for the area)

> Specify the procedures for elaboration of the LaMP (competitions, tecnical assistance,

etc.)

> Describe the participatory processes (community involvement, etc.)

> LaDD-A: Administrative authority

LaMP formulation

> Define the spatial development concept in terms of a urban project and programme

> Assess economic feasibility and define the phases and mechanisms of development

> Organise the redefinition of plots and property ownership

> Determine the mechanisms for financing infrastructure and public equipment.

> Define the processes of development and sub-division of blocks which will be studied

individually through local area development documents LaDD, on the basis of agree-

ments and criteria defined in the LaMP.

> Assure the participatory process and integration of its result into plan formulation.

The LaMP is defined by the Municipality which may, however, draw upon external tech-

nical expertise and p lanning capacity for its formation.

The formulation of a LaMP is a complex operation involving the coordination of interests

and agreements involving a wide range of issues and actors. The agreements are expected

to structure relationships and activities during the detailed planning and implementation

process which may last several years. For this reason, most cities and local authorities

establish PPP to manage the operations and ensure the commercialisation of the territory.

This model may be applicable in certain cases in Tirana.

> Local Area Development Document (LaDD)

The LaDD is a planning instrument which aims to define the urban design and develop-

ment conditions for a particular urban site or block. It applies to the sites fixed by the

Regulatory Plan and, if relevant, by a LaMP.

The LaDD determines the parameters of construction and regulations on the basis of

criteria defined by the Regulatory Plan and/or LaMP. Three types of LaMP are proposed:

The LaDD-A is impose by the Regulatory Plan for specific zones of densification along

planned future roads, as well as for blocks identified for restructuring. The frame condi-

tions and rules for the LaDD are defined by the approved Regulatory Plan, which implies

a relatively simple approval process.

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> LaDD-R: Regulatory authority

LaDD-R is imposed by a LaMP and by the applicable instruments defining construction

and development rules.

> LaDD-M: Municipal authority

LaDD-M is imposed by the BlocU, defining conditions for the evolution of construction.

The LaDD is also elaborated in two stages:

Design Brief

> Perimeter of the LaDD

> Status of land ownership and partners

> Guidelines

> Participatory process

LaDD formulation

11.3.3 Planning obligations and approval process

> Urban project in the form of an overall plan and construction programme

> Rules and parameters of construction

> Sub-division of the site

> Access conditions

> Infrastructure and service conditions

> Formula for sharing of costs for infrastructure and public equipment.

The LaDD is an instrument established by the land owners, except in the case of a LaDD

imposed for development of structures in the BlokU, in which case it is established by the

Municipality.

Planning obligations are defined in the Regulatory Plan. The approval process for the

local area planning documents is as follows:

> LaM P

> The Municipal authority approves the Planning Brief

> The LaMP is approved by the Municipal Authority subject to objection by third parties

> Local Area Development Document (LaDD)

> LaDD-A is approved by administrative procedure

> LaDD-M is approved by the Municipality

> LaDD-R is approved by the regulatory authority.

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Each authority validates the planning/design brief prior to the elaboration of the final

documents.

11.4 Monitoring plan implementation and construction police

No regulation is possible without enforcement capacity represented by the construction

police (Inspectorate of Construction). The Inspectorate of Construction controls two

things:

> Implementation of construction and its conformity to approved plans

> Supervision of the urban territory to prevent irregular construction without building

permission.

The implementation of the Regulatory Plan and the functioning of the Inspectorate of

Construction for Tirana will advance progressively. As it expands its responsibilities, the

Inspectorate of Construction should give priority to:

> controlling the right of way of roads, for the secondary road network

> preserving protected open spaces, particularly in the historic areas

> protecting areas reserved for public equipment and green spaces and urban parks.

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PART III: ACTION PLAN

The following table provides a full overview of the proposed Action Plan programme,

indicating objectives, expected outputs, responsibilities, capacity issues and capacity

development needs.

This part has to be completed with comments and descriptions.

The action plan shows that due to the Regulation systems and its requirements a lot of

action has to be introduced immediately. Training of the Urban Directorate for his new

leading function cannot wait, organise an internal forum on municipal regulation and

management involving representatives from all directorates to debate urban management

issues and propose strategies for improvement cannot wait, organize metropolitan struc-

ture to decide for metropolitan issue cannot wait etc…Every thing should be done for the

sort term. It is impossible of course. But the necessity remains to impulse as much re-

sources as possible to face the new task defined by the regulation system in order to as-

sume all the tasks defined to lead the planning process.

It is task of the General Administrator and the Urban Planning Directorate to make with

these issues a political one at MoT level.

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Subject / Action Responsible Inputs / resources Timing

Legal basis of the regulatory system Objective: the Regulatory Plan and its associated instruments are estab-lished on a viable and operational legal basis.

1. Translate the RP/ZC into the form of a local law MoT Legal expertise Immediate

2. Draft all other local laws/regulations needed to implement the RP and its instruments (LaMP, LaDD, etc.) MoT Legal expertise Short term

3. Pass the RP law and regulations at local govt. level MoT Awareness building and public information Short term

4. Obtain national level approval of the local RP law and regulations MoT/MPWTT Lobbying activity… Short term

5. Propose and follow-up recommendations for finalisation of the national planning law MoT/MPWTT Legal expertise Short term

6. Make adjustments to local laws if required, when the new national planning law has been passed MoT Legal expertise Medium term

Capacity development Objective: the MoT has the organisational and professional capacity needed to implement the new Regulatory System

1. Mobilise donors for technical assistance and support for capacity building MoT Urban Planning Directorate Short term

2. Complete definition of mission, responsibilities, outputs, performance criteria for all sections/directorates MoT External Consultancy Short term

3. Complete design and preparation of a targeted capacity development programme for the Regulatory system, based on URPT Capacity Dev. Report

MoT Technical assistance for CD imple-mentation Short term

4. Install two meeting/seminar rooms (for 6-8 / 12-17 people) with possibility to hang maps and flip charts.

General Adminis-trator Short term

5. Organise an internal forum on municipal regulation and management involving representatives from all director-ates to debate urban management issues and propose strategies for improvement.

General Adminis-trator Urban Planning Directorate As soon RP is

validated

6. Implement “on-the-job” training with technical assistance, based on priority projects identified by URPT MoT Technical assistance for a follow up Short term

7. Organise and conduct special internal skills training courses for selected directorates, sections and staff

General Adminis-trator Urban Planning Directorate Short term

8. Organise and conduct exchange/study visits to relevant cities (regarding planning and regulation) MoT Medium Term

9. Organise external advanced training courses for selected staff (project management, financial planning, public pri-vate partnership, etc.)

MoT General Administrator, Urban Plan-ning Directorate, with ev. Technical assistance

Short term

Institutional framework for metropolitan planning Objective: an organisational basis is established for coordination and collaboration in the planning and development of the Tirana Metropoli-tan Region

1. Establish a platform for exchange and coop eration with other local governments in the metropolitan region MoT/MPWTT Technical assistance for defining

condition and process Short term

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Subject / Action Responsible Inputs / resources Timing

2. Establish a forum or work group for central-municipal exchange and collaboration regarding Capital City func-tions and development planning in the Tirana-Durrës ur-ban region

MoT Collaboration with MPWTT, met-ropolitan communes and munici-palities

Medium Term

3. Establish agreement and organisation for collaboration and improved division of responsibilities and tasks with ALUIZNI regarding informal settlement development: participatory planning, legalisation, p hysical development, services, etc.

MoT ALUIZNI/Minitries Short term

Policy and planning in the metropolitan region Objective: MoT and other local governments of the metropolitan region share a coherent and agreed policy and planning basis for managing urban development in the metropolitan region.

1. Conduct an inventory and produce synthesis of all major planning studies for the metropolitan region MPWTT Communes and municipalities,

agencies etc… Short term

2. Elaborate and agree a policy framework and strategy for metropolitan development with local and central govern-ment actors

MPWTT Communes and municipalities, agencies etc… Short term

3. Coordinated elaboration of regulatory plans and instru-ments in the Tirana Metropolitan Region MPWTT Communes and Municipalities Short term

Public/stakeholder support Objective: the public and stakeholders are aware of and support the vision, objectives, principles and instruments of the new approach to regulation and management of urban development

1. Produce popular short didactic versions of the Diagnostic Report and Regulatory Plan

Urban Planning Directorate Short term

2. Conduct round table, or forums for professionals and stakeholders regarding Regulatory Plan and its underlying vision, policy framework, strategy, approach to regulation, public/private interests, etc.

Urban Planning Directorate Short term

3. Conduct further public hearings on the Regulatory Plan and its underlying vision, policy framework, strategy, ap-proach to regulation, public/private interests, etc.

Urban Planning Directorate Short term

4. Conduct media campaign on the new regulatory system and its underlying approach to urban development

General Adminis-trator Urban Planning Directorate Short term

Land management Objective: the MoT has legal basis, resources, information and capaci-ties to play an actively role in land management and development in the city.

1. Up-date and adjust the cadastre system MoT Technical assistance Medium term

2. Establish a public fund to promote public land ownership by the MoT MoT Government Short term

3. Create an “urban observatory” on land development and management, land markets, etc. MoT MPWTT Medium term

4. Elaborate a programme for the development of public facilities MoT Concerned Ministries Medium term

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ANNEX

Annex I: Outline of a local Law

Annex II: Guidelines for sector development

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Annex 1 : Outline of a local law

Part 1: Introduction

1.1 Introduce RP - definition

1.2 Introduce ZC - definition

Part 2: The Regulatory Plan

2.1 Objectives

> Promote territorial organisation

> Articulate transport, housing and land policies

2.2 Principles

> Tirana as capital city, regional pole, European and international city

> Promotion of socioeconomic development in a sustainable manner

> Social function of property

> Separation between property right and building right

> Balance between public and p rivate spaces

> Fair distribution of collective equipment and public services

> Integration of informal settlements

> Fair distribution of costs and benefits of urban development

> Conservation of natural resources

> Preservation of cultural heritage

> Effectiveness of planning directives

> Institutional articulation

> Popular participation

> Social control, transparency and accountability

> Integration of national and local laws

> Integration with European laws

> Consideration of existing plans and projects

2.3 Maps and plans and photos annexed

Part 3:

3.1 Zones

> Specific uses - residential, services, industrial, equipment, culture, etc.

> Mixed uses

> Special - social interest, strategic projects, special directives, conservation areas

3.2 Uses

> Traditional use and building criteria and parameters

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> Development areas/development requirements/development constraints

> Land subdivision

> Land readjustment

> Land pooling

3.3 Instruments

> Planning obligations and instruments

> Compulsory orders

> Expropriation

> Expropriation for development by private sector

> Land and property owners' obligations

> Conservation orders (total or partial)

> Listing of properties (total or partial)

> Special zones of social interest

3.4 Management mechanisms

> Surface rights

> Preference rights

> Sale and/or transference of building rights to areas indicated in

> Plan

> Planning gains

> Public/private partnerships

> Land consortium

> Use of public land

> Powers to establish special authorities to develop land

> Development by public authorities

3.5 Financing of urban development

> Taxation system: property tax, fees, others

> Extra-fiscal mechanisms

> Betterment levies

> Surplus value capture mechanisms

> Concessions of public spaces (parking, mobile phones, optical

> Fibres, etc)

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3.6 Decision-making processes

> Authorities

> Participatory process

> Procedures and validation

3.7 Urban management system

> Applications to develop/build

> Process and procedures for dealing with applications

> Compliance

> Environmental impact assessment/neighbourhood impact assessments

> Appeals: grounds of appeals; to whom; powers of appellate body;

> Procedures to be followed

> Offences; fees

> Construction Police

3.8 Final provisions

> Temporary provisions

> Valid permits

> Other complementary laws

> Laws totally or partly revoked

> Conditions for changing zoning/other specifications

> Procedures for making and reviewing plans; public involvement;

> Effect of plans

> General administrative powers

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Annex 2 : Guidelines for urban sector organization