Paper plans to people power: Why urban governance must precede traditional master planning
Urban planning in Bangladesh remains a technocratic ritual detached from political realities. Without legitimate governance coming first, plans will not work
For decades, Bangladesh's cities—especially Dhaka—have been managed through a legacy of top-down planning, epitomised by master plans and regulatory blueprints like the Detailed Area Plan (DAP). These have promised organised, livable cities but delivered something far more chaotic: unregulated sprawl, infrastructural deficit, and widespread illegality in housing and land use. The central problem? We've placed more trust in plans than in politics.
A Professor Emeritus from the University of Birmingham, Carole Rakodi's seminal analysis of urban planning in developing countries resonates painfully with the situation in Dhaka and other urban areas in Bangladesh. Planning systems are often detached from reality, formulated by technocrats with little consideration for implementation, governance, or the power structures that shape urban development. Bangladesh exemplifies this dilemma. A great deal of effort is put in by teams of consultants, including planners, economists, engineers, and other professionals, to create such plans. However, all these efforts ultimately fall subject to the will of the 'powerful' individuals.
The illusion of control through planning
The DAP and similar master plans reflect a belief in rational, state-led development—an ideal scenario where well-drafted documents can guide growth over 15 or 20 years. But these plans frequently ignore the realities of political interference, institutional weakness, and resource scarcity. As Rakodi notes, master plans often serve as "paper plans" with no real enforcement, especially in contexts where local governments lack both capacity and legitimacy.
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In Dhaka, vast informal settlements and illegal commercial developments have mushroomed despite detailed land use maps and zoning codes. These aren't exceptions—they are the dominant pattern. Even high-income neighbourhoods often skirt regulations due to patronage networks. The inability to implement DAP consistently, combined with piecemeal amendments under political pressure, reveals the hollowness of technical planning divorced from governance.
Why governance and legitimacy must come first
Rakodi's work emphasises that effective planning cannot occur without legitimate and accountable governance. Plans, regulations, and standards are only as strong as the institutions that enforce them—and the trust they command. In Bangladesh, fragmented authority between Rajuk, city corporations, utility providers, and ministries undermines any cohesive urban strategy.
Moreover, political actors often see long-term plans as obstacles to their short-term interests, especially in the run-up to elections or in patronage-driven systems. For instance, the Awami League government's development agenda heavily favored urban centers such as Dhaka, Chittagong, and Gazipur, while largely overlooking the needs of rural areas.
Over the past decade, the fascist Awami League government in Bangladesh has aggressively pursued a series of megaprojects under the banner of "Vision 2021" and "Digital Bangladesh." While these initiatives have been promoted as symbols of national progress, a closer examination reveals troubling patterns of mismanagement, lack of transparency, and disregard for public accountability.
Several flagship projects—though impressive in scale—reflect a deeper crisis in governance and planning. Major infrastructure initiatives, including the Padma Bridge, Rooppur Nuclear Power Plant, Rampal coal power plant, and unplanned flyovers—were marred by corruption and administrative inefficiencies. In particular, the Rampal Power Plant project near the Sundarbans sparked serious environmental concerns. The policy-making process lacked meaningful public consultation, creating a disconnect between government priorities and the actual needs of citizens. The core problem across these projects lies in the absence of parliamentary oversight, public engagement, and institutional checks and balances. Planning often centres around political gain, photo opportunities, and ribbon-cutting ceremonies, while long-term sustainability, environmental preservation, and public benefit are secondary.
Without political ownership of planning documents and without participatory engagement of urban stakeholders, there is no legitimacy. And without legitimacy, there is neither compliance nor impact.
Moving toward strategic urban governance
To move forward, Bangladesh must invert the planning pyramid. Governance reform must precede—and then underpin—planning reform. This means, we will need to empower local governments with legal authority, financial autonomy, and professional capacity. We strongly need inter-agency coordination to overcome bureaucratic silos. We will also need to engage communities in decision-making to build plan ownership and compliance. And lastly, we will need to make sure there is transparency and accountability to rebuild institutional legitimacy.
Plans like the DAP should be reimagined not as rigid blueprints, but as living frameworks—updated iteratively through feedback loops, political negotiation, and social consensus. This requires a planning culture that values dialogue over directives, and process over product.
The future is political
Bangladesh's urban future does not hinge on better maps or models; it depends on better politics. Until political leaders commit to governance reforms—decentralisation, participation, and rule-based administration—urban plans will remain largely symbolic. As Rakodi rightly asserts, the vicious cycle of failed plans and failed governance can only be broken by prioritising legitimacy, accountability, and inclusive decision-making. In a rapidly urbanising Bangladesh, the challenge is not planning for the future—it is governing the present. Only then can planning serve the public good, not just the planning profession.
Faysal is an Australia based Data Professional and Urban Planner.
Benozir is an urban planner and development specialist
Disclaimer: The views and opinions expressed in this article are those of the author and do not necessarily reflect the opinions and views of The Business Standard.
