V~~~~~ M, 4<~ ON~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~4 CD~~~~~~ ~~~~~~ o~~~~~~~~~~~~~~~~r C5*~~~~~~~~~~~~~~~~~~~~~~" Culture in Sustainable Development Case Study: Fez, Morocco Rehabilitation of the Fez Medina Unitfor Housing and Urbanization Graduate School of Design Harvard University Agence pour la Dedensification et la Rehabilitation de la Medina de Fes (ADER-Fes) The International Bank for Reconstruction and Development/THE WORLD BANK 1818 H Street, N.W. Washington, D.C. 20433 U.S.A May 1999 This study has been prepared by consultants with support by the World Bank. The judgments expressed do not necessarily reflect the views of the Board of Execu- tive Directors or of the governments they represent. Photographs in this publication are by Mona Serageldin and Samir Abdullac, Unit for Housing and Urbanization, Graduate School of Design, Harvard Univer- sity. ii CONTENTS Foreword ............... ....................................... v Project Team ................................................... vii Project Overview . ............................................... 1 Positive Project Impacts ............... ............................ 5 Improvement of Sanitary Conditions and Safety in the Medina Preservation of the Historic and Cultural Environment Promotion of Private Investment Investment in Housing Investment in Micro-enterprises and Commercial Activities Economic Performance Employment Generarion Leveraged Private Investment Economic Returns Strengthening Institutional Capacities Negative Project Impacts and Mitigation Measures ..... ............... 15 Disturbance of the Historic Fabric Displacement and Relocation Modification to Buildings of Significant Cultural Value Mitigation of Negative Impacts on Residents Compensation to Property Owners Measures to Mitigate Temporary Disruption during Implementation of Public Works. Contingency Measures. . . REHA3ILITATION OF THE FEZ MEDINA Community Development Monitoring and Evaluation Impact on Municipal Revenue ................. .................. 19 Commercial Taxes Property Taxes Impact on Affordability of Renovation Activity ....................... 23 Valuing the Benefits of Conservation of the Fez Medina . . ............. 27 Contingent Valuation of Visitor's Willingness to Pay Estimates of Benefits Received by Non-visitors Urgency of Action ................ 29 Summary of Impacts .............. 30 References .. . . 37 List of Tables .................................................. Table 1. Fez Rehabilitation Economic Assessment, Year 15 Table 2. Economic Assessment. Annual Flow of Benefits Table 3. Potential Tax from Private Investments in Commercial Activities Table 4. Potential Local Tax Revenue from Private Investments in Rehabilitation and Valorizaton of Property (Edilite) Dh 1,000 Table 5. Ability to Pay for Housing by Annual Household Income and Size Table 6. Conservative Estimates of Valuation iv FoREWORd The protection of our cultural heritage is an essential part of protecting a sense of our identity. This cultural heritage covers literature, visual art, music, buildings, customs, ritual, and the objects of everyday use. Protecting cultural heritage requires a combination of skills and a philosophy that simultaneously honors the past, cel- ebrates the present, and invents the future. It requires sound policy, effective par- ticipation, innovative institutional arrangements, and public-private partnerships. Above all, it will require the mobilization of considerable investments, targeted spe- cifically to the rejuvenation of these urban jewels. Crumbling infrastructure, poor and over-stretched social services, rampant real estate speculation, and weak governments put tremendous pressure on the central cities which are often loci of invaluable architectural and urbanistic heritage. The degradation of the urban environment limits the abilities of a growing, shifting popu- lation to establish communities with a minimum standard of decent housing. The municipal administrations are weak. The tensions within the cities fray the social fabric as much as economic speculation transforms the urban tissue. The inner his- toric cities are increasingly ghettoized, with the middle-class and economic activi- ties either fleeing the historic core or actively destroying its very fabric. Against this spiral of mounting problems, a response is possible. This positive response to the challenges of old cities is feasible, even under difficult conditions. Such a response must protect the urban context and the sense of place, revitalize the economic base of the old city, and meet the legitimate expectations of its citizens. All of that is needed for the historic city to be kept alive, rejuvenated, and its links to the surrounding modern city reinforced. This requires much more than a restoration project; it requires Herculean efforts at urban revitalization. v REHABILITATICN OF -HE FEZ MvEDINA The Fez Medina in Morocco has been recognized by UNESCO as a World Heritage site. The World Bank is supporting a major urban renovation project to assist in the conservation and rehabilitation of the Fez Medina. Fez has been exten- sively studied. The following project summarywas conducted by Harvard University's Unit for Housing and Urbanization in the Graduate School of Design and Agence pour la Dedensification et la Rehabilitation de la Medina de Fes (ADER-Fes) with support from UNESCO and the World Bank. Of particular note are the exemplary environmental impact assessment, the mapping of the socio-economic data, and the analysis of the urban market transactions. This project also included the first efforts to use contingent valuation methods to explore quasi-option and existence values of cultural heritage, and as such estab- lished a new level for the conceptual approach to cost-benefit analysis, just as the physical, social, and environmental studies established a benchmark for the derailed analysis of such projects. But beyond the methodological aspects, this study yields fascinating insights into the dynamics of the urban situation in this old city. Isimail SerageLiifz Vice Prestheiit, Special Programls T1ue 7l'orld Back 'i PROjECT TEAM Harvard University Graduate School of Design, Unit for Housing and Urbanization Francois VIGIER, Director, Chairman Department of Urban Planning and Design, Charles Dyer Norton Professor of Regional Planning Mona SERAGELDIN, Associate Director; Adjunct Professor of Urban Planning Samir ABDULLAC, Research Fellow David JONES, Research Fellow Jacqueline TATOM, Research Fellow Bogue TRONDOWSKI, Research Fellow Keith GARNER, Research Associate Sameh WAHBA, Research Assistant Wesley WIRTH, Research Assistant Anna ZIETEK, Research Assistant Edith GRIFFIN, Editing Consultants: Survey and Social Analysis Naima Lahbil TAGEMOUATI, Universite Sidi Mohamed Bni Abeillah, Fis Contingent Valuation: Richard T. CARSON, Professor of Economics, University of California, San Diego Robert C. MITCHELL, Professor, Graduate School of Geography, Clark TJniversity vii REHABILITATION OF THE FEZ NUEDINA Agence pour la Dedensification et la Rehabilitation de la Medina de Fes (Ader- Fies) Abdellatif EL HAJJAMI\ Architecte Urhaniste, Directeur C6eiral da'Ader-Fes Abdelkarim MOUSSA, Financier, Directeur financier d'Ader-Fes Fouad SERRHINI, Architecte, Directeur de programmation et de planification d'Ader-FAs Abdeljalil BENNANI, Inge'nicur Directeur des Opcjrations dAder-Fes Abdeslam ERKIK, Attache de Direction d'Ader-Fis Mohamed EL BOUCHIKHI, CGeographe d Ader-Fes, Charge des Atnides, doi soivi do GIS et dees permis de construire et de reparation (V7) Hassan RADOINE, Architecte Chef dle projets d'Ader-Fes Anass BOUAZZAOUI, Informaticien, Responsabte dut pole Ceoinatique d'Ader-FAs Consultants Voirie historique: Voirie d'amenagement, voirie de liason Med AMRANI ABOUROUH, Architecte Etudes architecturales et urbanistiques (Amelioration des access, equipement des acces et parkings): Med AMRANI ABOUROUH, Architecte Omar BENKIRANE, Architecte Jawad EL BASRI, Architecte Abdelmejid HADMI, Architecte Abdelkader NADRI, Architecte Mohammed NAHAL. Architecte Brahim OUAZZI, Architecte Abdessamad SENHAJI, Architecte Genie Civile, VRD: Khalid NENNANI, Inge'nier (BET) Said BENCHEKROUN, Ingenieur (BET) Lahbib SOUBAI, Ingenieur (BET) Etudes topographiques: Mostapha AZZOUZI, Inge*nieur topographe Ali BENIJADDOU, lng'nicur topogr-aphe viii Circulation: Emanuel IKLAESI, Expert circulation Gestion informatique et developpement Sig Ader-Fes Rachid SMIDI, Expert en informatique (societe Cad-Tech) Tarik BENDAHOU, Expert en informatique (societe Caad-Tech) Environment: Dechets solides M'barndi ALAOUI, Expert environnement Stock des dechets solides K-halid BENNANI, Ingenieor (BET) Regroupement des Activit6s Me AMRANI ABOUROUH, Architecte Institutionnel: Audit Organisationnelle d' Ader-Fes et developpement communautaire Abdelkader MESNAOUI (Cabinet MESNAOUI et associes) Expert comptable auditeur Redressement Ader-Fes Arnould BACOT (Coopers & Lybrand) Expert financier Mobilisation des resources locales Bernard TAGOURNET, Expert des finances locales Tourisme et valorisation du patrimoine Analyse economique et faisabilite du projet Michel COUILLAUD, Economiste Etude des circuits touristiques Med AMRANI ABOUROUH, Economiste Saad BENAMAR, Botaniste Abdelkader NADRI, Architecte ix x PROjECT OVERViEW The Meedina of Fez was designated a Heritage of Mankind city by UNESCO in 1980. It has a population of about 181,000 in two separate districts-Fez Bali (population 146,000) and Fez J'did (population 35,000). Changing lifestyles, the deterioration of the infrastructure and the transformation of traditional handicraft activities into par- tially mechanized small-scale manufacturing have contributed to the degradation of the urban environment. Today, the Medina, which encompasses 13,500 parcels with approximately 31,600 separate dwelling units and close to 10,000 businesses, offers a striking contrast between areas of thriving economic activity and over-densified residential quarters whose buildings are deteriorating steadily. Aerial view of Fez MVledina. REHABILTTATION OF THE FEZ MEDINA Tlriving commercial streets. Deteriorating residential zones. The rehabilitation strategy defined by the Project is based on an exhaustive se- ries of field studies documenting existing conditions, the socioeconomic character- istics of the population. and the dynamics of private investments. In spite of the presence of a significant number of low-income households, the analysis revealed a willingness to invest in housing improvement on the part of both owners and ten- ants. The most serious impediments include complex property ownership and oc cupancy patterns, rent regulations, lack of accessibility, and environmental pollution. The overall rehabilitation strategy for the Fez Medina will alleviate these constraints through the following action programs and projects: I Improvements to the existing circulation network, including the creation of parking structures on the city's periphery. * The creation of an emergency vehicular network. * Selected environmental improvements, including the relocation of pollut- ing industries to an industrial area outside the Medina, the regrouping of specific traditional activities to facilitate deliveries, the creation of public spaces to relieve the density of residential neighborhoods, and improve- ment of the solid waste management system. * The expansion of existing programs to improve the built environment, con- sisting of consolidation of dilapidated structures, demolition of ruins, con- struction of community facilities, and urban landscaping. 2 OV E RVIEW * The creation of an incentive program to encourage private investment in improvements to the built environment and engage residents in the reha- bilitation process. * The creation of thematic tourist circulation routes and the restoration of monuments. * Poverty alleviation through the generation of employment opportunities. * The reinforcement of existing institutions in the two municipalities and ADER- FES. Taken together, these interventions will improve the quality of life in the Medina and reverse the sustained disinvestment in the building stock that is the main cause for its physical deterioration. They will create an estmated 10,000 jobs over 15 years, mainly in lower-skill occupations. The public investment required to launch the process is estimated at Dh 240 million; World Bank financing of US $14.0 mil- lion is sought for this. Other funding sources have been secured for the relocation of polluting industries and will be solicited for the rehabilitation of selected monu- ments and pilot projects. The planned improvements have been carefully designed to minimize alterations to the historic fabric of the Medina and to avoid population displacement. The Left: Relocation of noxious industries outside the Medina will alleviate pollution and allow restoration of the historic riverbank. Right: Mechanization of traditional industries contrihutes to pollution and the deterioration of the built environment. 3 REHAB-LITATION OF THE FEZ MZEEINA emergency circulation network of about 14 kilo- meters of improved streets will allow residents to benefit from better accessibility and enhancement of the living environment. Other areas of improve- ment will include solid waste management, re- grouping non-noxious industrial activities in small industrial complexes. landscaping public spaces at critical locations, development of tourist facili- - ties, and strengthening of institutional capacities through technical assistance and increased fund- ing. The impacts of the interventions are summa- rized in the appended matrix. Regropii.ig of nonpollutifng induistries will facilitate access for transport of supplies anid products. 4 POSiTiVE PROjECT IMpACTS IMPROVEMENT of SANiTARY CONdiTiONS ANd SAFETy iN ThE MEdiNA The emergency circulation network, street paving, installation of street lights, col- lection of solid wastes, landscaping of public spaces and provision of parking facili- ties will both improve the living environment and enhance property values. The relocation of heavily polluting industries outside the Medina, as well as other public works and infrastructure upgrading currently under way will reinforce these im- pacts. Collapsed or structurally unsound buildings require emergency action involv- ing both the public and private sectors. Beyond consolidation and critical repairs, the munici- palities lack the technical capacities and po- litical will to enforce building codes. Priority is given to emergency repair of structurally un- sound buildings fronting on improved roads and tourist circulation routes. Demolition of ruins and site clearance will be undertaken in conjunction with other public works alon the improved streets, with the costs defrayed by or recovered from the owners, as stipulated The creation of an emergency circulation network will enable passage of small emergency vehicles and provide fire protection, safety, and first aid stations. REHABILITATION OF THE FEZ NIEDINA Left: Residential areas wvhere the narrowxness of streets hampers service delivery' will be within /00 meters of the emergency nietwork. Right: Improvemnent of existin,g access roads and 14 kilomneters of the street netwvork will induce comznercial dlevelopmentt, renovation of dilapidated buildings, and rehabilitation of the historic fabric. by law. It is anticipated that all infill lots fronting on improved roads will be fully developed within a 13-year time trame. PRESERVATiON oF ThE HiSTORiC ANd CUITURAI ENViRONMENT Safeguarding the Fez Medina benefits not only its residents but also the nation and the world. The unique character of the city is a source of pride to Moroccans and the tourism it generates provides a source of foreign currency revenue to the nation as well as employment and income to the local residents. PROMOTiON oF PRiVATE INVESTMENT The rehabilitation strategy capitalizes on the existing urban dynamics and provides complementary incentives aimed at mobilizing private investment. Investment in housing renovation and rehabilitation will be mostly by property owners improving their own dwellings and by small developers buying, repairing, and re-selling reno- vated apartments. 6 POSI-IVE PROJECT IMPACTS INVESTMENT iN HOUSiNq. In the Medina, housing units are in relatively poor condirion and are smaller in size than in the mod- ern city, which limits rent despite high unit prices. Rents vary from a low of Dh 500 for a one-room dwelling to a high of Dh 2,100, as compared with Dh 1,150 to Dh 1,250 for affordable units in the new city, and Dh 1,500 to Dh 2,250 for units of a higher standard. Rent regulations are commonly circumvented by the practice of paying "key money. The sum paid ranges from five times the annual rent for a one-room dwelling to 10.4 times The subdivision of family residences into separate dwellino units by the the annual rent for a house and 12.7 times for an ito separa dwelling anit e addition of stairs and mezzaninies entire floor. Given the high cost of real estate in affects their structural soundness and overloads their sanitarjz svstems. the Medina, the two-room dwelling is widely viewed by first-time buyers and long-term tenants as the minimum habitable space worth investing in. It is also the dwelling size for Left: Conversion of buildings into tenements results in overcrowding, substandard living conditions, dilapidation, and the loss of cultural heritage. Right: Private renovation of a dwelling includes the introduction of modern sanitary fixtures and household kitchen appliances. 7 REHABILITATION O- THE FEZ MvEDINA which demand is highest in both the sales and rental market, accounting for 25% of residential property transactions from 1990 to 1996. Improvements that lead to en- hanced valorization potential tend to trigger renovation activities. Repair permits increased from 700 in 1993 to over 1,000 in 1997. INVESTMENT iN MiCRO-ENTERPRiSES ANd COMMERCiA[ ACTiViTiES. The Medina is an intensely competitive environment for small businesses and mi- cro-enterprises. Operating margins are squeezed by the high cost of land and trans- port. Commercial and service activities stretch in a sequence of large souks along the main thoroughfares and in smaller souks off these main roads. A scattering of smaller groupings are embedded deeper in the urban fabric. Along the emergency road network, the majority of business owners are tenants, with a variety of tenure and operating arrangements. Monthly rents are low, tightly clustered around an average of Dh 302 (in 1997), while sales prices averaged Dh 87,571 for both the business and the key money for the premises. The improvement of premises is rarely undertaken, except at the starting up of a business. In spite of widespread concern with the downturn of the economy, business owners generally viewed the rehabili- tation of the Medina as a positive factor. Improved access will lower the carrying charges, enhancing their competitiveness. Both property owners and business own- Left & Right: Improvemiient of accessibilityI circutlationi, urban services, atid public space, fosters thze developmenet of commercial activities. 8 POSITIV- PROJECT IMPAC-S ers and/or operators would invest in renovation of commercial premises along with others in the same souk or cluster. ECONOMiC PERFORMANCE The Project's economic impacts are assessed through three indicators: employment generation, the mobilization of private resources, and its contribution to the Moroc- can economy, quantified by the its present value (NPV) and economic rate of return (EIRR) . EMp[OYMENT GENERATiON. The employment generated by the Project over 15 years is estimated at 10,000 jobs grouped in five main categories: formal construction, informal construction, con- struction support services, micro-enterprises, and jobs induced by second-round expenditures on goods and services. About 50 % of the jobs are in occupations requiring lower skill levels. Less than 30% of the employment generated is included in the computation of benefits. It is assumed that jobs in the formal construction sector and related support services would employ few previously unemployed workers. In the micro-enterprise and informal construction sector unemployment is estimated at about 30% at any point in time as workers await new jobs or seek casual labor. LEVERAqEd PRiVATE INVESTMENT. The bulk of the benefits generated arise from the increase in economic activity and development potential created by the project. This potential will be realized over a 15-year time span in accordance with a realistic development scenario which takes into consideration ownership and occupancy patterns as well as institutional and regulatory constraints deterring private investment. The leverage ratios achieved are depressed by the lack of publicly owned vacant land that can be auctioned off to finance the infrastructure works and the lack of effective cost-recovery mechanisms to recover the cost of infrastructure improvements. In the absence of selling land in the vehicular access zones improved by the Project, leverage ratios achieved under the realistic development scenario will rise from 0.6 in year 3, to 1.5 in year 6, to 2.1 in year 9, and will reach the 3.0 mark by year 15. Incremental development will lead to the expansion of commercial and service activities, the renovation of buildings, and the refurbishing of dwellings in the impact area. 9 REHADILE-A-ION OF THE FEZ MEDINA * Y Public investment in the rehabilitation of the cultural heritage will leverage three tiunes the amountt in private tnvestment azd create a range of emnployment opportunities in t_____ t- .construction, building .. ; - 4 D .* < materials, manufacturing, and tranisport, as well as in the retail and the service sectors. ECONOMiC RETURNS. The increase in property values attributable to the Project is used as the proxy to measure ben- efits, since it captures the current and prospec- tive economic value of the development potential created by the Project. The incremental value attributed to the Project is computed as the dif- ference between the projected value of land in the impact zone and the value of land outside the impact area plus the value of the improve- ments to property. Incentives to encoulrage private An exhaustive processing of real estate trans- rehabilitation of buildings will hell actions in the Medina over the 1990-1996 pe- conserve the historit urblan fabric. riod supplemented by interviews with real estate brokers provided sorely lacking data on the evolution of property values as well as information on current conditions in the rental and sale market. Overall, real values increase at an annual rate of about 3%. As in most historic centers existing buildings are valued below their real building costs. They increase in value marginally in real terms, mainly in conjunction with imnproved maintenance. However, renovations are valued at higher than real building costs and increase in value at about 1 % in real terms annually. In the economic assessment, property is valued at market rates as 10 POSITIVE PROJECT IMPACTS TAbLE 1 FEZ REhAbiliTATiON ECONOMic ASSESSMENT, YEAR 1 5 ECONOMIC RETURN O NPV (million Dh) 155 O EIRR 13.62% GROSS EMPLOYMENT O Direct * Public Works 1,500 * Building Construction * Private Developers/Contractors 3,600 * Informal Builders OI Indirect * Micro-enterprises 3,100 * Construction related 740 I Induced 1,090 LEVERAPGE I Public Investment (million Dh) 170 O Private Investment (million Dh) 520 3 Ratio 3.06 Floor Area Developed (m2) 200,000 reported in the 2,300 notarized sale documents, deposited at the registry, without correcting for under-reporting. The NPV and EIRR reflect the anticipated pattern of slow but steady flow of benefits arising from the scheduled implementation of public works and the time frame required for induced private investment in housing and micro-enterprises to reach its full potential. This is attributable to: * The multiplicity of actors and legal procedures involved. * The legal difficulties created by the complex tenure and occupancy pat- terns. * The technical difficulties entailed by partial demolition, consolidation and rebuilding of affected spaces, structural shells and facades. 1'1 REHABrLLTATION OF THE FEZ IMEDINA Widespread joint ownership, numerous co-owners, private habous as well as overcrowded tenements, legal caps on rent increases, and tenant protec- tion laws all of which impede rehabilitation and redevelopment potential. Property owners must first buy out co-owners, tenants or other holders of primary and secondary rights before embarking on valorization of their real estate assets. Improved access typically leads to a one-time jump in price followed by a pro- gressive increase at a rate higher than in unimproved areas because of the sustained demand for accessible sites. The selected development scenario assumes a price increase of Dh 1,000 per square meter over an average base value of Dh 1,000 per square meter along the alignment of the emergency network, and an annual rate of increase in values of 5.15% compared to the current base rate of 3%, yielding an EIRR of 13.62%. The sensitivity analysis tested the Project's economic performance under price increase factors ranging from 1.75% to 2.25% and annual rates of in- crease in value ranging from 5.0% to 5.5%. Under all plausible development scenarios studied, benefits increase rapidly from year 4 onwards - albeit at a significantly slower rate after year 10 and tapering off by year 15, yielding an EIRR on the order of 12% to 15%. Benefits arising from in- creased revenues from tourism and the intrinsic value of conserving the cultural heritage of mankind are not included in this analysis. A separate contingent valua- TAblE 2 ECONOMiC ASSESSMENT, ANNUAL Flow oF BENEFiTS REAI;STiC DEVELOPMENT SCENARiO* Base Cost Cost Increase of 10% Cost Increase of 20% Year NPV (DhOOO) EIRR (%) NPV (DhOOO) EIRR (%) NPV (DhOOQO' EIRR (I % Year 6 -12,550 4.9 Year 8 31,182 18.4 9,402 12.3 -12,379 7.2 Year 10 66,105 23.8 45,166 18.3 22,227 13.8 Year 15 155,052 28.8 132,683 24.3 110,314 20.7 Value ofland niane accessible rises rC 2000 DhI/m2 and grows at an annuiiial rate of 5. 2,5%. 12 POSITIVE PROJECT IMPACTS tion study has been undertaken to arrive at a preliminary quantification of this in- trinsic value. STRENTIThENiNcj INSTiTUTiONAI CAPACiTiES Strengthening the managerial capacities of the municipalities of Fez Medina and Mez Mechouar and of ADER-FES will have long-term as well as Project-related benefits, particularly in organizing and managing public/private partnerships in the rehabilitation efforts. 13 14 . . . . . . . . . NEC,ATIVE PROjECT IMPACTS ANd MiTiCiATiON MEASURES . . . . . . . . . . . . . . . . . . . . . . - Alternative alignments for the improved circulation system were studied with great care in the field by ADER-FES to avoid disruption of the historic fabric and mini- mize negative impacts on residents and existing economic activities. DiSTURbANCE oF ThE HiSTORic FAbRiC Despite the narrowness of alleyways, demolition has been reduced by selecting design standards that allow a width of only 1.70 meters where necessary. Modifica- tions to buildings impeding the passage of small vehicles along the emergency network are limited to minor adjustments of corners and entryways to eliminate steps jutting into the street. DiSPLACEMENT ANd RELOCATiON There is no permanent displacement occa- sioned by the Project since no inhabited struc- ture will be demolished. No temporary relocation of activities or families is envisaged since all demolitions will be minimal. In cases where an existing wall must be partly demol- ished, the replacement wall will be con- Improvements to accessibility are intro- cduced without conipromising the integrity structed prior to demolition. Eight commercial of the historic fabric. l REHABILITATION OF THE FEZ tviEL'INA premises, four of which are vacant. will be l demolished. The four occupied premises house heavily polluting industries that are included among those being relocated to the new in- dustrial zone atAin Nokbi, where a treatment i piant for noxious wastes is under construction. - ModifiCATiON TO BUi[diNqS oF SiqNiFiCANT CULTURAL VALUE As a Heritage of Mankind city, Fez is comprised almost entirely of buildings of historic cultural value, with the exception of recently built or badly renovated houses. The emergency net- work necessitates minor adjustments to 33 The proposed einergenci, street buildings. Of these, only three are judged to ntoelrk follows existin street aignent and does niot distruipt thte lay,out of the be of 'significant' cultural value, and nine of historic circailationz netwrvork. " medium" cultural value. A commission bring- ing together representatives of the municipality, ADER-FES, the Ministry of Cultural Affairs and UNESCO will review the work to be undertaken on these buildings. MiTiGIATiON oF NEEqATiVE IMPACTS ON RESidENTS The persons affected by the project fall into two categories: property owners who may or may not reside in the affected properties; and occu- pants of existing dwelling units and commercial premises in the affected properties. I-1|1 The anticipated in/nor fmaodifications w ill not alter the miaini features of the affected buildings anid will contribute to inducing the rehabilitation of the built environment along the etnergency road netwiork. 16 NEGATIVE PROJECT IMPACTS AND MITIGATION MEASUR-S COMPENSATiON of PROPERTY OWNERS. Centuries of customary transfers of property rights through customary notarized transactions have resulted in fragmented ownership patterns with numerous co- owners of primary and subsidiary rights, most of whom do not dwell in the Medina. Owners of property rights affected by demolition or modification will be compen- sated according to national laws and regulations governing expropriation by emi- nent domain in the public interest. MEASURES TO MiTkjATE TEMPORARY DiSRUPTiON dURiNq IMPIEMENTATiON of Public WORks. Five temporary relocation rental units have been set aside should any of the affected households opt for temporary relocation while modification works are undertaken on the 33 buildings affected by the emergency network. In order to minimize dis- ruption of economic activity in the Medina, public works affecting commercial ac- tivities and the parts of the streets on which they front are undertaken during night nime. Work on the emergency network will affect 24 businesses. CONTiNCqENCY MEASURES. Local authorities have committed serviced lots and apart- ments for unexpected relocation of up to 29 households in the unlikely event of a building experiencing struc- tural instability during implementation of project works. Letters of commitment have been signed by the Wali of Fez and the Governor of Fez-Medina making available two options: * A serviced plot in a public project at Sahrij Gnawa. A relocation payment equivalent to six months' rent is available while the household builds a dwelling on the serviced site. * An apartment in a government-built affordable housing project currently under construction in Consolidation of structurally unsound Zouagha-Oued Fes. These provisions are gener- buildings under the municipal emergency repair program is ous. and the commitment covers contingencies undertaken primarily by ADER-FES by a safe margin, in rather difficult field conditions. 17 REHABILITATION OF THE FEZ N'PEDINA The social units within ADER-FES and the Pre- fecture will work in close cooperation with the mu- nicipalities of Fez-Medina and Mechouar to keep the concerned households informed of project imple- mentation as it progresses. In the few cases where structural work is conducted on walls. household s on ground floor units fronting on the street will be given the option of moving temporarily into one of five apartments set aside for this purpose while con- struction is ongoing or receiving monetary compen- sation equivalent to six-months rent should they prefer to move temporarily with relatives or friends. COMMUNiTy DEVEIOPMENT Improvement and Inaintenance of public spaces provides the best catalyst for engaging in the There are currently 16 ad hoc community groups revitalization effort at the active in the Medina, only nine of which have a quasi- comunit1 level. official status. Their effectiveness has been limited by a chronic lack of resources. A Royal Letter of September 1996 called upon urban residents to take a more active role in ensuring the cleanliness of their environment. As a result, four new associations were formed in Fez in 1996 and another two in 1997. The interest shown by the population in various rehabilitation activities, par- ticularly in the demolition of abandoned buildings and ruins, indicate that involving popular associations in specific components of the Project will be possible. MONiTORiNGi ANd EVAIUATiON As part of its urban observatory and laboratory, ADER-FES will follow up on the valorization of properties in the project's impact zone. This monitoring will provide a dynamic view of the qualitative and quantitative parameters that define improve- ment of living standards. 18 IMPACT ON MUtNiCipA REVENUE The growth in economic activities and property values resulting from private invest- ment induced by the Project will result in increased municipal revenues. However, tax receipts will be sluggish in their responses to such changes because of the inher- ent nature of the property tax, the complexity of tenure and occupancy patterns, as well as administrative and other problems impeding collections. From FY 93 to FY 97/98, central transfers allocared to local governments based on population size and geographic balance and social equity have accounted for about 60% of the operat- ing budget of Fez Medina. With operating expenditures running in excess of recur- rent revenue, the municipality is running a perennial deficit of about 15% of the operating budget covered by the local share of the VAT. The inadequate perfor- mance of redistributed taxes denies the municipality the ability to recover directly a reasonable portion of public investment expenditures on revitalization, undermin- ing unnecessarily its capacity to finance projects out of local revenue. COMMERCiAL TAXES Commercial licenses are a buoyant source of revenue redistributed at the wilaya level in accordance with population size. At present, based on the 1994 census, the Medina's share is 34% of the redistributed portion (90%) of total collections. The burden of the tax on economically active residents and business owners varies widely, reflecting the diversity of activities and occupations found in the Medina. Patente payments range from Dh 100 to Dh 3,000 but usually fall within the Dh 600 to Dh 1,500 range. Over the 15-year time span, revenues from commercial licenses will rise from MDh 0.3 to MDh 5.9, paralleling the growth of economic activities in- 19 REHASILITATION CF THE FEZ NMEDI\NA duced by the rehabilitation efforts. The NPV of the revenue flow is MDh 17.5. Under the current allocation formula, the Medina's share would be 30.6% of total collec- tions. In FY 96/97 collections amounted to 58% of tax bills issued. Unless this per- formance is substantially improved, the Medina will receive only 17.7% of the potential revenue generated through public and private investment in rehabilitation. PROPERTY TAXES Tax rolls, which are kept by the regional branch of the Ministry of Finance Tax Department, are updated by applying an annual growth factor, currently 2%, to the entire tax base. Only substantially improved properties are reappraised. Current leg- islative and administrative practices are leading to a widening gap between the real and appraised values of the property tax base. The Appraisal Commission is cover- ing an ever decreasing portion of the renovations taking place, as it reappraises less TAblE 3 POTENTiAl TAX FROM PRiVATE INVESTMENT iN COMMERCiAL ACTiViTiES' Average Tax Paid per NPV Establishment 1997 At 10% Tax Revenue (Dh 000) (Dh 000/Year) (Dh 000) Year 0 Year 5 Year 10 Year 15 Cumulative Number of Premises Affected' 107 638 1,428 2,040 Potenitia! Ta.x Commercial License Revenues 1,250 7,591 134 797 1,785 2,550 Income Taxes 225 1,366 24 143 321 459 Urban Taxes 58 352 6 37 83 118 Professional Taxes 1.313 7,973 141 837 1,875 2,679 Total Taxes" 2,889 17,543 310 1,842 4,125 5,894 Bas?cd on thed denepgment scenario considieredthe m7ostrealistic and usediin theEn7viroinmenztal Assessmeslnt Jiune 199,i). Surney. of selected estaplishmnents alonig the emiiergqency netwvork. Includes taxes otlher thain those listed above. 20 IMPACT ON MUNiCIPAL REVENUE than 25% of properties undergoing renovation with a permit, let alone the renova- tions undertaken without a permit. The distortions introduced by habous, usufruct, long-term leasehold, inherit- ance laws and co-ownership patterns, as well as rent and tenancy regulations per- meate the entire real estate market. They depress the tax base through appraisal practices relying on comparative sales and capitalization of rents and income as a valuation methods and widen the disparity between reported rental valuations and real marketvalues reflected in sublets, key money, and buy-back of occupancy rights. For commercial property, the gap between appraised and market value can reach a factor of 15. The increase in property values attributable to the Project represents the estimated growth of the tax base as a result of the Project. TAblE 4 POTENTiAL LOCAI TAX REVENUE FROM PRiVATE INVESTMENTS iN REhAb;i;TATiON ANd VALORiZATiON of PROPERTY (EdiliTE)--Dh 1,000 Year 0 Year 5 Year 10 Year 15 Expected Inflation Index' 100 122 148 180 Stock Value of Land2 26,830 351,781 1,195,319 2,921,088 Stock Value of Buildings2 16,398 164,101 518,378 1,479,546 Investment in Equipement2 2,835 19,340 52,439 90,892 Rental Value of Land3 805 10,553 35,860 87,633 Rental Value of Buildings" 656 6,564 20,735 59,182 Rental Value of Equipment2 113 774 2,098 3,636 Total Rental Valuation 1,574 17,891 58,692 150,450 Local Property Tax 157 1,789 5,869 15,045 NPV at 10% 25,281 World Bank Report No. 14155-MOR, Kingdom of Morocco Country Economic Memoran- dum: Towards Higher Growth and Employment, September 15, 1995. 2 Based on the development scenario considered the most realistic and used in the Environmen- tal Assessment June '997). Computed in accordance with the Urban Tax Law: 3% of-Land Value 4% ofBuilding Value 4 % of Equipment Value 21 REHA31LITATION OF T-HE FEZ NSDINA Because it is part of the urban community, the Fez Municipality's share in the local property tax is 45% of the redistributed portion (90%) of the total collections. Over the 15-year time span, revenues from the local property tax will rise from MDh 0.2 to MDh 15.0 paralleling the expanding valorization of affected properties. The NPV of the revenue flow is MDh 25.3. Under the current allocation formula, the Medina's share would be 40.5% of total collections. In FY 96/97 collections amounted to 16.3% of tax bills issued. Unless this dismal performance is substan- tially improved, the Medina will receive only 6.6% of the potential revenue gener- ated. 22 IMPACT ON AffoRdAbiliTy of RENOVATiON ACTiViTy The Medina houses a range of socio-economic groups. Each of its 19 neighbor- hoods includes a mix of people with different levels of income. Moreover, no neigh- borhood is devoid of upper-income households, an important factor in valorizing property affected by improvements. Expenditures on housing rehabilitation and reno- vation are primarily made by property owners and are financed primarily from per- sonal savings. Supplementary sources are derived from family members; only 20% to 35% of the cost is covered by borrowing, usually short-term loans from contrac- tors and suppliers. The availability of renovations grants as part of the Project as well as the anticipated access to micro-credit is expected to increase the volume of renovation activity and accelerate the pace of valorization. The 31,558 households living in the Medina can be classified according to their incomes into five groups, roughly corresponding to popula- g tion quinriles. Among the top 41 % of households, about half own their dwellings, the majority of them in melk status. Nearly 60%~ are self-em- ployed or partially own their business. Another 25% are salaried employees covered by the So- cial Security Administration. Structural repairs and interior renovation transform a deteriorated tenement into a safe, pleasant, and desirable house. 23 rEi-IAMILITATJON- CF THE -EZ P,r=DILNA The lowest 37% of households comprises those that can be classified as either below the absolute poverty threshold or 'working poor." Roughly a third of the heads of households are engaged in a range of commercial and service activities, including handicrafts. Only 13% are covered by Social Security and about 10% are casual workers. About 30% of these households own their dwellings; most live in multi-family structures where overcrowding is prevalent, ranging from 2.5 to 4.3 persons per room. The rent-to-income ratio ranges from 24.1o% to 29.5%. Whether financed through accumulated savings, additional income, or borrow- ing, renovationi will affect sitting tenants. The dynamics of the real estate market anticipated in the development scenario will induce owners to valorize their prop- erty. Eviction of a tenant is typically accompanied by a significant compensatory payment equivalent to the buy-back of the leasehold. Information gathered on re- cent leasehold buy-backs ranged from Dh 5,000 (for three-year occupancy of dwell- ings with monthly rents ranging between Dh 800 and Dh 1,000) to Dh 20,000 (for Dh 1,300 rental units occupied for 20 years). Should an appropriate mechanism be found to induce tenants and owners jointly to undertake repairs, the impact will affect differently the three related variables: property values, key money, and rents. TAblE 5 AbiliTy TO PAy FOR HOUSiNG by ANNUAL HOUSEhOLd INCOME ANd SizE Household Size Income Group 1 2 3 4 5 6 7 8+ Under 7,800 3.6 2.5 1.2 0.8 0.8 0.5 0.3 0.4 7,801 tol6,000 1.8 1.8 2.2 1.4 1.4 1.0 0.6 0.9 16,001 to 25,000 0.9 1.6 1.7 1.7 1.2 1.1 1.1 1.9 25,001 to 33,000 (1.7 1.2 1.5 1.3 1.6 1.2 1.2 2.1 33.001 to 41,000 0.3 0.6 1.1 1.5 1.4 1.1 1.0 2.4 41,,001 to 49,000 0.4 0.8 1.2 1.2 1.5 1.4 1.4 3.0 49,001 to 62,00(1 0.4 (1.6 0.6 1.2 1.5 1.0 0.9 3.4 62,001 to 73,000 0.1 0.4 0.5 0.7 0.8 0.9 1.0 2.2 73.001 to 86,000 0.1 0.2 0.3 0.6 0.8 0.7 0.8 2.5 86,001 to 102,000 0.0 0.3 0.2 0.5 0.5 0.5 0.4 1.4 102,001 to 118,560 0.4 0.6 0.7 0.9 1.3 1.1 1.0 4.1 24 IMPACT ON AFFORDABILITY OF RENOVATION ACTIVITY The capacity to afford the typical renovation packages without subsidies other than those inherent in the regulated market varies according to income and size of household. About half of the Medina's households below the 80th percentile are tenants. Of these, 55% cannot afford a two-room unit, 19% can afford a two-room unit without renovations, 8% can afford a two-room unit with light renovations and amenities, 4% can afford non-structural repairs and finishings, 3% can afford a completely renovated unit, and I11% can afford a completely renovated unit with structural repairs. The shape of the affordability curve, which is rather flat in its middle sections, parallels the pattern of total expenditures reported in the house- hold budget surveys of 1984-85 and 1990-91. Households below the 88th percentile do not have the ability to absorb the cost of major structural repairs. By providing partial front-end support to property own- ers, the renovation grants provided for under the Fez Rehabilitation Project will stimu- late housing improvement and help minimize a displacement of poorer tenants engendered by the dynamics of the real estate market. 25 26 . . . . . . . . . VAIuiNC ThE BENEfiTS of CONSERVATiON of ThIE FEZ MEdiNA The intrinsic value of conserving the Medina as a cultural heritage of mankind was quantified through a contingent valuation method targeted on tourists and foreign residents. About 1.5 million tourists visit Morocco annually. Tourism represents a significant source of potential income which could help finance rehabilitation, but is at present only partially captured. Foreigners who have not visited Fez or Morocco may still place an existence and preservation value on the Medina. The global value of the existence of the Medina to non-Moroccan consists of three components: di- rect benefits to tourists visiting Fez; passive use (existence and preservation values) to foreign tourists visiting Morocco but not Fez; and general preferences for public goods. CONTiNCtENT VAIUATiON oF ViSiTOR'S Wi[liNCiNESS TO PAY A survey of 600 adult visitors was designed to represent visitors including both tourists and those visiting for business or other purposes. Use and non-use values of public goods are quantified in terms of willingness to pay for specified improve- ments. Respondents were presented with information about the condition of the Medina today and were told rehabilitation would accomplish three things: improve the Medina's appearance by repairing and cleaning up buildings, streets, infrastruc- ture, public spaces, and monuments; preserve the Medina's traditional character and cultural heritage for future generations; and ensure that the Medina would continue to be a productive and vibrant living city. To help pay for the proposed rehabilitation activities visitors would be charged a special fee when they registered at their hotel. For non-visitors to Fez, the fee was 27 RIHABILI-A-ION OF THE FEZ MEDINA presented as a departure fee. The range of price point sub samples bracketed the anticipated median willingness to pay. Visitors to Fez were found to be willing to pay as much as US$70 each for improvements aimed at preserving and improving conditions in the Medina. Given the number of visitors each year, this is equivalent to an annual total of about US$11 million. Other visitors to Morocco share an overall appreciation for the Fez Medina and their willingness to pay for preservation is based on the value they place on its existence, and to some extent as an option value of a future visit. These visitors were found to be willing to pay about US$30 each, resulting in a total annual benefit of about US$47 million. TAbLE 6 CONSERVATiVE ESTiMATES oF VAIUATiON Value for foreign visitors: $11,233,148 Value for non-Fez foreign visitors: $46,879,945 Value for Europeans: $310,335,300 ESTiMATES oF BENEFiTS RECEiVEd by NON,ViSiTORS A Delphi survey was conducted among European contingent valuation experts to determine the mean and median willingness to pay for the rehabilitation of the Fez Medina among the European population through a sample survey of 30 attendees at the June 1997 meeting of the European Association of Environmental and Resource Economists (EAERE) in Tilburg, Netherlands. The values elicited ranged from a mean of US$12.1 to a median of US$2.15, giving an estimate for the total intrinsic value of conserving the Fez Medina to European households of about US$310 million. The best use of this number is to indicate that Europeans place a relatively high value on preservation of the cultural heritage of mankind. Even if only a fraction of the amount of benefits received by visitors could be captured it would generate a substantial annual flow of funds to finance the rehabilitation of the Medina. 28 URqENCy of ACTiON Between January 1996 and October 1997, ADER-FES undertook 64 emergency ac- tions in the Medina. Of these, 30 involved the consolidation of structurally unsound buildings and 34 the demolition of partially collapsed structures and the removal of the debris. These interventions underscore the urgency of launching a major revital- ization effort to reverse the cycle of disinvestment and dilapidation, and prevent the loss of a valuable cultural heritage of mankind. Public funds are needed in particular to launch and support renovation penetrating deep within the historic fabric: these funds will likely emanate from central rather than local government sources. The potential impact of the Fez Rehabilitation Project on economic activity, property values, and valorization is clearly very significant. If adequately captured, it can cover the debt service on loans to finance rehabilitation of the cultural heritage and return a rate of over 13% on public investment. 29 REHA I ITATION OF T-{E FEB MvEPINA Project Impact Impact Issue Addressed Spatial Time Category Concern Significance Scope /Link Protection of direct * Rehabilitation high Medina project/ Cultural / of Heritage of long term Historical Mankind site Urban (population Environment 181,000, 13,500 parcels) indirect project / medium / long term Improvement direct * Intrusion of high Medina / project I of Environmental moderately polluting neighborhood medium term Conditions traditional industries within residential fabric (Quality of Life) direct * Accumulation of high neighborhood project/ debris and garbage medium term mounds on the site of collapsed buildings Improvement indirect/ * Community high Medina project of Environmental Induced participation neighborhood Conditions (con tinned) 30 'JRGENCY OF ACTION Frame Objectives Benefiial NegtieMitgto of Impact Impact ~~~~~~Negative Ipct$ Fostering * Enhancement * Modifications * Technical private sector of real compromising the assistance by participation estate values integrity of ADER-FES in rehabilitation buildings having of urban * Provision of significant cultural environment renovation grants to value. property owners * Preventing loss * Destabilization of * Funding of of culturally * Emergency load bearing emergency action significant consolidation of structures program by the property and buildings (357 municipality collapse of buildings) * Cost of structural (recoverable cost) buildings repairs * Private reconstruc- * Preserving the tion of infill lots (115 * Higher cost of Medina's social lots) accommodations in balance and * Valorization of real renovated buildings economic estate by the private vitality sector (3400 parcels) e Improved living conditions through building renovation * Safeguarding the * Removal of * Relocation of * Regrouping of non- integrity and social polluting industries economic activities noxious traditional stability of from residential that create industries in the residential areas nuisances to designated industrial neighborhoods * Clearance of residents zone within the * Keeping the accessible debris Medina traditional crafts and garbage * Funding of emer- within the Medina mounds (113 sites) gency clearance of * Improving health debris by municipality and sanitation (partially recoverable cost) * Ensuring * Involvement of 16 community neighborhood participation in associations neighorhood * Opening up improvements opportunities for development of infill lots S1 REHABILITAT-ON OF -HE FEZ MEDINA Project Impact Impact Issue Addressed Spatial Time Category Concern Significance Scope /Link Improvement of direct * Emergency high/ Medina / project Accessibility vehicular access medium within within historic area impact zone * inefficiency of high along street project/ existing vehicular corridor medium term access system Improvement direct * Basic services: high Medina project of Urban Services fire protection, security, first aid * Inefficiency of medium within project / solid waste impact zone / municipal collection system Medina contract with private provider Enhancement direct * Employment high Medina and project of economic generation urban opportunities agglomeration for Medina residents indirect project / medium / long term 32 UJRGFNCY OF ACTION Providing limited * Creation of emergency * Possibility of * Elimination of permanent vehicular access street network allowing structural instability relocation throughout the passage of small in some buildings * Provision of contingencies Medina vehicles during work for temporary relocation - 5 * Rationalizing the * Redesigning existing * Minor modifica- units in the Medina and 29 circulation system access roads and public tions affecting 33 units/apartments outside spaces buildings and 24 * Reducing probability of * Providing parking commercial premises temporary relocation facilities through public/ * Modification of 3 * Reducing takings to 1 private partnerships culturally significant meter or less buildings * Minimizing disruption of * Taking of 8 vacant historic fabric and disused * Design review by industrial properties UNESCO and Ministry of Culture for affected culturally significant buildings Providing Medina * Emergency services residents with access to accessible (within emergency services 100m) to every parcel * Modernizing and privatizing the solid waste collection system * Creating job * Jobs created in the * Temporary * Ongoing nature of opportunities for construction and character of incremental develop- Medina residents construction support employment in ment and renovation * Inducing private sector (2230 jobs) public works by the private sector investment in housing * Jobs created in the * Unskilled labor * Increased spending * Inducing develop- informal construction recruited outside the by previously ment of micro- sector (3540 jobs) Medina unemployed workers enterprises and * Jobs created in the filling jobs created or commercial activities commercial and light induced by the project industrial sector (shops * Increased competi- and workshops) (2980 tion faced by existing jobs) activities * Additional job creation (1070 jobs) * Improved accessibility by Medina residents to employment opportunities area wide 3 3 R'-HABII7TATION 0-2 THE FEZ MEDINA Project Impact pact Issue Addressed Spatial rue Category Concern Significance Scope /Link Enhancement induced Enabling high Medina project / of economic Medina and urban medium/ opportunities households to agglomeration long term for Medina improve their residents economic conditions Poverty direct * High unemploy- medium Medina project / Alleviation ment among Medina medium term residents indirect/ * Reported above medium Medina medium term Induced average poverty rates D Moderately high low Medina, particularly proportion of elderly Fez-jdid long term and female-headed households 34 JRGENCY OF ACTION Strategic,Atin Frame ~~~Objecties Beneficial Negative Miiainof * Broad range of * Income generated * Leakage of income generating through commercial income and opportunities made activities savings outside available to Medina * Income generated the Medina residents through sale and lease of residential accommodations * Fostering jobs * Diversity of compatible with employment occupations and skills categories and broad of Medina residents range of skill levels * Avoiding dislocation generated / induced of family social * Enhanced network opportunity for Medina / access to additional resources through * Avoidance of the extended family demolition and system forced relocation 35 REFERENCES Ader-Fes, Geographic Information Systems. , "Etude des acces, circulation et stationnements de la Medina de Fes. Rap- port final provisoire." Klaesi, Emanuel, Fes, Maroc: 1996. , "Projet de rehabilitation de la Medina de FPs. Mobilisation des ressources locales." Tagournet, Bernard, Fes, Maroc: 1996. ", Valorisation du Patrimoine de Fes. - Rapport Final." Couillaud, Michel, FPs, Maroc: 1997. Direction de la Statistique "Indice du couit de la vie: Milieu urbain." Secretariat d'etat l Ia population, Royaume du Maroc, 1997. "Niveaux de vie des menages, 1990/91." Royaume du Maroc, 1992. Groupe Huit, 'Projet de Rehabilitation de la Medina de Fes. Etude des acces, des circulations et des stationnements, et de la collecte des dechets solides. Rapport Final." Paris: 1996. Groupe Huit, et al, "Sauvegarde de la Ville de FES.' Programme des Nations Unies pour le Developpement et Royaume du Maroc, Ministere de l'Interieur, 1992. 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Cambridge, MA,USA, 1996. Navez, F, N. Lahbil, and A. Fejjal, 'Evaluation sociale. Projet de Sauvegarde de la Medina de F/s. Rapport de Synthese.' Banque Mondiale et Prefecture de F/s Medina, 1995. Scandiaconsult International AB, "Sauvegarde de la Medina de Fes. Etude de restructuration de l'artisanat de la Medina de Fes et de protection de son environnement. Version finale." Stockholm: 1996. Project Summary Document 38 r |1 AM~A 0 a , "El