$
Report No: RES00632
RESTRUCTURING PAPER
ON A
PROPOSED PROJECT RESTRUCTURING
OF
Land Tenure Improvement Project
APPROVED ON 21-Dec-2021
TO
United Republic of Tanzania
Urban, Resilience and Land
Eastern And Southern Africa
Regional Vice President: Victoria Kwakwa
Regional Director: Wendy E. Hughes
Country Director: Nathan M. Belete
Practice Manager: Catalina Marulanda
Task Team Leader(s): Victoria Stanley, David Mason, Camille
Bourguignon-Roger
The World Bank
Land Tenure Improvement Project (P164906)
ABBREVIATIONS AND ACRONYMS
CCRO Certificate of Customary Right of Occupancy
CORS Continuously Operating Reference Stations
CRO Certificate of Right of Occupancy
CSO Civil Society Organization
ESF Environmental and Social Framework
ESMT PIT’s Environmental and Social Management Team
ESMP Environmental and Social Management Plan
GoT Government of Tanzania
GRM Grievance Redress Mechanism
IDA International Development Association
ILMIS Integrated Land Management System (now E-Ardhi)
LDI Project Land Data Infrastructure Project
LTIP Land Tenure Improvement Project
M&E Monitoring and Evaluation
MLHHSD Ministry of Lands, Housing and Human Settlement Development
MS Moderately Satisfactory
MTR Mid-Term Review
MU Moderately Unsatisfactory
PDO Project Development Objective
PIT Project Implementation Team
RF Results Framework
ToC Theory of Change
VLUP Village Land Use Plans
The World Bank
Land Tenure Improvement Project (P164906)
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BASIC DATA
Product Information
Operation ID Operation Name
P164906 Land Tenure Improvement Project
Product/Financing Instrument Geographical Identifier
Investment Project Financing (IPF) Tanzania
Approval Date Current Closing Date
21-Dec-2021 30-Jun-2025
Environmental and Social Risk Classification (ESRC)
High
Organizations
Borrower Responsible Agency
Ministry of Lands, Housing and Human Settlements
United Republic of Tanzania
Development
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OPERATION STATUS
Project Development Objective (DO)
Original Development Objective
To strengthen the national land administration system and increase tenure security in selected areas for both men and
women.
Disbursement Summary (in USD million)
Source of Funds Net Commitment Disbursed Undisbursed % Disbursed
IBRD -- -- -- 0
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The World Bank
Land Tenure Improvement Project (P164906)
IDA 43.95 42.67 0.00 100.00
Grants -- -- -- 0
Policy Waivers
Does this restructuring trigger the need for any policy
waiver(s)? No
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The World Bank
Land Tenure Improvement Project (P164906)
TABLE OF CONTENTS
I. PROJECT STATUS AND RATIONALE FOR RESTRUCTURING ........................................................................................1
II. DESCRIPTION OF PROPOSED CHANGES ....................................................................................................................4
III. PROPOSED CHANGES ................................................................................................................................................5
IV. DETAILED CHANGE(S) ...............................................................................................................................................5
The World Bank
Land Tenure Improvement Project (P164906)
I. PROJECT STATUS AND RATIONALE FOR RESTRUCTURING
1. This paper seeks approval from the Country Director (CD) for a Level II restructuring of the Land Tenure
Improvement Project (LTIP) (P164906), International Development Association (IDA) Credit No. 7022-TZ, which will: (a)
cancel sub-component 2.2 Production of Base Maps as formally requested by Government of Tanzania (GoT); (b)
restructure the Project Results Framework as agreed during the Mid-term Review (MTR); and (c) adjust the end targets
in light of the cancelation and early closure of the Project.
Project Overview.
2. The LTIP (P164906) was approved by the World Bank’ Board of Directors on December 21, 2021. It is financed by
IDA Credit No. 7022-TZ amounting to XDR106.5 million (US$150 million equivalent at the time of approval). LTIP became
effective on May 18, 2022, and was scheduled to close on January 31, 2027 (approximately 5.1 years implementation).
The Project is implemented by the Ministry of Lands, Housing and Human Settlement Development (MLHHSD) through a
Project Implementation Team (PIT).
3. The Project Development Objective (PDO) is to strengthen the national land administration system and increase
tenure security in selected areas for both men and women. The original Project included the following four
Components:
• Component 1: Increased Tenure Security (US$71.99 million) supports the mass issuance of Certificate of
Customary Right of Occupancy (CCROs), Certificate of Right of Occupancy (CROs), Residential Licenses, and other
related activities. Activities under this Component are implemented in an inclusive and participatory way to
ensure gender equity, and protection of the rights of all groups including women, youth, hunter-gatherers,
pastoralists, farmers, and urban poor as detailed in the CRO and CCRO manuals.
• Component 2: Land Information Management (US$33.14 million) finances activities related to spatial data
infrastructure and Information and Communications Technology. This component finances the rollout of
MLHHSD’s Integrated Land Management System (ILMIS) across the country; the production of base maps in the
project areas to support mass land certification and land use planning and management; the establishment of
Continuously Operating Reference Stations (CORS); and the mapping of land values across the country.
• Component 3: Physical Development of the Land Administration System (US$24.66 million) supports the
construction of Regional Land Offices for 25 regions and renovation/reconstruction of District Land Offices. This
component also finances the operationalization of Land and Housing Tribunals; improvements to the policy,
legal and regulatory framework; public awareness activities; as well as the implementation of capacity building
activities to improve the performance of all relevant actors in the land sector.
• Component 4: Project Management (US$12.69 million) supports effective project management, financial
management, procurement, establishment of a Monitoring and Evaluation (M&E) framework, and compliance
with Environmental and Social Framework (ESF) policies and processes. Under this Component a Grievance
Redress Mechanism for the Project has been established and managed to ensure that all grievances, complaints,
and concerns are responded to.
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The World Bank
Land Tenure Improvement Project (P164906)
4. The MTR for the Project was held from April 22 to May 3, 2024, and resulted in an agreement to restructure the
Project to reduce targets, cancel Sub-Component 2.2 on base mapping1, and build up capacity for procurement and ESF
implementation. However, before this restructuring could take place, the GoT requested2 cancelation of the undisbursed
balance to respond to newly emerging priorities and reallocate the funds. On October 15, 2024, the Bank restructured
LTIP to cancel the uncommitted and undisbursed amount of XDR 74,358,927.05 (US$100,089,346.58 as of August 16,
2024) and advance the closing date to June 30, 2025, as agreed with MLHHSD and the Ministry of Finance. The original
PDO remained unchanged.
5. In order to process the cancellation quickly, only the cancellation and change in closing date were processed under
the first Restructuring. This second Restructuring will adjust the agreed scope of the Components and the Results
Framework (RF) as agreed at MTR.
6. Project performance to date: Progress towards achieving the PDO is rated Moderately Satisfactory (MS), and
Implementation Progress was downgraded to Moderately Unsatisfactory (MU) in the Implementation Status and Results
Report (ISR) of October 30, 2023, and remains MU. Procurement and Financial Management are currently both rated MS.
Compliance with both social and environment safeguards is rated MU. A new ISR will be filed following this restructuring
and all Project ratings will be revised to capture actual progress relative to reduced targets across all components. There
are no pending audits.
7. Current status of implementation: Disbursements stand at US$42.67 million, of which US$27 million have been
paid and the remaining US$15 million are committed to contracts that will be completed by the June 2025 closing date.
See the table below for details by Component.
Project Costs at Revised Project Costs
Component Name Appraisal Dec 2024
(US$ millions) (US$ millions)3
Component 1: Increased Tenure Security 71.99 21.23
Component 2: Land Information 33.14 6.95
Management
Component 3: Physical Development of 24.66 10.20
Land Administration System
Component 4: Project Management 12.69 4.30
(including ESF management)
Contingency (5 percent) 7.50 n/a
Sub-total Components 150.00 42.67
Cancelled as of October 2024 n/a 100.10
Total 150.00 142.774
1 Requested formally by Government on December 18, 2023.
2 Letter dated August 9, 2024 (Ref. No CDA.414/624/10), received by IDA on August 16, 2024.
3 Please note that this is projected costs until Project closing.
4 The discrepancy in final figures is due to exchange rate differences for XDR between appraisal in 2021 and today.
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The World Bank
Land Tenure Improvement Project (P164906)
8. The current status of implementation is summarized below:
• Component 1: Increased Tenure Security. Despite the early cancelation, key processes and systems have been
created for land administration and tenure security in Tanzania. A streamlined process for CROs was piloted in
urban areas and has been documented in the CRO manual. At the same time the CCRO process has also been
improved and documented in a revised CCRO manual. These manuals provide standardized and clear processes
that can be implemented by a variety of implementers – local government, MLHHSD, civil society, private surveyors,
etc. when funds are available.
o For rural land certification - 166 villages (of the original 250 planned) CCRO activities have been
completed, while this activity is ongoing in 21 villages, and has not been initiated in the remaining
villages. A total of 381,900 parcels have been adjudicated to date (survey completed and registration
information collected), and 63,406 CCROs have been registered. An additional 85,309 CCROs have been
drafted for registration.
o Urban land certification has been innated through direct implementation in 8 District Councils, with the
objective to register 110,600 CROs. To date, 107,666 parcels have been planned and surveyed, about half
of which have been recorded in the e-Ardhi (formerly known as ILMIS). Since August 11, 2024,
beneficiaries can use a newly deployed Land Portal to file their CRO registration application, and as of
September 17, 2024, 954 had done so. In Dar es Salaam, the number of CROs registered though the
MLHHSH Ardhi-clinics has reached 37,204.
• Component 2: Land Information Management. ILMIS has been upscaled and renamed e-Ardhi. The
development of the third version of the software has been completed and includes modules for mass
registration, online lodging of transactions and other key features. The plan is to complete the roll-out if e-Ardhi
in all project districts (14) by the early closing date. Data conversion is also progressing, with around 450,000
remaining files. The CORS network contract has been issued and the winning firm – Trimble – has completed the
detailed design and field reconnaissance phase. The contract has been renegotiated so that the main installation
will be completed by the revised closing date of June 30, 2025.
• Component 3: Physical Development of the Land Administration System. The bulk of this financing was for
completion of 25 regional offices which will not be built given the early project closure. The contracts for
office design have been completed and these designs will be ready should other funding become available.
Significant equipment has been purchased. MLHHSD is working on the dissemination of the revised Land
Policy, Post transaction regulations, Real Estate Act, Land Surveying legislation, Ardhi Institutes Act, NSDI
policy formulation and review of the Valuation and Valuers Registration Act Cap 138. The other key
activities – support for land and housing tribunals, public awareness campaigns and capacity building have
been substantial as evidenced by the current figures in the RF.
• Component 4: Project Management. The PIT remains active and is managing the Project effectively. ESF
management has improved significantly.
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The World Bank
Land Tenure Improvement Project (P164906)
II. DESCRIPTION OF PROPOSED CHANGES
9. As requested by the GoT in December 2023, the proposed restructuring will formally cancel sub-component 2.2
on base mapping. The funds have already been reallocated to scale up Village Land Use Planning5. This has already been
agreed to by both the Bank and the GoT. Base mapping activities will be financed under the Korean funded Land Data
Infrastructure (LDI) Project. This proposal addresses a request from the Parliament to scale up the preparation of VLUPs to
“mitigate the escalation of land conflicts prevalent in rural areas across Tanzania”.
10. No change to the PDO is required, but the scope of the Project has been reduced by the cancelation of funds
(approximately 70 percent cancelled) and the reduction in time for implementation (from 5.1 years to 3.5). The original
scope of activities focused on tenure security (primarily Component 1) are reduced from 40 districts to 14 districts. The
scope of activities focused on strengthening the land administration system (Components 2 and 3) are also reduced to
the 14 districts and will no longer support base mapping nor the physical construction of regional offices. However, the
improvements to ILMIS (now E-Ardhi) and roll out to district level offices will continue, on a reduced geographical scope.
11. Several changes to the RF PDO level indicators were agreed during the MTR and these include:
a. Delete the indicator – “Reduction in average time for issuance of a CRO, first registration.” This indicator has
proven difficult to measure and track due to the fact that the ILMIS (now E-Ardhi) digital land information
system has not been fully rolled out around the country.
b. A new indicator that is more in line with project activities will be added: “MLHHSD's E-Ardhi system is
operational in all offices where Component 1 is implemented.” There is an agreed detailed monitoring
methodology, including both functional improvements to E-Ardhi and rollout to the 14 districts. E-Ardhi is
key for MLHHSD to be able to monitor average time for issuance of a CRO, and is contributing to the initial
PDO indicator to reduce registration processing time
c. Updated targets for both CROs and CCROs that can be achieved by the advanced project closing date of June
30, 2025.
d. A new indicator– “Number of parcels recorded in ILMIS cadastre.” Once the parcel is surveyed and
processed it can be uploaded into the digital cadaster (in ILMIS/E-Ardhi). After that citizens need to pay fees
and take other steps to receive their certificates (CROs and CCROs) that are beyond the control of the
Project. This indicator will support better measurement of progress towards the PDO.
e. The indicator on ‘beneficiary satisfaction with systematic registration process’ is moved to intermediate
level. While an important indicator of the quality of the systematic registration process, it is not directly
linked to the achievement of the PDO.
12. At the intermediate level, some indicators are dropped due to changes in activities; new indicators are added to
better capture the results of the Project; and targets have been revised. The highlights are listed below:
a. The indicator for ’village land registries renovated’ is dropped as this was determined to be unrealistic and
not efficient to manage registration of CCRO transactions (sub-divisions, inheritance, sale that take place
after first registration). Instead, a new indicator is added to measure the system for post-registration
transactions is established and rolled out to the relevant districts.
b. The indicator for base mapping is dropped given the cancellation of sub-component 2.2.
5As there is only one withdrawal category in the Financing Agreement, this reallocation was done by agreement between MoF, MLHHSD and the
Bank.
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The World Bank
Land Tenure Improvement Project (P164906)
c. A new indicator is added to record the number of VLUPs prepared under the project that do not include
continuation to the CCRO stage as this is well beyond the original target of 250.
d. A new indicator is added to record the number of people reached through other means – radio, digital,
social media – to raise awareness on the project and land rights issues.
e. A new indicator is added to record the extensive training provided to other land sector actors/stakeholders
(for example CSO).
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Summary changes
III. PROPOSED CHANGES
Operation Information Proposed Changes Operation Information Proposed Changes
Results Yes Loan Closing Date Extension No
Components Yes Loan Cancellations No
Development Objective No Reallocations No
Summary Description
No Financial Management No
(Operation Abstract)
Legal Operational Policies No Procurement No
MFD/PCE No Institutional Arrangement No
Risks No Implementation Schedule No
Legal Covenants No
Conditions No
Implementation Modalities No
Disbursements Estimates No
Disbursements Arrangements No
DDO No
Clients No
Appraisal Summary No
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IV. DETAILED CHANGE(S)
COMPONENTS
Current Current Proposed Proposed Cost
Action
Component Name Cost (USD) Component Name (USD)
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The World Bank
Land Tenure Improvement Project (P164906)
Component 1: Increased Component 1: Increased
71,990,000.00 Revised 21,227,752.00
Tenure Security Tenure Security
Component 2: Land Component 2: Land
33,140,000.00 Revised 6,947,109.00
Information Management Information Management
Component 3: Physical Component 3: Physical
Development of Land 24,660,000.00 Revised Development of Land 10,195,128.00
Administration System Administration System
Component 4: Project Component 4: Project
12,690,000.00 Revised 4,295,298.00
management management
Marked for
Contingency 7,500,000.00
Deletion
TOTAL 149,980,000.00 42,665,287.00
COSTS & FINANCING
Private Capital Facilitation
Is this an MFD-Enabling Project (MFD-EP)?
Is this project Private Capital Enabling (PCE)?
LOANS
ENVIRONMENTAL & SOCIAL
Environmental & Social Assessment
According to the E/S Specialist are there changes proposed to the operation’s design that No
would impact the Bank’s E&S assessment?”
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The World Bank
Land Tenure Improvement Project (P164906)
RESULTS
COUNTRY: Tanzania
Land Tenure Improvement Project
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PDO Indicators by PDO Outcomes
Strengthened Land Administration System
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
5,523 Sep/2021 TBC 16-Oct-2023 8,465 30-Oct-2024 8,465 Jun/2025
Revise
Increased number of CRO
Comments on achieving targets The original baseline has been revised to recognize that this data is only available in ILMIS areas - Dar es Salaam
transactions (Text)
and Dodoma
New E-Ardhi system is operational in 0 Oct/2024 77% 30-Oct-2024 100% Jun/2025
all offices where Comp 1 is
implemented (Text)
Increased Tenure Security
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
NewNumber of parcels (for 0 Oct/2024 457,655 30-Oct-2024 662000 (500000 Jun/2025
CROs/CCROs) recorded in ILMIS CCROs/ 162000
cadaster (Text) CROs)
Revise 0 Sep/2021 8,105 30-Sep-2023 106,369 30-Oct-2024 239,000 (54000 Jun/2025
Number of certificates (CROs,
CROs; 185000
CCROs) registered (Text)
CCROs)
Reviseof which female 0 Sep/2021 31% 30-Sep-2023 32% 30-Oct-2024 40% Jun/2025
(including individual and joint
tenure) (Text)
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The World Bank
Land Tenure Improvement Project (P164906)
Revise
Increased perception of tenure 0 Sep/2021 81% 01-Sep-2023 82% 01-Sep-2023 75% Jan/2027
security (Text)
Revise Female (Text) 0 Sep/2021 83% 01-Sep-2023 83% 01-Sep-2023 75% Jun/2025
Intermediate Results Indicators by Components
Component 1: Increased Tenure Security Revised
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
0.00 Sep/2021 0.00 19-Oct-2023 most parcels have 30-Oct-2024 1,441 Jun/2025
Revise
received CROs,
Number of residential licenses
CCROs
issued (Number)
Comments on achieving targets target reduced
Revise Female (Text) 0 Sep/2021 0 19-Oct-2023 0 30-Oct-2024 304 Jun/2025
0.00 Sep/2021 0.00 19-Oct-2023 471 30-Oct-2024 846 Jun/2025
Number of villages with land
certificates (Number) Comments on achieving targets 250 villages are targeted. This is a pre-condition for CCROs and needs to be completed before final year of the
project
0 Sep/2021 80 19-Oct-2023 277 30-Oct-2024 250 Jun/2025
Number of VLUPs completed (Text) Comments on achieving targets An additional 569 VLUPs were completed and a new indicator will be added
new Oct/2024 569 30-Oct-2024 569 Jun/2025
Number of VLUPs completed without
CCROs (Text) Comments on achieving targets this was requested by govt in Dec 2023
121 TZS (BLN) Sep/2021 58 TZS (BLN) 19-Oct-2023 237.6 Bln TZS 30-Oct-2024 322 Bln TZS Jun/2025
Increased collection of land rent
(Text) Comments on achieving targets The amount is for the whole country. However this current figure represents only the first half of the year.
0 Sep/2021 68% 31-Aug-2023 68% CROs; 98% 31-Aug-2023 70% Jun/2025
CCROs
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The World Bank
Land Tenure Improvement Project (P164906)
Degree of satisfaction of beneficiaries Comments on achieving targets Will measure the degree of satisfaction of those benefiting from the systematic registration process for CROs
with the process for systematic and CCROs
issuance for CROs, CCROs (Text)
0 Sep/2021 65% 31-Aug-2023 65% CROs; 98% 31-Aug-2023 70% of female Jun/2025
of which female (Text)
CCROs beneficiaries
10,622 Sep/2021 11,371 19-Oct-2023 7,847 30-Oct-2024 30% decrease over Jun/2025
Reduced number of land conflicts the baseline
(Text) Comments on achieving targets The number is for project areas only (districts). This represents the fact that backlogs are still being cleared.
System established to ensure that 45% Oct/2024 45% 30-Oct-2024 100% Jun/2025
CCRO transactions are registered in Comments on achieving targets to capture the system to be put in place for rural transactions
eArdhi (Text)
Component 2: Land Information Management Revised
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
Revise
Number of offices with E-Ardhi 6.00 Sep/2021 8.00 19-Oct-2023 13 30-Oct-2024 20 Jun/2025
operational (Number)
0 Sep/2021 tender has been 19-Oct-2023 contract signed and 30-Oct-2024 22 Jun/2025
launched in August implementation
Number of districts with CORS
2023 underway
coverage (Text)
Comments on achieving targets Baseline data is for the whole country
Component 3: Physical Development of Land Administration System Revised
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
55.00 Sep/2021 93.00 19-Oct-2023 111 30-Oct-2024 115 Jun/2025
Number of District Land and Housing
Tribunals operational (Number) Comments on achieving targets The number is for the whole country. Equipment, working tools are available; premises are renovated.
Number of people informed on the 0 Sep/2021 14,436 19-Oct-2023 709,955 30-Oct-2024 850,000 Jun/2025
project including land administration, Comments on achieving targets number of people informed of the project and process, including through community consultations, public
certification process (Text) awareness campaigns, etc.
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The World Bank
Land Tenure Improvement Project (P164906)
91,945 Oct/2024 91,945 30-Oct-2024 150,000 Jun/2025
Number of people reached through
other platforms (Text) Comments on achieving targets to capture awareness raised via social media, and other platforms
0.00 Sep/2021 368.00 19-Oct-2023 1,125 30-Oct-2024 1,400 Jun/2025
Number of staff trained (Number) Comments on achieving targets Baseline data is for Ministry staff at HQ and regional offices. Target number includes staff at district level. An
additional 33,777 have been trained outside of the Ministry
0 Sep/2021 114 19-Oct-2023 330 30-Oct-2024 440 Jun/2025
Female (Text) Comments on achieving targets Baseline data is for Ministry staff at HQ and regional offices. Target number includes staff at district level.
35,777 Oct/2024 35,777 30-Oct-2024 37,000 Jun/2025
Number of other project
stakeholders trained (Text) Comments on achieving targets To capture other project results
14,873 Oct/2024 14,873 30-Oct-2024 15,000 Jun/2025
of which female (Text) Comments on achieving targets to capture other project results
Component 4: Project management Revised
Indicator Name Baseline Actual (Previous) Actual (Current) Closing Period
Result Month/Year Result Date Result Date Result Month/Year
0.00 Sep/2021 2.00 19-Oct-2023 2.00 30-Oct-2024 4.00 Jun/2025
Number of surveys completed
(Number) Comments on achieving targets Baseline, MTR, final surveys
0 Sep/2021 3 19-Oct-2023 8 30-Oct-2024 11 Jun/2025
Semi-annual and annual progress
reports prepared (Text) Comments on achieving targets count of reports prepared
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The World Bank
Land Tenure Improvement Project (P164906)
Annex 1: Revised Theory of Change
Activities Outputs Outcomes PDO
Certification of rural land Increased number of land and
CCROs, CROs, residential property registered
Component 1
licenses issued
Certification of urban land
Increased Tenure Security
Reduced number of land conflicts
Upgrading and upscaling of ILMIS
Land information system
rolled out and improved
Component 2
Produce base maps Improved accessibility and efficiency
of land administration system
Enhance geodetic framework
Land institutions
strengthened
Build capacity for the land sector Improved Land Administration
Increased public understanding of
Component 3
Develop legal and regulatory reforms
land related issues
Land related information
disseminated
Raise public awareness
Critical assumptions:
A1: that the GoT has sufficient technical and
institutional capacity to manage the range of tasks and
stakeholders.
A2: that the public interest in and/or ability to formalize
land tenure or maintain through transactions.
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